Loe raamatut: «An Inquiry into the Nature of Peace and the Terms of Its Perpetuation»

PREFACE

It is now some 122 years since Kant wrote the essay, Zum ewigen Frieden. Many things have happened since then, although the Peace to which he looked forward with a doubtful hope has not been among them. But many things have happened which the great critical philosopher, and no less critical spectator of human events, would have seen with interest. To Kant the quest of an enduring peace presented itself as an intrinsic human duty, rather than as a promising enterprise. Yet through all his analysis of its premises and of the terms on which it may be realised there runs a tenacious persuasion that, in the end, the régime of peace at large will be installed. Not as a deliberate achievement of human wisdom, so much as a work of Nature the Designer of things—Natura daedala rerum.

To any attentive reader of Kant's memorable essay it will be apparent that the title of the following inquiry—On the nature of peace and the terms of its perpetuation—is a descriptive translation of the caption under which he wrote. That such should be the case will not, it is hoped, be accounted either an unseemly presumption or an undue inclination to work under a borrowed light. The aim and compass of any disinterested inquiry in these premises is still the same as it was in Kant's time; such, indeed, as he in great part made it,—viz., a systematic knowledge of things as they are. Nor is the light of Kant's leading to be dispensed with as touches the ways and means of systematic knowledge, wherever the human realities are in question.

Meantime, many things have also changed since the date of Kant's essay. Among other changes are those that affect the direction of inquiry and the terms of systematic formulation. Natura daedala rerum is no longer allowed to go on her own recognizances, without divulging the ways and means of her workmanship. And it is such a line of extension that is here attempted, into a field of inquiry which in Kant's time still lay over the horizon of the future.

The quest of perpetual peace at large is no less a paramount and intrinsic human duty today than it was, nor is it at all certain that its final accomplishment is nearer. But the question of its pursuit and of the conditions to be met in seeking this goal lies in a different shape today; and it is this question that concerns the inquiry which is here undertaken,—What are the terms on which peace at large may hopefully be installed and maintained? What, if anything, is there in the present situation that visibly makes for a realisation of these necessary terms within the calculable future? And what are the consequences presumably due to follow in the nearer future from the installation of such a peace at large? And the answer to these questions is here sought not in terms of what ought dutifully to be done toward the desired consummation, but rather in terms of those known factors of human behaviour that can be shown by analysis of experience to control the conduct of nations in conjunctures of this kind.

February 1917

CHAPTER I
Introductory: On the State and its Relation to War and Peace

To many thoughtful men ripe in worldly wisdom it is known of a verity that war belongs indefeasibly in the Order of Nature. Contention, with manslaughter, is indispensable in human intercourse, at the same time that it conduces to the increase and diffusion of the manly virtues. So likewise, the unspoiled youth of the race, in the period of adolescence and aspiring manhood, also commonly share this gift of insight and back it with a generous commendation of all the martial qualities; and women of nubile age and no undue maturity gladly meet them half way.

On the other hand, the mothers of the people are commonly unable to see the use of it all. It seems a waste of dear-bought human life, with a large sum of nothing to show for it. So also many men of an elderly turn, prematurely or otherwise, are ready to lend their countenance to the like disparaging appraisal; it may be that the spirit of prowess in them runs at too low a tension, or they may have outlived the more vivid appreciation of the spiritual values involved. There are many, also, with a turn for exhortation, who find employment for their best faculties in attesting the well-known atrocities and futility of war.

Indeed, not infrequently such advocates of peace will devote their otherwise idle powers to this work of exhortation without stipend or subsidy. And they uniformly make good their contention that the currently accepted conception of the nature of war—General Sherman's formula—is substantially correct. All the while it is to be admitted that all this axiomatic exhortation has no visible effect on the course of events or on the popular temper touching warlike enterprise. Indeed, no equal volume of speech can be more incontrovertible or less convincing than the utterances of the peace advocates, whether subsidised or not. "War is Bloodier than Peace." This would doubtless be conceded without argument, but also without prejudice. Hitherto the pacifists' quest of a basis for enduring peace, it must be admitted, has brought home nothing tangible—with the qualification, of course, that the subsidised pacifists have come in for the subsidy. So that, after searching the recesses of their imagination, able-bodied pacifists whose loquacity has never been at fault hitherto have been brought to ask: "What Shall We Say?"

