When Lord Milner saw, before the Bloemfontein Conference, that the situation was becoming dangerous—and still more after the Conference—he desired that preparations for war should be made by the Imperial Government as a precautionary measure. Between December 1st, 1896, and December, 1898, the South African garrison had been raised from 5,409 to 9,593 men.[77] It remained at a little under 10,000 up to the end of August, 1899. Lord Milner had repeatedly impressed upon the Home Government, from the middle of 1897 onwards, that 10,000 men was the minimum force consistent with safety. In view of the increased tension after Bloemfontein and of the enormous armament of the South African Republic, he felt that this minimum had become inadequate, and that it was desirable, and would strengthen the chance of a peaceful submission of the Boers, to steadily but unostentatiously increase the garrison. And what he desired especially was that the general on the spot should do, locally and quietly, all that could be done to advance these preparations. The measures which he urged were that plans should be prepared for the defence of Kimberley and other towns on the colonial borders, and that all supplies and material of war necessary to put these plans into effect should be accumulated, and, as far as possible, distributed.
General Butler's objections.
General Butler, as we have seen, was opposed to all preparations for war; and it is not surprising, therefore, that everybody who offered assistance, or advice on the military situation, was coldly received by him. Mr. (now Sir) Aubrey Wools-Sampson, who, after the failure of the Bloemfontein Conference, threw up lucrative civil employment in Rhodesia in order to come to the Cape and place himself, as a volunteer, at the service of the military authorities in the event of war, was so completely discouraged that he went to Natal to form the nucleus of the splendid fighting force afterwards known as the Imperial Light Horse. When Colonel Nicholson, then head of the British South Africa Police in Rhodesia, suggested that, in the same event, an attack on the Transvaal, launched from the north, might prove valuable as a means of diverting a portion of the Burgher forces from employment against the Cape Colony and Natal, General Butler is said to have looked upon his proposal as another Jameson Raid.[78] And when, after the Bloemfontein Conference had been held, the Home Government, in response to Lord Milner's repeated appeals, proposed to send out the very inadequate reinforcements which formed its first effort to strengthen the British military position in South Africa, General Butler immediately represented to the War Office that these additional troops were unnecessary, and protested against their being despatched.
General Butler's action at this crisis is so remarkable, and so unprecedented, that the circumstances must be related with some precision. In 1896, and again in 1897, General Goodenough had submitted to the War Office schemes for the defence of the British colonies, in which both the enormous extent of the frontiers to be protected and the great numerical superiority of the burgher forces to the then existing British garrison were fully exhibited. A memorandum of the Department of Military Intelligence, dated September 21st, 1898, urged "that defence schemes should be drawn up locally for the Cape and Natal"; that "the arrangements which would be made for the despatch of reinforcements from England, and for the provision of supplies and transport, be worked out fully in the War Office; and that the General Officer Commanding, South Africa, be informed what action under these arrangements would be required of him on the outbreak of war."[79] On December 21st, 1898, General Butler, upon succeeding to the South African command, was requested to furnish, at an early date, a fresh scheme of defence embodying his own proposals for the distribution of the 9,500 British troops then in South Africa in the event of war. At the same time the latest information as to the military strength of the two Republics—showing, among other things, a total of 40,000 burghers[80]—was forwarded to him, and his attention was directed to the fact that the troops under his command must be considered as a purely defensive force, whose rôle would be to repel invasion pending the arrival of reinforcements from England. In the absence of any reply to this communication General Butler was again requested, on June 6th, 1899 (i.e. after the failure of the Bloemfontein Conference), to report on the defence of the British colonies. He then sent his scheme of defence, cabling the substance in cipher, on June 9th, and sending the text by despatch on June 14th. On June 21st he received a War Office telegram informing him that it had been decided to "increase the efficiency of the existing force" in South Africa. And to this communication was added the question: "Do you desire to make any observations?"
"Ringing the War Office bell".
The sequel can be given in General Butler's words: "I looked on the one side," he said, in giving evidence before the War Commission, "and I saw what seemed to me a very serious political agitation going on with a Party that I had not alluded to yet, whom I had always looked upon as a Third Party; they were pressing on all they knew. The Government did not seem to be aware of that, and this telegram brought matters to such a point that I thought it gave me the opportunity to speak. So I took these words 'any observations,' and answered in a way which I thought would at least ring the War Office bell."
The telegram with which General Butler "rang the War Office bell" was this:
"You ask for my observations: present condition of opinion here is highly excited, and doubtless the news quoting preparations referred to in your telegram, if it transpires, will add largely to the ferment which I am endeavouring to reduce by every means. Persistent effort of a party to produce war forms, in my estimation, gravest elements in situation here. Believe war between white races, coming as sequel to Jameson Raid, and subsequent events of last three years, would be greatest calamity that ever occurred in South Africa."
This telegram elicited the following reply from the Home Government:
"You cannot understand too clearly that, whatever your private opinions, it is your duty to be guided in all questions of policy by the High Commissioner, who is fully aware of our views, and whom you will, of course, loyally support."