RUSSIA AND ITS BORDERS
Another group of wars and threats of war has its centre in Moscow. All the States on the borders of Russia—Finland, Lithuania, Poland, the Ukraine, Hungary, Rumania, the new republics of Georgia, Armenia, and Azerbaijan, and the kingdom of Persia—are either at war or in fear of war or just recovering from war with Russia, or from civil war fomented by Russian agents and propagandists. Inside Russia itself, civil war has never ceased since the first outbreak of the Revolution in 1917. It is true that the civil war has been largely helped by foreign munitions and stirred up by foreign intrigues. But that only shows that—as the world is now organized—there is something in the present Russian Government which makes foreigners as well as Russians wish to take up arms against it. It may have been—I think strongly that it was—exceedingly unwise for the foreign Governments to intervene in the domestic troubles of Russia, but no one can pretend that the civil war was entirely created by foreigners. The rebellions were there before the foreigners joined in, and it is even thought by good judges that the opposition to the Bolsheviks might by this time have been successful if it had not been damned in Russian eyes by its foreign alliances.
For us the question is how the Russian Revolution has become such a plenteous and intense cause of strife. It is, of course, impossible to pass judgment on the whole of a vast movement with the very inadequate information that is now accessible to an average Englishman about Russia. Even the French Revolution, which has been studied by thousands of observers and historians, is not yet judged. The sum of infamies and high achievements is too complicated to add up. And the Russian Revolution is probably even harder to value than the French.
I. The Civil War
It would be a mistake to forget the elements of simple early-Christian brotherhood which seem to characterize the Russian peasant. It was well known before the war how the members of a workmen's artel, or trade community, when trade was bad, would divide their earnings equally and all starve, if need be, together, without any attempt by the luckier workmen to save themselves at the expense of the others. The glowing descriptions of Mr. Stephen Graham cannot be entirely without any basis in fact. And the people of Tolstoy and Dostoievsky have evidently a most rare capacity for sainthood and martyrdom, as well as for aberration of mind. Present-day Russia has been described by an eminent Socialist as "a nation of artists governed by brutes," and the phrase is probably true of the old Russia also, and the Russia of centuries back. Communism comes easily in Russia, and so does submission to tyranny.
It must also be remembered that the Great War, among its many aspects, involved the most frightful and bewildering oppression of the poor and weak. As was said quite truly: "Millions of poor men in divers regions of the world have been dragged suddenly and without any previous action of their own into a quarrel which they neither made nor desired nor understood, and in the course of that quarrel have been subjected again and again to the very extremity of possible human suffering." The war naturally and inevitably created in Europe a passionate wish for some revolutionary transformation of a world in which rich and clever people in parliaments and governments had the power of inflicting such pains upon the poor. The peculiarity of the Bolshevik movement was, as one of its rare English admirers puts it, not so much that it wanted a particular kind of Socialism or Communism, but that it wanted it now. The world has seen many revolutions and many Socialist governments; but they have never really established that paradise of the poor which was advertised in their prospectuses and doubtless nursed in their hopes. Most failed altogether. And those which succeeded went wrong. They coöperated with "bourgeois Liberals." They extended the franchise, they improved the condition of the working classes, they established well-to-do workmen and peasants with a stake in the country and a conservative bias; but they never really did what was wanted. They always stopped short. They developed the middle-class virtues. They left still in existence a capitalist class which preached the merits of thrift and hard work and was interested in trade; and of course they left always somewhere an oppressed class. The under dog was still under.