Under these circumstances it will not be out of place to inquire into the nature of this peace about which swings this wide orbit of opinion and argument. At the most, such an inquiry can be no more gratuitous and no more nugatory than the controversies that provoke it. The intrinsic merits of peace at large, as against those of warlike enterprise, it should be said, do not here come in question. That question lies in the domain of preconceived opinion, so that for the purposes of this inquiry it will have no significance except as a matter to be inquired into; the main point of the inquiry being the nature, causes and consequences of such a preconception favoring peace, and the circumstances that make for a contrary preconception in favor of war.

By and large, any breach of the peace in modern times is an official act and can be taken only on initiative of the governmental establishment, the State. The national authorities may, of course, be driven to take such a step by pressure of warlike popular sentiment. Such, e.g., is presumed to have been the case in the United States' attack on Spain during the McKinley administration; but the more that comes to light of the intimate history of that episode, the more evident does it become that the popular war sentiment to which the administration yielded had been somewhat sedulously "mobilised" with a view to such yielding and such a breach. So also in the case of the Boer war, the move was made under sanction of a popular war spirit, which, again, did not come to a head without shrewd surveillance and direction. And so again in the current European war, in the case, e.g., of Germany, where the initiative was taken, the State plainly had the full support of popular sentiment, and may even be said to have precipitated the war in response to this urgent popular aspiration; and here again it is a matter of notoriety that the popular sentiment had long been sedulously nursed and "mobilised" to that effect, so that the populace was assiduously kept in spiritual readiness for such an event. The like is less evident as regards the United Kingdom, and perhaps also as regards the other Allies.

And such appears to have been the common run of the facts as regards all the greater wars of the last one hundred years,—what may be called the "public" wars of this modern era, as contrasted with the "private" or administrative wars which have been carried on in a corner by one and another of the Great Powers against hapless barbarians, from time to time, in the course of administrative routine.

It is also evident from the run of the facts as exemplified in these modern wars that while any breach of the peace takes place only on the initiative and at the discretion of the government, or State,¹ it is always requisite in furtherance of such warlike enterprise to cherish and eventually to mobilise popular sentiment in support of any warlike move. Due fomentation of a warlike animus is indispensable to the procuring and maintenance of a suitable equipment with which eventually to break the peace, as well as to ensure a diligent prosecution of such enterprise when once it has been undertaken. Such a spirit of militant patriotism as may serviceably be mobilised in support of warlike enterprise has accordingly been a condition precedent to any people's entry into the modern Concert of Nations. This Concert of Nations is a Concert of Powers, and it is only as a Power that any nation plays its part in the concert, all the while that "power" here means eventual warlike force.

Such a people as the Chinese, e.g., not pervaded with an adequate patriotic spirit, comes into the Concert of Nations not as a Power but as a bone of contention. Not that the Chinese fall short in any of the qualities that conduce to efficiency and welfare in time of peace, but they appear, in effect, to lack that certain "solidarity of prowess" by virtue of which they should choose to be (collectively) formidable rather than (individually) fortunate and upright; and the modern civilised nations are not in a position, nor in a frame of mind, to tolerate a neighbor whose only claim on their consideration falls under the category of peace on earth and good-will among men. China appears hitherto not to have been a serviceable people for warlike ends, except in so far as the resources of that country have been taken over and converted to warlike uses by some alien power working to its own ends. Such have been the several alien dynasties that have seized upon that country from time to time and have achieved dominion by usufruct of its unwarlike forces. Such has been the nature of the Manchu empire of the recent past, and such is the evident purpose of the prospective Japanese usufruct of the same country and its populace. Meantime the Chinese people appear to be incorrigibly peaceable, being scarcely willing to fight in any concerted fashion even when driven into a corner by unprovoked aggression, as in the present juncture. Such a people is very exceptional. Among civilised nations there are, broadly speaking, none of that temper, with the sole exception of the Chinese,—if the Chinese are properly to be spoken of as a nation.

