Ward A.W. The Cambridge History of British Foreign Policy. 1783-1919. Volume 3
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PREFACE
THE
concluding
Volume
of this
History may
seem
to some
of
our
readers to
make
its
appearance
too
soon,
seeing
that on
many
of
the
transactions
narrated
or
questions
discussed
in
it the
time
has not
yet
arrived for
expressing
a
definitive
judgment.
Public
archives
are thrown
open,
and
private
memoirs
made
known
in
rapid
succession,
to
a
breathless
world;
and
at the
very
moment
when
this
Preface
is
being
written,
the
Foreign Policy
of our
country,
seemingly
at
a standstill
of
unprecedented
perplexity,
may
be
on the eve
of
changes
not
less momentous
than
any
discussed
in
the
ensuing pages.
But there
can
be
no
reason for
abandoning
the
conviction
with
which
this work
was
first
taken
in
hand,
that
a
study
of British
Foreign
Policy,
based on
authentic
documents,
is
indispensable
for
an
insight,
however
incomplete,
into
the
problems
engaging
that
Policy
at the
present
day,
and
that the
existing
responsibilities
of its
conductors
to
the
welfare of
our
nation
and
empire,
and
to the
Peace
of the
World,
cannot
be dissociated
from
the lessons
taught
by history
as
to the
endeavours
and the
failures of the
past.
Moreover,
since
the
period
of
European
and
World
politics falling
under
the
particular
range
of
our
Third
Volume
may fairly
be described
as
a
period
of
Congresses
and
Conferences,
designed
to
adapt
the
international relations
between
the Powers
Great
and Small
to
changes
brought
about
by
conflicts
between
Alliances formed
in
the
interests of
particular
States,
so the
future
may
have
in
store
an
age
in
which
those
interests
will
be
reconciled
under the control of other interests
common
to the whole
body
of States
and
peoples,
and in
subjection
to the
predominant
interest of
them
all
—
the Peace
of
the
World. The
establishment
and
development
of
such
a
system,
only
partially
and
tentatively
antici-
pated
in
the
efforts
and
experiments
of
previous periods,
will in
that
event
inevitably
become the
cardinal
task
of British
Foreign Policy.
For
Great Britain
and her
empire
cannot stand
aside
or
play
a
merely
acquiescent
part. They
have
been
called
by
their
history
to
the
position
of
the
foremost
among
European
World
Powers,
and
are
consequently
authorised to
take
a
leading part
in
working
out
what
promises
to
be
the
next
chapter
in
the destinies
of
the World.
The
present
Volume
has,
like
its
predecessors,
benefited
by
the
VI
PREFACE
interest
taken
in
the
progress
of
this
History
as a whole
by
friends
and
well-wishers,
among
whom we should
specially
like
to
repeat
our
acknowledgments
to Lord
Fitzmaurice,
to
the
Right
Hon.
Sir
Ernest
Satow,
G.C.M.G.
and to
Dr
H.
Hall,
late
Assistant
Keeper
of the
Public
Records.
The
private papers
of the late
Sir Andrew
Buchanan,
G.C.B.,
with
the
loan of
which we
were favoured
by
his
relatives,
and
more
especially
Mr
Henry
Mellish,
of Hadsock
Priory,
Worksop,
have continued
to
be serviceable.
They
include
a
Corre-
spondence
extending
from
November
9th
to December
15th,
1870,
concerning
the
repudiation
by
Russia of
the
obligations imposed upon
her
by
the
Convention
of
March
30th,
1856, together
with certain
Letters of
the
previous
October,
showing
Sir
Andrew
to
have been
fully
aware
already
at that
time,
and even
earlier,
of
Prince Gorcha-
kofFs
intention to
press
the wishes of
Russia
upon
the
European
Powers
at the earliest
opportunity.
The
Wallace
Papers,
the
generous
loan
of
which
to
us for the
purposes
of this
work,
has
already
been
gratefully
recorded,
contain
a
number
of Letters
belonging
to
the
period
from
June,
1894,
to
March,
1896,
to
Sir
D. M.
Wallace,
from
Sir
Valentine
Chirol,
when
correspondent
of
The
Times at
Berlin,
which
are of
singular
interest
and have of
course
been referred
by
us
to
their
writer,
the
distinguished
contributor
of
Chapter
IV to the
present
Volume.
As Mr
Algernon
Cecil's
summary analysis
in
the
Table
of Con-
tents
will
show,
the
Chapter
(VIII)
on
The
Foreign Office
in
this
Volume,
from
its
own
point
of
view,
covers the
whole
ground
of our
work.
Its
proper place
seemed, therefore,
to
be
at
the end of the
narrative
chapters (including
the
Epilogue,
which
deals,
for
many
reasons
in
summary
fashion,
with
the
course of
the World
War and
the
circumstances and
conditions of the
Peace
which
brought
it
to a
close).
The
complex
task
of
critically
surveying
a field at once
so
wide
and in
several
respects
so
contentious
called
for
independence
of
judgment
as
well as
fulness
of
knowledge.