The Bolshevik remedy was very direct and simple. It was to disarm everybody who had any share in prosperity, and distribute firearms to those who had nothing else. Only when he was armed and the rest of the people unarmed could the real proletarian—the man who had no savings, no talent, no education, no notable good qualities, nothing that makes for success in life—hope to beat the men who always outstripped him. It is strange that even in a moment of extreme misery such a theory could have established itself in any country as a principle of government. But the military collapse of Russia gave it a unique chance. The common soldiers, anxious to fight no more, already possessed arms. They had merely to murder their officers and the thing was done. The rest of the population was unarmed and helpless. And meantime the peasants, though almost untouched by revolutionary ideas, were amenable to one particular bribe. The revolutionaries offered all the peasants of Russia their masters' land without any payment. They could simply take the land, and kill or not kill the owner as they pleased. There was no punishment for such killing. According to strict Communist principles, the land was not to remain in the peasants' possession. It was to be the property of the State. But this principle had to be dropped in order to induce the peasants to coöperate with the revolutionary town workmen. Whatever may be said in favour of this revolution, there can at least be no surprise at what Lenin calls "the frantic resistance" of the upper and middle classes of Russia. The policy of the Government was announced on January 23, 1919: "The present is the period of destruction and crushing of the capitalist system of the whole world. . . . In order to establish the dictatorship of the proletariate it is necessary to disarm the bourgeoisie and its agents and to arm the proletariate." It is to be dictatorship in the strict sense: the power of a man with a gun to do what he likes with those who have no guns. There is to be no democracy or representation of the dispossessed classes. If they were represented they might recover power. Only those known to be faithful to the new Government are to vote. All persons of property must be dispossessed, from landlords to small shop-keepers. Rich peasants must go; even "middle peasants" at one time had to go; only the poorest peasants and the poorest town workmen should rule, assisted, of course, by those educated people who would accept the new régime and establish by deeds beyond doubt their hatred of the bourgeoisie.
The control of a country by a small minority is always difficult. It needs methods of "terror." But this minority had first to acquire the control and then to maintain it. Its task was more difficult and its methods had to be more violent than those of its predecessors. The "terror" of the old Czarist Government or of the French Revolution must be superseded by the more drastic method of what was called "mass terror." The secret police, whose activities had made hideous the record of the Czarist Government, and who had fled for their lives at the first outbreak of the Lvof and Kerensky Revolution, returned from their lurking-places to put themselves at the disposal of the Bolsheviks. This legion of devils had something to sell which the new Government badly needed. On the analogy of the Comité de Salut Public there was established the All-Russian Extraordinary Commission for stamping out all trace of resistance to the new order. Spies were placed everywhere (Proclamation, October 17, 1918). No distinction was to be made between Czarist reactionaries and unorthodox Socialists, such as the Mensheviks and Social Revolutionaries (Russkaya Zhizn, May 10, 1919). Enormous numbers of "hostages" were arrested. At any sign of conspiracy outside, large numbers of these were shot. The assassination of the Bolshevik Uritzky was repaid by the execution of five hundred citizens. Yet, just as in the most furious days of the French Revolution, the terrorists were always complaining that there was not enough terror. "The continual discovery of conspiracies in our rear . . . the insignificant extent of serious repressions and mass shootings of White Guards and bourgeoisie on the part of the Soviets, show that notwithstanding frequent pronouncements urging mass terror against the Social Revolutionaries, White Guards, and bourgeoisie, no real terror exists" (Official Weekly of the All-Russian Extraordinary Commission, No. 1, Moscow, September 21, 1918).
Trotzky in comforting language explained that the object of the mass terror was not really the extermination of all non-communists, or all Russians who did not attain the full standard of poverty and orthodoxy. "The proletariate says: 'I shall break your will because my will is stronger than yours, and I shall force you to serve me.' . . . Terror as the demonstration of the will and strength of the working class is historically justified" (Trotzky in Izvestia, January 10, 1919). Eventually, of course, when all Russia was submissive and all Europe Communist, there would be a gentler régime, and the proletariate would show their true beauty of character. And it would be a mistake to ignore the real reforms which seem to have been carried through in certain social services, notably in the care of children, the attempt to develop popular education and the putting down of drink. But in the meantime terror was reënforced by ingenious petty persecutions and indignities, reënforced by starvation. Those who joined the Red Army had three times the ration of food allowed to several categories of the civil population. No one can wonder that suicide—that last irrefutable evidence of unbearable oppression—became extraordinarily common, especially among the educated classes,[4] and that "frantic resistance" broke out where it had any prospect of success.
