The international police force.
But however highly we estimate the potentialities of the boycott as a valuable adjunct to the pressure of public opinion in compelling obedience to treaty obligations, it is idle to pretend that the confidence required to induce the chief nations to rely upon the due performance of these obligations by all their co-signatories will be possible without placing at their disposal, for use in the last resort, an adequate armed force to break the resistance of an armed law-breaking State. Somewhere behind international law there must be placed a power of international compulsion by arms. If that force were really adequate, it is probable that it would never be necessary to employ it for any purpose save that of repelling invasions or dangerous disorders on the part of outsiders. Its existence and the knowledge of its presence might suffice to restrain the aggressive or lawless tendencies which will survive in members of the League. But in the beginnings of the organization of international society it is at least possible, perhaps likely, that some dangerous outbreak of the old spirit of state-absolutism should occur, and that some arrogant or greedy Power, within the circle of the League, might endeavor to defy the public law.
For the States entering such a League will be of various grades of political development: some may enter with reluctance and rather because they fear to be left out than because they believe in or desire the success of the League. It is idle to imagine that a society starting with so little inner unity of status and of purpose can dispense entirely with the backing of physical force with which the most highly evolved of national societies has been unable to dispense.
How constituted.
What form, then, should the required international force take, and who should exercise it?
The proposal to endow some executive international body with the power of levying and maintaining a new land and sea force, superior to that of any Power or combination it may be called upon to meet, scarcely merits consideration. Apart from the hopelessness of getting the Powers to consent to set up a Super-State upon this basis, the mere suggestion of curing militarism by creating a large additional army and navy would be intolerable. Nor is it any more reasonable to expect the Powers to abandon their separate national forces, simply contributing their quota towards an international force under the permanent control of an International Executive. No such abandonment of sovereign power, no such complete confidence in the new internationalism, could for a long time to come be even contemplated. Each nation would insist upon retaining within its own territory and at its own disposal the forces necessary to preserve internal order and to meet at the outset any sudden attack made from outside. It is evident, in other words, that the forces required by the International League in the last resort, for the maintenance of public law and the repression of breaches of the treaty, must be composed of contingents drawn upon some agreed plan from the national forces and placed for the work in hand at the disposal of an international command. Such armed cooperation is, of course, not unknown. Several times within recent years concerted action has been taken by several European Powers, and though the Pekin expedition in 1900 cannot be regarded as a very favorable example, it illustrates the willingness of Powers to act together for some common end which seems to them of sufficient importance. Is it too much to expect that the nations entering the Confederation will realize with sufficient clearness the importance of preserving the integrity of their international agreement to be willing to entrust a permanent executive with the duty of commandeering the forces necessary to achieve this purpose when they may be required?
Armies and navies must be held in trust for the world-community. Each nation would get more security at less cost.
It will doubtless be objected that there is a world of difference between the occasional willingness of a group of Powers to take concerted action upon a particular occasion, for which each reserves full liberty of determination as to whether and to what extent it will cooperate, and the proposal before us. It is absurd, we shall be told, to expect that States bred in the sense of sovereignty and military pride will seriously entertain a proposal which may bring them into war in a quarrel not specifically theirs and compel them to furnish troops to serve under an international staff. But many events that have seemed as absurd are brought to pass. A few decades ago nothing would have seemed more absurd than to suppose that our nation would be willing to equip an Expeditionary Force of several million men to operate upon the Continent under the supreme control of a French general. Whether, in fact, such cooperation as we here desiderate is feasible at any early period will depend upon two factors: first, the realization on the part of Governments and peoples of the civilized world of the supreme importance of the issue at stake in this endeavor to lay a strong foundation for the society of nations; secondly, the diminution in the influence of militarism and navalism as factors in national life that is likely to occur if sufficient belief in the permanence and efficacy of the new arrangement is once secured. If nations can be brought to believe that national armies and navies are too dangerous toys to be entrusted to the indiscretion of the national statesmen and generals, and are only safe if they are held in trust for the wider world community, this conviction will modify the surviving sentiments of national pride and national pugnacity and make it easier to accept the new international status. Moreover, if, as the first-fruits of the new order, a sensible reduction of national armaments can be achieved, this lessening of the part which armed force plays within each national economy will be attended by a corresponding increase in the willingness to place the reduced forces at the international disposal. For the root motive of the international policy is the desire of each nation to get a larger amount of security at a smaller cost than under the old order. Those, therefore, who confidently assert that States will not consent on any terms to entrust their national forces to an international command for the maintenance of the treaty obligations under the proposed scheme in effect simply assert the permanency of the reign of unreason in the relations between States.
For though the general agreement of States to submit their disagreements to processes of arbitration and conciliation with pledges to abide by the results would be a considerable advance towards better international relations, even if no sanction beyond the force of public opinion existed to enforce the fulfilment of the obligations, it would not suffice to establish such confidence in future peace as to secure any sensible and simultaneous reduction of armed preparations. No Government would consent to any weakening of its national forces so long as there was danger that some Power might repudiate its treaty obligations. This being the case, the burdens and the perilous influences of militarism and navalism would remain entrenched as strongly as before in the European system, advertising, by their very presence, the lack of faith in the efficacy of the new pacific arrangements. So long as these national armaments remained unchecked the old conception of State absolutism would still survive. There would still be danger of militarist Governments intriguing for aggression or defense in new groupings, and new efforts to tip the balance of armed power in their favor.
It is ultimately to the dread and despair of this alternative that I look for the motive-power to induce nations to make the abatements of national separatism necessary to establish an international society. Whether the end of this war will leave these motives sufficiently powerful to achieve this object will probably depend upon the degree of enlightenment among mankind at large upon the old ideas of States and statecraft.