Modern warfare makes such large and direct use of the industrial arts, and depends for its successful prosecution so largely on a voluminous and unremitting supply of civilian services and wrought goods, that any inoffensive and industrious people, such as the Chinese, could doubtless now be turned to good account by any warlike power that might have the disposal of their working forces. To make their industrial efficiency count in this way toward warlike enterprise and imperial dominion, the usufruct of any such inoffensive and unpatriotic populace would have to fall into the hands of an alien governmental establishment. And no alien government resting on the support of a home population trained in the habits of democracy or given over to ideals of common honesty in national concerns could hopefully undertake the enterprise. This work of empire-building out of unwarlike materials could apparently be carried out only by some alien power hampered by no reserve of scruple, and backed by a servile populace of its own, imbued with an impeccable loyalty to its masters and with a suitably bellicose temper, as, e.g., Imperial Japan or Imperial Germany.

However, for the commonplace national enterprise the common run will do very well. Any populace imbued with a reasonable measure of patriotism will serve as ways and means to warlike enterprise under competent management, even if it is not habitually prone to a bellicose temper. Rightly managed, ordinary patriotic sentiment may readily be mobilised for warlike adventure by any reasonably adroit and single-minded body of statesmen,—of which there is abundant illustration. All the peoples of Christendom are possessed of a sufficiently alert sense of nationality, and by tradition and current usage all the national governments of Christendom are warlike establishments, at least in the defensive sense; and the distinction between the defensive and the offensive in international intrigue is a technical matter that offers no great difficulty. None of these nations is of such an incorrigibly peaceable temper that they can be counted on to keep the peace consistently in the ordinary course of events.

Peace established by the State, or resting in the discretion of the State, is necessarily of the nature of an armistice, in effect terminable at will and on short notice. It is maintained only on conditions, stipulated by express convention or established by custom, and there is always the reservation, tacit or explicit, that recourse will be had to arms in case the "national interests" or the punctilios of international etiquette are traversed by the act or defection of any rival government or its subjects. The more nationally-minded the government or its subject populace, the readier the response to the call of any such opportunity for an unfolding of prowess. The most peaceable governmental policy of which Christendom has experience is a policy of "watchful waiting," with a jealous eye to the emergence of any occasion for national resentment; and the most irretrievably shameful dereliction of duty on the part of any civilised government would be its eventual insensibility to the appeal of a "just war." Under any governmental auspices, as the modern world knows governments, the keeping of the peace comes at its best under the precept, "Speak softly and carry a big stick." But the case for peace is more precarious than the wording of the aphorism would indicate, in as much as in practical fact the "big stick" is an obstacle to soft speech. Evidently, in the light of recent history, if the peace is to be kept it will have to come about irrespective of governmental management,—in spite of the State rather than by its good offices. At the best, the State, or the government, is an instrumentality for making peace, not for perpetuating it.