II. Russia's Neighbours
But what of the war outside Russia? Why could not the Russians be allowed to conduct their revolution and settle their form of government by themselves? It would be very desirable if they could. And doubtless it is the aim to be striven for. But the trouble is that Bolshevism is to its adherents a revelation and a new gospel, and they have the same zeal for converting the rest of the world as had the French Revolutionaries or the followers of Mohammed. "The program of the Communist Party is not merely a program of liberating the proletariate of one country; it is the program of liberating the proletariate of the world" (authorized pamphlet by N. Bukharin, July 24, 1918). This is to be achieved by "a bloody torturing and heroic fight." The methods are to include every known form of intrigue, corruption, forgery, and the like, and the plan is to be the same in all countries. Revolutionary workmen are to be armed, including common soldiers, tramps, prisoners, and all the utterly dispossessed of the earth, except, of course, those who have Conservative, Liberal, or Labour Party views; and then are to work their proletarian will on the rest of the community. The "national will" is to be disregarded: "The interests of Socialism stand far above the interest of the right of nations to self-determination" (Trotzky, Izvestia, March 8, 1918). "All our hopes for the definitive triumph of Socialism are based on this conviction and on this scientific prevision, i.e. that a revolution like the Russian can be produced in all the nations of Europe" (ib.). In the Treaty of Brest-Litovsk the Bolsheviks were compelled to sign a clause promising not to conduct "any agitation against the State and military institutions of Germany." "But both the Russian Government as a whole and its accredited representative in Berlin never concealed the fact that they were not observing this article, and did not intend to do so" (Joffe, Izvestia, January 1, 1919).
The belief that by some single violent change in social, political, or economic conditions human life as a whole can be suddenly transfigured is one that clings to many minds, and by no means the stupidest minds, of the present age, in spite of much disillusioning experience. It does seem to them at moments as if only some one thing was wrong with the world, and as if that one flaw must surely be definite and remediable: some one bold step is all that is needed—say, the abolition of the family, or of property, or of competition, or of wages, or of interest, or of compulsory law, or some other of the fundamental institutions of society.
To our ancestors it was the abolition of heresy. To the Turks, the abolition of all Christians in Turkey. To such people at such times the normal method of trying to correct the worst abuses by persuading the majority that they ought to be corrected, and of seeking individually to live a better life and to help one's neighbours, seems tedious and ineffective, if not hypocritical. But one thing that is clear is that revolution means "frantic resistance," and the stronger the faith and energy behind the revolution the more deep-reaching is the resistance likely to be.
Russia's neighbours see what seems to them the infinite misery and impoverishment and retardation inflicted by Bolshevism; and they are naturally indignant and alarmed at the secret propaganda of Bolshevism within their own borders. In normal times perhaps they need not have been afraid. But since the war every state is unstable; every state has a large discontented class. The small republics in the Caucasus, barely able to support themselves in freedom, are maddened to find their constitution threatened by Russian bribes, their malcontents and bad characters armed with Russian rifles and machine guns, and their public men assassinated. Georgia and Armenia are probably doomed. Hungary and Finland have gone Bolshevik and returned, each process being accompanied by hideous persecutions and murders, the reprisals being naturally the worst. Germany, in spite of all treaties, has been exposed to constant propaganda and has had one or two bad outbreaks of violence. Poland has been and still is—whether through her own bad policy or otherwise—on the brink of compulsory Bolshevism. Human nature being what it is, and human politics a little worse than private human nature, it is inevitable that Russia's neighbours should be constantly afraid of her and intensely anxious to see her again under some more normal government; some government which, whatever its political bias, would leave its neighbours to govern themselves and accept the ordinary conventions of civilized society.
Nay, one can even understand anti-Russian policies that seem at first sight intolerably aggressive. The Poles, among other demands, are anxious for the independence of White Russia, the region north of the Pripet, of which Minsk is the chief town. They wish it either annexed to Poland or else made independent, but at any rate cut off from Russia. The claim seems monstrous. But it has its excuse. The White Russian peasantry are said to be peculiarly ignorant and devoid of national feeling; the land-owners and well-to-do classes are mostly Poles. Is it surprising that the Poles of Poland hate the idea of handing their countrymen over to a Russia which will, as a matter of course, set the peasants to burn their houses, destroy their cattle, and hunt them themselves down like vermin? And when that is done, they reflect, Bolshevism will only be nearer to Warsaw.
Like the early Moslems, the true Bolsheviks care more for their faith than for territory. In dealing with Lithuania, which is at present a comparatively quiet little peasant republic, the Russians offered her a large slice of territory beyond what she was entitled to or wanted. Why? Because it was a thoroughly Bolshevized area, and might be expected to spread the faith—or the poison—into all Lithuania. A nation, or a government, in that state of mind cannot be surprised if its neighbours regard it with anxiety.
