§1. Democracy and Peace.—First of all, the main assumption made by Englishmen who advocate the democratisation of foreign policy is that international peace would thereby be assured. True, the extension of the democratic principle is to many men an end in itself, quite apart from the question whether it tends to peace. But great masses of men are not moved to make political demands merely by theoretical considerations; it is the pressure of definite and imminent evils which arouses them to action. In the case of England the demand for greater democratic control in the sphere of foreign policy arose in large measure from the sudden realisation, in the late summer of 1911, at the time of the so-called Agadir crisis, that war between this country and Germany was a possibility with which English statesmen and the English people had to reckon. We had felt the breath of war actually on our cheek, and a large section of English sentiment revolted from it. A demand was raised for a democratic policy of peace. Three years later, on August 3, 1914, when Parliament met to decide the happiness or sufferings of the quarter of the human race comprised in the British Empire, the same demand was voiced in a series of speeches which accurately expressed the belief that peace was the policy of the people, while war was the secret aim of their rulers. Mr. T. Edmund Harvey, M.P., spoke as follows:
"I am convinced that this war, for the great masses of the countries of Europe, and not for our own country alone, is no people's war. It is a war that has been made … by men in high places, by diplomatists working in secret, by bureaucrats who are out of touch with the peoples of the world, who are the remnant of an older evil civilisation which is disappearing by gradual and peaceful methods."
Mr. Ponsonby, M.P., spoke in the same sense:
"I trust that, even though it may be late, the Foreign Secretary will use every endeavour to the very last moment, disregarding the tone of messages and the manner of Ambassadors, but looking to the great central interests of humanity and civilisation to keep this country in a state of peace."
Democracy means peace;—can we accept this assumption? Contrasts are sometimes illuminating, and it may be well to turn from the Parliamentary debate of August 3 to an article written sixty-two years ago in an English review by the greatest democrat of his time. In April 1852 Mazzini published in the Westminster Review an appeal to England to intervene on the Continent in favour of the revolutionary movements in progress there since 1848. The following is an extract from that article:
"The menace of the foreigner weighs upon the smaller States; the last sparks of European liberty are extinguished under the dictatorial veto of the retrograde powers. England—the country of Elizabeth and Cromwell—has not a word to say in favour of the principle to which she owes her existence. If England persist in maintaining this neutral, passive, selfish part, she will have to expiate it. A European transformation is inevitable. When it shall take place, when the struggle shall burst forth at twenty places at once, when the old combat between fact and right is decided, the peoples will remember that England had stood by, an inert, immovable, sceptical witness of their sufferings and efforts…. England will find herself some day a third-rate power, and to this she is being brought by a want of foresight in her statesmen. The nation must rouse herself and shake off the torpor of her Government."
Mr. Ponsonby appealing in the name of the people to Sir Edward Grey to stand aloof from European war; Mazzini appealing in the name of the people to the respectable, peaceable, middle classes of England to forsake Cobden's pacifist doctrines and throw England's sword into the scale of European revolution—it is a strange contrast which serves to remind us that the word "democracy," so lightly bandied about by political parties, has many different meanings and has stood for many different policies. It may be roughly said that it stood for internationalism in 1792, when France claimed as her mission the liberation of all nations under the tricolor; it stood for nationalism in 1848 in the mouth of Mazzini, Kossuth and the German constitutional party; to-day it again stands for internationalism in the more advanced countries of Europe, but are we justified as yet in calling this more than a phase in the development of democratic doctrine? It is a very difficult question, which it would be presumptuous to try to answer offhand; all we have tried to show here is that, on the whole, the assumption as to the peaceful tendencies of a democratic foreign policy is a doubtful one, on which we must to some extent reserve our judgment.
§2. Foreign Policy and Popular Forces.—The above considerations will help us to appreciate at its true value the second main assumption which lies behind the demand for increased democratic control of foreign policy—namely, the assumption that the stuff of international politics is at present spun from the designs of individual statesmen, and has no relation to the needs of the peoples they govern. Stated thus, this idea will not bear examination for a moment. The doctrine of the "economic interpretation of history," which has received perhaps its most emphatic expression in the teaching of Marxian socialists, is now in one form or another accepted by all thinking men. But "economics" is after all a rough name for the sum of the ordinary needs and efforts of every single human being, and the economic interpretation of history means that the history of the world is in the long run determined by the cumulative force of these humble needs and efforts. This and this alone is the real stuff of international politics. Statesmen may attempt to found systems, but the only real force in international as in domestic politics is the education of the individual man's desires. It is indeed open to any critic to say that our present capitalist economic system is responsible for war because it dams up and diverts from their true channels the needs and the efforts of the mass of mankind. But to this an Englishman may fairly answer that the free trade system under which our capitalist organisation has reached its greatest development was built up by the Manchester School with the sincere and avowed object of introducing universal peace. Cobden avowed this object clearly:
"I see," he said, "in free trade that which shall act on the moral world as the law of gravitation in the universe, drawing men together, thrusting aside the antagonism of race and creed and language and uniting us in the bonds of eternal peace… I believe that the desire and motive for large and mighty empires, for gigantic armies and mighty navies … will die away."
Yet, in spite of these aspirations, great wars have come to England, not once, but at least three times, since these words were spoken, and armaments are immeasurably larger than ever before.