Anyone who is interested in the nature and derivation of governmental institutions and establishments in Europe, in any but the formal respect, should be able to satisfy his curiosity by looking over the shoulders of the professed students of Political Science. Quite properly and profitably that branch of scholarship is occupied with the authentic pedigree of these institutions, and with the documentary instruments in the case; since Political Science is, after all, a branch of theoretical jurisprudence and is concerned about a formally competent analysis of the recorded legal powers. The material circumstances from which these institutions once took their beginning, and the exigencies which have governed the rate and direction of their later growth and mutation, as well as the de facto bearing of the institutional scheme on the material welfare or the cultural fortunes of the given community,—while all these matters of fact may be germane to the speculations of Political Theory, they are not intrinsic to its premises, to the logical sequence of its inquiry, or to its theoretical findings. The like is also true, of course, as regards that system of habits of thought, that current frame of mind, in which any given institutional scheme necessarily is grounded, and without the continued support of which any given scheme of governmental institutions or policy would become nugatory and so would pass into the province of legal fiction. All these are not idle matters in the purview of the student of Political Science, but they remain after all substantially extraneous to the structure of political theory; and in so far as matters of this class are to be brought into the case at all, the specialists in the field can not fairly be expected to contribute anything beyond an occasional obiter dictum. There can be no discourteous presumption, therefore, in accepting the general theorems of current political theory without prejudice, and looking past the received theoretical formulations for a view of the substantial grounds on which the governmental establishments have grown into shape, and the circumstances, material and spiritual, that surround their continued working and effect.

By lineal descent the governmental establishments and the powers with which they are vested, in all the Christian nations, are derived from the feudal establishments of the Middle Ages; which, in turn, are of a predatory origin and of an irresponsible character.² In nearly all instances, but more particularly among the nations that are accounted characteristically modern, the existing establishments have been greatly altered from the mediaeval pattern, by concessive adaptation to later exigencies or by a more or less revolutionary innovation. The degree of their modernity is (conventionally) measured, roughly, by the degree in which they have departed from the mediaeval pattern. Wherever the unavoidable concessions have been shrewdly made with a view to conserving the autonomy and irresponsibility of the governmental establishment, or the "State," and where the state of national sentiment has been led to favor this work of conservation, as, e.g., in the case of Austria, Spain or Prussia, there the modern outcome has been what may be called a Dynastic State. Where, on the other hand, the run of national sentiment has departed notably from the ancient holding ground of loyal abnegation, and has enforced a measure of revolutionary innovation, as in the case of France or of the English-speaking peoples, there the modern outcome has been an (ostensibly) democratic commonwealth of ungraded citizens. But the contrast so indicated is a contrast of divergent variants rather than of opposites. These two type-forms may be taken as the extreme and inclusive limits of variation among the governmental establishments with which the modern world is furnished.³

The effectual difference between these two theoretically contrasted types of governmental establishments is doubtless grave enough, and for many purposes it is consequential, but it is after all not of such a nature as need greatly detain the argument at this point. The two differ less, in effect, in that range of their functioning which comes in question here than in their bearing on the community's fortunes apart from questions of war and peace. In all cases there stand over in this bearing certain primary characteristics of the ancient régime, which all these modern establishments have in common, though not all in an equal degree of preservation and effectiveness. They are, e.g., all vested with certain attributes of "sovereignty." In all cases the citizen still proves on closer attention to be in some measure a "subject" of the State, in that he is invariably conceived to owe a "duty" to the constituted authorities in one respect and another. All civilised governments take cognizance of Treason, Sedition, and the like; and all good citizens are not only content but profoundly insistent on the clear duty of the citizen on this head. The bias of loyalty is not a matter on which argument is tolerated. By virtue of this bias of loyalty, or "civic duty"—which still has much of the color of feudal allegiance—the governmental establishment is within its rights in coercively controlling and directing the actions of the citizen, or subject, in those respects that so lie within his duty; as also in authoritatively turning his abilities to account for the purposes that so lie within the governmental discretion, as, e.g., the Common Defense.

These rights and powers still remain to the governmental establishment even at the widest democratic departure from that ancient pattern of masterful tutelage and usufruct that marked the old-fashioned patrimonial State,—and that still marks the better preserved ones among its modern derivatives. And so intrinsic to these governmental establishments are these discretionary powers, and by so unfailing a popular bias are they still accounted a matter of course and of axiomatic necessity, that they have invariably been retained also among the attributes of those democratic governments that trace their origin to a revolutionary break with the old order.