It is a curious fact that revolutionists so often regard themselves as pacifists. Many were even conscientious objectors during the war, and there is no reason to doubt that they were sincere. But they do seem to be confused thinkers. To hate your neighbours, whom you know, and love your neighbours' enemies, whom you do not know, is a consistent and not uncommon frame of mind; though the element of love in it seems less important and prominent than the hate. But to expect European peace and good-will by means of a revolution in all countries argues a lack of understanding not far removed from madness. Every revolutionary outburst since the war has been marked by ferocious cruelties and followed by still more ferocious reprisals. Revolution leads not to peace, but to reciprocal reigns of terror, first Red and then White, till the exhaustion of suffering produces some sort of equilibrium.
The war, among its many evil lessons, has inculcated the gospel of impatience and of force. "When you want a thing, take it from some one, and if he resists, knock him down." It is the doctrine which destroys human societies as it destroys the peace in men's own hearts. If we want peace, we must simply unlearn that creed and go back to the old Liberal doctrine that is at the root of sound politics everywhere: "If you think something is right, try to persuade your fellow citizens of it; try your hardest, but remember that you may be wrong, and until you succeed, have patience."
CHAPTER IV
PRE-WAR AND POST-WAR CAUSES
OF STRIFE
The war has left behind it a great number of small wars or guerrillas. Most of them have their explanation in some ordinary excess of nationalism or revenge or greed. The Serbs, intoxicated with their new greatness, are still causing war in Albania and Montenegro. The Rumanians recently invaded Hungary, in spite of all the thunders of the Peace Conference, because they had been robbed by Austria-Hungary and wanted revenge and reparation. The Hungarians have alarmed all their neighbours and forced them into a defensive alliance, which now calls itself the "Little Entente." The Lithuanians and Poles have fought, but been reconciled by the mediation of the League of Nations. The Armenians have been massacred again, under the eyes of the French army of occupation in Cilicia, where they had gathered under a repeated guarantee of safety given by France and England. The Turkish Nationalists are holding out very unsuccessfully in the centre of Anatolia against a Greek army carrying out the directions of the Supreme Council. The Turkish peasants are increasingly reluctant to take arms again. The Koreans have helplessly declared their right to independence from Japan, and are apparently being reduced by a terrible persecution.
These are the mere belated effervescence of the passions of the Great War. The hate and pride which are the basis of nationalism and which were so violently stimulated by the events of the war cannot be expected to die out at once. It was calculated a short time ago that there were twenty-seven "wars" of one sort or another in progress. But they will presumably simmer down as social conditions become more normal.
It is interesting to observe that two of the greatest causes of war, according to the judgment of normal times, are now not actively operating. Before 1914, if one was asked to name the main causes of war, the answer would have been, first, competitive armaments, and, second, protective tariffs and the competition for markets. These causes will remain fully as dangerous for the future, but it so happens that none of the existing wars is directly due to either.
I. Armaments
In one sense, indeed, armaments are actually operating now as a cause of war. There are far too many firearms lying about. America, England, and France have made very lavish gifts or sales of lethal weapons to various bodies with whom they sympathized. And the arms have by no means always stayed in the place for which they were intended. Guns which we sent to Denikin were sold by corrupt officials to the Bolsheviks, and passed on by them to the Afghans to use against us on the Indian frontier. Such things cause some deaths and some laughter, but are not permanent evils.
No European nation, except those actually compelled, has made much progress towards disarmament. It is said that Great Britain has actually made the greatest reduction, but both in numbers of men and in expenditure our standard is fantastically higher than what was forced upon us by German competition in 1914. It is impossible to reduce our forces in a really drastic way as long as our commitments are so large and—perhaps we must add—our policy so inconsistent and provocative. Peace with Russia, a settlement with Mesopotamia and Egypt on the lines laid down by the Covenant and the Milner Report, the evacuation of Ireland, the execution of the Montagu-Chelmsford reforms in India, and the extension of similar reforms to Burmah and the much-suffering Ceylon, will permit us really to envisage for the first time a satisfactory measure of disarmament. The air force is already greatly reduced. The vast size of the navy appears to be utterly unjustified, at any rate by conditions in Europe. The French army is far beyond the economic powers of France to support. The same seems to be true of Italy, and is certainly true of Serbia, which is still calling conscripts to the colours. Greece is vastly overarmed; but Greek policy, though erring on the ambitious side, has probably been more sagaciously guided under M. Venizelos than any in Europe. The fall of that great man, due mainly to the prolonged economic distresses of Greece, will probably cause a resurgence of Mustapha Kemal and the Turkish nationalists. Meantime the Russian conscript army, though apparently ill-armed and ill-supplied, is overwhelming in numbers and is led by officers of the old régime, experienced and not absolutely incompetent. The Russian army is far the greatest and, in a political sense, the most dangerous, in the world.
