"Is it possible to conceive a more absurd situation than that of the wealthiest country in the world, with a vast reserve of high-blooded youth lying idle, and enormous masses of warlike people, Sikhs, Goorkhas, Mahrattas, Zulus, Arabs, Malays, and what not, under our hands 'spoiling for a fight,' while this nation is unprepared to defend its own possessions and its very existence in circumstances which all know to be more than likely to occur? This nation, our nation, might absolutely keep the peace of the world, yet shivers at every breeze of Continental politics."
Dilke's scheme was for a professional army for India and for a citizen army at home, in which the bulk of the infantry would be volunteers, while the special arms and the infantry of two army corps, destined to be an expeditionary force, would be short-service soldiers. It was in its broad outlines a forecast of the actual development that has taken place. In particular he proposed, what was carried out by Lord Haldane's Act, that "the militia should become liable to general service in war, and should be organized and equipped accordingly. The volunteers should be liable to be called out for home defence whenever the two army corps were sent out of the kingdom."
"My first object," he said in conclusion, "has been to point out how seriously our national military strength falls behind our requirements, and how unready we always are, in spite of our huge expenditure. My second object was to show that what we want most is, not a great and expensive increase of the regular army, but an endeavour to make the best possible use of what we have already, by proper organization and by utilizing to the utmost the voluntary principle, which best suits our national temper and that of the colonies…. We stand in presence of new forces the power of which is almost incalculable, and, while I admit that there are in the army a great number of able men, perhaps more than there ever were, capable both of creating new systems and of leading us to victory, I am inclined to think that their characters have been formed in spite of an obsolete and decaying system, and that they are restrained by the incapacity of others and the carelessness of the country from exercising the influence which their talents and energy ought to command. If the question were one of commerce, liberty, or progress in civil affairs, the nation would be interested, and would bring the resources of its accumulated knowledge to bear on the subject. But being, as it is, a question without the right settlement of which neither commerce nor liberty is safe, the public is so little in earnest about it that politicians are allowed to play with it, and the serious needs of self-defence are sacrificed to the poor aim of keeping constituencies in good-humour. Nothing can or will be done by Governments of any party till the nation can be roused to some expression of public opinion; and that opinion has to be formed before it can be expressed. In the reign of force which now prevails throughout Europe, carelessness as to our power of defence is culpable beyond possibility of exaggeration, for we may have to defend not only our individual interests as a nation, but all that enormous influence for the good of mankind which is at present exercised in the remotest parts of the earth by an enormous Empire bent on preventing war and on spreading the blessings of peace."
Coming when it did, The British Army made an impression on the educated public. It followed soon after the report of Sir James Stephen's Commission, which had exposed the chaotic condition of the administration of the army. Dilke revealed a grasp of every branch of the subject. His criticisms reflected the judgment of officers familiar with the branch of service discussed. His proposals were modest and intelligible, and in every case represented some body of competent military opinion. He told the public much that none of his readers fully appreciated at the time. The German army had been largely increased in the spring of 1887, and in the beginning of 1888 a Bill passed the Reichstag which increased by a further 700,000 men the numbers available in case of war. Dilke explained in one of his chapters that, "according to the calculations of the French Staff, the total number of armed men upon which Germany would be able to draw for all purposes would exceed 7,000,000." [Footnote: The British Army, p. 161.] This and other forecasts may startle those readers whose curiosity tempts them to read the volume again in 1917. But the work produced no practical result except to put Dilke into the front rank of army reformers. The Government took no action to remedy the military weakness which everyone recognized. The report of the Stephen Commission remained a dead letter. In June, 1888, a new Royal Commission was issued, in which the Marquis of Hartington, associated with a number of colleagues of Cabinet rank and with a General and an Admiral, was instructed to inquire into the administration of the naval and military departments. The attempt at reform was postponed until these Commissioners should have made their report.
CHAPTER LV
IMPERIAL DEFENCE
I.
Sir Charles Dilke's visit to India in 1888-1889 convinced him that he had been right in believing the Indian army to be better prepared for war than the portion of the army which was kept at home. A great difficulty he now saw was that there were two rival plans of campaign, the one cherished in India, the other by officers at home. "The greater number of Indian officers expect to march with a large force into Afghanistan to meet the Russians, and believe that reinforcements will be sent from England to swell their armies and to make up for losses in the field. On the other hand, the dominant school in England expect to send an expedition from England, in combination with Turkey or some other allied Power, to attack Russia in other quarters." Dilke was led accordingly to the general conclusion that the one thing needful was "that we should try to remove the consideration of these subjects from the home or the Indian or the Canadian point of view, and should take a general view of the possibilities of Imperial defence."
The attempt to take this imperial view was made in Problems of Greater Britain, which Dilke wrote during the remainder of the year 1889. In this work he discussed the defence of the North-West Frontier of India as a prelude to the examination of the defence of the British Empire. His reason for this separate treatment was that "only on this one of all the frontiers of the Empire the British dominion is virtually conterminous with the continental possessions of a great military Power." He showed that the serious import of this condition was understood by all who knew India well and by both the political parties in England. He dissented from the view that security could be obtained by an agreement with Russia, because it was not easy to see "how Russia could put it out of her own power at any moment to threaten us on the North-West Frontier." The suggestion that Russia should be allowed to occupy the northern portion of Afghanistan he rejected, first because it would have been a flagrant breach of faith with the Amir, and secondly because it would give to Russia territory which she could quickly transform into a base of operations against India.
He thought that Russia could not invade India with a good chance of success if she started from her present frontier, but that if she were allowed to occupy the northern portion of Afghanistan the Indian Government would be put to ruinous expense for the defensive preparations which would then be required. [Footnote: 'Lord Dufferin wrote to me from the Embassy at Rome to express his satisfaction with the Indian portion of my book, and especially those passages in which I demonstrated the exceeding folly of which we should be guilty if ever we consented to a partition of Afghanistan with Russia.'] He noted that the policy of advance upon our left, which he had recommended in 1868, had been adopted with success, chiefly by the efficacy of the Sandeman system of recognizing and supporting the tribal chiefs and requiring them to maintain order, and also by the occupation and fortification of the position of Quetta and by the opening of roads from Quetta through the Gomul and other passes to the Indus at Dera Ismail Khan and Dera Ghazi Khan. This would enable an Indian army to attack the right flank of any Russian force attempting to advance along the Khyber line, which would be resisted in the Khyber hills and at Attock, and be stopped at the fortress of Rawal Pindi. Generally speaking, he held that Indian "defence must be by the offensive with the field army, and the less we have to do with fortifications, the better." He urged the extension northwards of the Sandeman system to all the independent tribes between the Indian and the Afghan borders. If the separate armies for the Presidencies were to be united under a single Commander-in-Chief, as the Indian Government had long desired, and if the principle of enlisting in the native army only men of fighting races were fully adopted, and the native Princes induced to place effective contingents at the disposal of the Government, he thought that India with reinforcements from home would be well able to resist a Russian attack starting from the frontier that Russia then possessed.