To many, all this will seem a pedantic taking note of commonplaces,—as if it were worth while remarking that the existing governments are vested with the indispensable attributes of government. Yet history records an instance at variance with this axiomatic rule, a rule which is held to be an unavoidable deliverance of common sense. And it is by no means an altogether unique instance. It may serve to show that these characteristic and unimpeachable powers that invest all current governmental establishments are, after all, to be rated as the marks of a particular species of governments, and not characteristics of the genus of governmental establishments at large. These powers answer to an acquired bias, not to an underlying trait of human nature; a matter of habit, not of heredity.

Such an historical instance is the so-called Republic, or Commonwealth, of Iceland—tenth to thirteenth centuries. Its case is looked on by students of history as a spectacular anomaly, because it admitted none of these primary powers of government in its constituted authorities. And yet, for contrast with these matter-of-course preconceptions of these students of history, it is well to note that in the deliberations of those ancients who installed the Republic for the management of their joint concerns, any inclusion of such powers in its competency appears never to have been contemplated, not even to the extent of its being rejected. This singularity—as it would be rated by modern statesmen and students—was in no degree a new departure in state-making on the part of the founders of the Republic. They had no knowledge of such powers, duties and accountabilities, except as unwholesome features of a novel and alien scheme of irresponsible oppression that was sought to be imposed on them by Harald Fairhair, and which they incontinently made it their chief and immediate business to evade. They also set up no joint or collective establishment with powers for the Common Defense, nor does it appear that such a notion had occurred to them.

In the history of its installation there is no hint that the men who set up this Icelandic Commonwealth had any sense of the need, or even of the feasibility, of such a coercive government as would be involved in concerted preparation for the common defense. Subjection to personal rule, or to official rule in any degree of attenuation, was not comprised in their traditional experience of citizenship; and it was necessarily out of the elements comprised in this traditional experience that the new structure would have to be built up. The new commonwealth was necessarily erected on the premises afforded by the received scheme of use and wont; and this received scheme had come down out of pre-feudal conditions, without having passed under the discipline of that régime of coercion which the feudal system had imposed on the rest of Europe, and so had established as an "immemorial usage" and a "second nature" among the populations of Christendom. The resulting character of the Icelandic Commonwealth is sufficiently striking when contrasted with the case of the English commonwealth of the seventeenth century, or the later French and American republics. These, all and several, came out of a protracted experience in feudalistic state-making and State policy; and the common defense—frequently on the offensive—with its necessary coercive machinery and its submissive loyalty, consequently would take the central place in the resulting civic structure.

To close the tale of the Icelandic commonwealth it may be added that their republic of insubordinate citizens presently fell into default, systematic misuse, under the disorders brought on by an accumulation of wealth, and that it died of legal fiction and constitutional formalities after some experience at the hands of able and ambitious statesmen in contact with an alien government drawn on the coercive plan. The clay vessel failed to make good among the iron pots, and so proved its unfitness to survive in the world of Christian nations,—very much as the Chinese are today at the mercy of the defensive rapacity of the Powers.

 
And the mercy that we gave them
Was to sink them in the sea,
Down on the coast of High Barbarie.
 

No doubt, it will be accepted as an axiomatic certainty that the establishment of a commonwealth after the fashion of the Icelandic Republic, without coercive authority or provision for the common defense, and without a sense of subordination or collective responsibility among its citizens, would be out of all question under existing circumstances of politics and international trade. Nor would such a commonwealth be workable on the scale and at the pace imposed by modern industrial and commercial conditions, even apart from international jealousy and ambitions, provided the sacred rights of ownership were to be maintained in something like their current shape. And yet something of a drift of popular sentiment, and indeed something of deliberate endeavour, setting in the direction of such a harmless and helpless national organisation is always visible in Western Europe, throughout modern times; particularly through the eighteenth and the early half of the nineteenth centuries; and more particularly among the English-speaking peoples and, with a difference, among the French. The Dutch and the Scandinavian countries answer more doubtfully to the same characterisation.