But it is not the actual armaments, ruinous as they are, that are the essential poison to civilized society. It is the competition in armaments. That has now been abolished throughout Europe. Slowly, unequally, reluctantly, the armaments which, in Lord Grey's words, went uphill under the lead of Germany, are now, under the same lead, groping their way downhill. There is only one great nation which, if words are to be believed, thinks seriously of starting a competition in armaments. It has been announced, more than once, by the American Government that, like Germany in the years before 1914, they have arranged a naval programme which will effectually put an end to the British command of the seas and give the United States "world primacy" (see speech of Mr. Daniels, Secretary of the Navy, in the Times of September 1, 1920). Since the British Empire is a scattered series of communities dependent for their communications upon the sea, and in particular since the population of Great Britain is absolutely dependent for its food on the free use of sea transport, it has been generally acknowledged in Europe that the sea-power of Great Britain was necessary to its existence. British sea-power has never been challenged except by definite enemies in pursuit of a definite war policy. If the United States were seriously to embark on the same policy as the late German Government, it seems as if all other causes of war must sink into insignificance beside this gigantic and deliberate one. But, in spite of some bewildering symptoms, it can hardly be believed that this conclusion is possible, at any rate until America has definitely and finally refused to be a member of the League of Nations.
Relations between Great Britain and America have of late been dangerously strained, partly owing to causes outside our Government's control, but in part owing to the scandal caused in America by certain developments of the Peace Treaty, and by the excesses of the Government forces in Ireland. A wise policy may help to heal this growing breach, and if America accepts in some form or other membership of the League of Nations, it ought to be possible in friendly discussion to arrive at some understanding on the question of naval armaments.
The problem of armaments is put in the very forefront of the Covenant of the League, immediately after the constitution of the League itself. By Article VIII—
The members of the League recognize that the maintenance of peace requires the reduction of[Pg 105] national armaments to the lowest point consistent with (a) national safety and (b) the enforcement by common action of national obligations.
The Council, taking account of the geographical situation and circumstances of each State, shall formulate plans for such reduction for the consideration and action of the several Governments.
Such plans shall be subject to reconsideration and revision at least every ten years.
After these plans shall have been adopted by the several Governments the limits of armament therein fixed shall not be exceeded without the concurrence of the Council.
The article goes on to recognize that private munition factories are objectionable, and must somehow be dealt with, and to lay down that all members must interchange "full and frank information" about their armaments and programmes. And the next article constitutes a permanent Commission to advise the Council on the execution of the provisions of Article VIII and other similar matters.
The cautious language of the Covenant on this subject is due to the inherent difficulty of the subject itself. It would be absurd to lay down that every member of the League must disband its forces forthwith; the League could hardly undertake to go to war in order to compel some strong Power to disarm. And it is obvious that different nations need different degrees of armament. The chief difficulty is that disarmament ought in justice and prudence to be simultaneous all round. It is only by the compulsion of a lost war that Germany has been compelled to disarm while her enemies stand round her with large armies, and even in Germany the process is evidently very difficult to enforce. Too many rifles and machine guns have got loose in private hands. No League could compel Poland or Rumania to disarm while the Red Army of Russia stood waiting across the frontier; or compel Great Britain to disarm while the northwest frontier of India is constantly attacked, while the Bolsheviks are in Persia and British officials are besieged in Mesopotamia. This difficulty will remain even when the world begins to settle down and the countries of Europe are no longer governed by their War Offices. On the other hand, economic pressure, as well as Liberal feeling, will make for the reduction of armies and navies. It may be difficult to get volunteers for military service, and it will certainly be dangerous to impress conscripts. There will be a stronger and more genuine popular demand for disarmament than for most of the desirable provisions of the League Covenant, and Governments dependent on the popular will may find their hands forced. But in the main disarmament must depend on the restoration of confidence; though probably it is true in most cases that if the disarmament comes first the confidence will follow.
II. Markets and Food
The second of these great causes of war, protection and the competition for markets, has somewhat changed its aspect since the comparative exhaustion of the world supplies of food and raw material. Before the war, nations chiefly wanted to sell. Markets were the great object of ambition, and tariff walls the great means of offence. Great Britain, of course, kept her doors everywhere open to the trade of the world. It is one of the decisive marks to her credit in the apportionment of the comparative guilt of the nations in preparing that international atmosphere which made the war of 1914 possible. But if she had chosen at any moment to close her doors, she could have injured grievously every other great nation throughout the globe; and the British Tariff Reform Campaign was one of the excuses used by the German Government to frighten their people into a war spirit. When Austria wished to ruin Serbia she simply put a prohibitive duty on the import of pigs.