The movement in question is known to history as the Liberal, Rationalistic, Humanitarian, or Individualistic departure. Its ideal, when formulated, is spoken of as the System of Natural Rights; and its goal in the way of a national establishment has been well characterised by its critics as the Police State, or the Night-Watchman State. The gains made in this direction, or perhaps better the inroads of this animus in national ideals, are plainly to be set down as a shift in the direction of peace and amity; but it is also plain that the shift of ground so initiated by this strain of sentiment has never reached a conclusion and never has taken effect in anything like an effectual working arrangement. Its practical consequences have been of the nature of abatement and defection in the pursuit of national ambitions and dynastic enterprise, rather than a creative work of installing any institutional furniture suitable to its own ends. It has in effect gone no farther than what would be called an incipient correction of abuses. The highest rise, as well as the decline, of this movement lie within the nineteenth century.

In point of time, the decay of this amiable conceit of laissez-faire in national policy coincides with the period of great advance in the technology of transport and communication in the nineteenth century. Perhaps, on a larger outlook, it should rather be said that the run of national ambitions and animosities had, in the eighteenth and nineteenth centuries, suffered a degree of decay through the diffusion of this sentimental predilection for Natural Liberty, and that this decline of the manlier aspirations was then arrested and corrected by help of these improvements in the technological situation; which enabled a closer and more coercive control to be exercised over larger areas, and at the same time enabled a more massive aggregate of warlike force to strike more effectively at a greater distance. This whole episode of the rise and decline of laissez-faire in modern history is perhaps best to be conceived as a transient weakening of nationalism, by neglect; rather than anything like the growth of a new and more humane ideal of national intercourse. Such would be the appraisal to be had at the hands of those who speak for a strenuous national life and for the arbitrament of sportsmanlike contention in human affairs. And the latterday growth of more militant aspirations, together with the more settled and sedulous attention to a development of control and of formidable armaments, such as followed on through the latter half of the nineteenth century, would then be rated as a resumption of those older aims and ideals that had been falling somewhat into abeyance in the slack-water days of Liberalism.

There is much to be said for this latter view; and, indeed, much has been said for it, particularly by the spokesmen of imperialist politics. This bias of Natural Liberty has been associated in history with the English-speaking peoples, more intimately and more extensively than with any other. Not that this amiable conceit is in any peculiar degree a race characteristic of this group of peoples; nor even that the history of its rise and decline runs wholly within the linguistic frontiers indicated by this characterisation. The French and the Dutch have borne their share, and at an earlier day Italian sentiment and speculation lent its impulsion to the same genial drift of faith and aspiration. But, by historical accident, its center of gravity and of diffusion has lain with the English-speaking communities during the period when this bias made history and left its impress on the institutional scheme of the Western civilisation. By grace of what may, for the present purpose, be called historical accident, it happens that the interval of history during which the bias of Natural Liberty made visible headway was also a period during which these English-speaking peoples, among whom its effects are chiefly visible, were relatively secure from international disturbance, by force of inaccessibility. Little strain was put upon their sense of national solidarity or national prowess; so little, indeed, that there was some danger of their patriotic animosity falling into decay by disuse; and then they were also busy with other things. Peaceable intercourse, it is true, was relatively easy, active and far-reaching—eighteenth and nineteenth centuries—as compared with what had been the case before that time; but warlike intercourse on such a scale as would constitute a substantial menace to any large nation was nearly out of the question, so far as regards the English-speaking peoples. The available means of aggression, as touches the case of these particular communities, were visibly and consciously inadequate as compared with the means of defense. The means of internal or intra-national control or coercion were also less well provided by the state of the arts current at that time than the means of peaceable intercourse. These means of transport and communication were, at that stage of their development, less well suited for the purposes of far-reaching warlike strategy and the exercise of surveillance and coercion over large spaces than for the purposes of peaceable traffic.