Now, since the war, what most nations want is not in the first place markets; it is food and raw materials. They have not, of course, abolished their tariffs, but their first anxiety is to be able to buy food. Austria does not want to keep out Serbian pigs. She begs for them, and Serbia will not let her have them. The most consistently and narrowly protectionist nations, like France or Australia, no longer concentrate on forbidding their neighbours to sell to them. On the contrary, they refuse to sell food and raw material to their neighbours. The policy of keeping the food and raw materials of the British Empire for British consumption is already widely advocated and has powerful champions in the Government. As long as it is confined to palm kernels, this policy, though bad from almost every point of view, is not fatal. But if ever it were to be carried consistently through, it would mean war. The British Empire holds such a vast extent of the earth's surface that it has inevitably given hostages to fortune. So huge an empire can only be tolerated if it behaves tolerably. If we keep to ourselves and use for our own profit all the overwhelmingly large stores of food and raw material which by our vast annexations of territory we now control, thereby reducing other nations first to a stagnation of trade and then to starvation, the natural and inevitable answer to such a proceeding would seem to be a world crusade for our destruction.
This is the chief point, apparently, in which the influence of what is called "capitalism" seems to be a direct cause of war. Great capitalists, or those impersonal organizations of capital which seem likely now to supersede the individual capitalist, are normally strong influences for peace. They need peace for the success of their undertakings and are in danger of ruin if war breaks out. But they do at times stand to gain enormous sums by concessions and monopolies and by control over materials which are the subject of an intense demand from great masses of people. And no doubt one way in which they will seek to get these monopolies and controls is by putting pressure on Governments for so-called patriotic reasons to exclude foreign competition. This is a very real danger.
The Covenant of the League of Nations has not dared to insist on free trade. Obviously it could not, since the majority of the member nations are against free trade. But it does lay down certain rules to check aggressive protection.
All the territories transferred by the war from the possession of Germany and Turkey to their conquerors are subjected to the principle of mandate. They are not held as possessions. They are held "as a sacred trust for civilization" with the express purpose of securing the "well-being and development" of the native populations. In particular, the mandatories agree to guarantee "equal opportunities for the trade and commerce of other members of the League." As the membership of the League is increased, this will practically ensure the "open door" to all nations in the mandated areas. It seems also clearly to forbid the establishment of national monopolies. If a mandatory finds copper-mines or oil-wells in its territory, it is bound to develop them as "a trust for civilization." Any profit it receives must be in the nature of wages for work done. A mandatory may not exclude or hamper the trade of another member of the League by tariffs,[5] much less keep the oil for the exclusive use of itself and its friends, as is at present proposed by England and France in Mesopotamia. The condemnation of this proposal by the Assembly of the League in November, 1920, backed by a vigorous protest from the United States, has, it may be hoped, made such a violation of the Covenant impossible.
In territories not mandated as a result of the war, but otherwise similar to the mandated areas, such as the pre-war colonies of the various Powers, these rules, of course, do not hold. Yet it may be hoped that at least they will be recognized as good rules, to which approximation should be made as circumstances permit.
In all their dealings, moreover, members of the League agree (Article XXIII) to "secure and maintain freedom of communications and of transit, and equitable treatment for the commerce of all members of the League." The language of this article is a little vague. One can trace in it the influence of a struggle. But at least it forbids tariff wars, and it gives the League a handle for interference in case of any very great iniquity. It does not forbid national monopolies; but a monopoly in foodstuffs which came near to inflicting famine on other members of the League would, under it, at least give cause for remark. And no clause, however strong, could in practice be sure of attaining more. The League has to be built out of nations as they already exist, and the rules of the League out of their public opinion. The real danger here, as in so many other cases, lies not in the caution and moderation of the language used in the Covenant, but first in the questionable sincerity of the nations in carrying out the pledges signed by their representatives, and secondly in the possibility that, through ill-will, or fear, or self-interest, or mob-passion, or some other disastrous influence, the ex-enemy Powers be not quickly included in the League. Not until all Central Europe is in the League can the world begin to breathe freely.