In
acknowledging
the
advantages
derived
by
our
contributor from
distinguished expert
information
and
counsel,
we
desire,
on
his
behalf as
well as
on
our
own,
to
state
explicitly
that
no
responsibility
of
any
sort rests with
those to whose
assistance
he is
indebted. With
this
proviso,
we
are
requested by
Mr
Algernon
Cecil
to
acknowledge
the
kind
assistance
of
the Earl
of
Balfour,
K.G.,
late
Secretary
of State for
Foreign
Affairs
and
Chancellor of
our
University,
the late
Lord
Sanderson,
G.C.B.,
Lord
Carnock of
Carnock,
G.C.B., G.C.M.G.,
Sir
Algernon
PREFACE
vii
Law,
K.C.M.G., C.B.,
Sir
W.
E.
Davidson, K.C.M.G., C.B.,
the
Marquis
of
Lansdowne,K.G.,
the
Right
Hon.
Lord
Robert
Cecil, M.P.,
Lord
Eustace
Percy,
M.P.,
Lady
Gwendolen
Cecil,
and others.
Our
thanks
are
again
due
to
Miss A. D.
Greenwood,
a
I
historian
in
her own
right,
for
supplying
the
Index
to this Volume as she
has
to
its
predecessors
;
to
Mr A.
T.
Bartholomew,
Assistant Librarian of
the
University,
for
varied
help,
and
to
Miss
Pate,
for
her
indefatigable
aid
in
preparing
this
Volume
for
the
Press.
Finally,
in
once
more
recording
our
gratitude
to
the
Syndics
of
the
University
Press,
and
to
the
whole
body
of its
workers,
for
entering
upon
and
carrying
through
the
publication
of
this
History,
we cannot
but
call to
mind
at least
one
side
of the
very
serious
difficulties
with
which
of
late
they
have
had
to meet
in all
their under-
takings.
In
the
Preface to our Second Volume we referred
to
the
lamented
death of the late
Secretary
of
the
Syndicate,
Mr A. R.
Waller,
whose work
has since been taken
up
by
a
trusted
successor.
More
recently,
the
death of
the
University
Printer,
Mr
J.
B.
Peace,
Fellow
of
Emmanuel
College,
has
inflicted another
grievous
loss
upon
our
Press
and
the
University
whose best interests it serves.
May
we add that the sorrow which these events
have caused
through-
out
the
Press,
and
the
sympathy
with
which
has been
shared
by
the
University
at
large,
attest the
intimacy
of
cooperation
long
notable
in
the
history
of
an
institution
indissolubly
bound
up
with the
past,
present
and
future of
Cambridge
?
A.
W. W.
G. P.
G.
March,
1923
CORRIGENDA
Vol. II.
p.
16,
1.
ii from bottom.
For
Chapter
III read
Chapter
VI.
p.
430
note.
For C.
IX read
C. VIII.
p.
525,
note
1,
line
2.
For
ceded in return
read
retained
possession
of.
Vol.
III.
p.
203,
line
27.
For as
read
a*.
p. 505,
line
4.
For
of
Belgium
read io
Belgium.
p. 538,
line
9.
For Kamel
read
Kemal.
p. 556,
line
9.
For between read zwZ/z.
CONTENTS
BOOK
IV
FROM
THE
THIRD
MINISTRY
OF LORD DERBY
TO THE
FIRST
MINISTRY
OF
LORD
SALISBURY,
1866-1886
CHAPTER
I
NEUTRALITY,
1866-1874
A.
Neutrality
in Continental Affairs
1866-1874
By
C.
R.
M.
F.
CRUTTWELL,
M.A.
Fellow and
Tutor of Hertford
College,
Oxford
I.
The
Austro-Prussian
War
and
the
Conference
of
London,
1
866-1
867
Attempts
of Liberal Cabinet
to
prevent
War.
Abortive
French
Proposal
for
European
Congress.
Derby's
Government maintains
Neutrality.
The
Luxemburg
Incident. Franco-Prussian War
averted
by
Conference of Lon-
don.
Value of Collective Guarantee
page
3
II.
The
Abyssinian
Expedition,
1868
Attitude
of Theodore towards British
Demand for Release of
Captives.
The
Rassam
Mission.
Organisation
and Results of the
Expedition
.
16
III.
The Franco-German
War,
1870
Liberal
Foreign Policy
outlined
by
Gladstone,
1869. Increasing
Friction
between France
and
Prussia.
Clarendon's
Attempt
to
negotiate
a Limitation
of Armaments. Reasons for its
Failure. Death
of
Clarendon. Granville
at
the
Foreign
Office.
The
Hohenzollern
Candidature. Abortive
Negotiations.
Allegation
that Great
Britain could
have
prevented
War
examined. British
Policy
towards
Belgium,
1
866-1
870
20
IV.
The
Franco-German War and
the
Conference
of
London,
1871
The
Treaties
to secure
Belgian
Neutrality.
The
League
of Neutrals. The
Thiers
Mission.
Alsace-Lorraine.
The
GortchakorT
Circular.
Odo Russell
and
Bismarck. The
Conference of
London.
Its Results
considered. The
New Orientation of
Europe
40
x
CONTENTS
B.
Sea-Policy
and
the
Alabama Claims
By
Professor
J.
E.
G.
de
MONTMORENCY,
M.A., LL.D.,
Peterhouse
Quain
Professor
of
Comparative
Law
in
the
University
of London
Outbreak
of
the
North
American
Civil
War,
April,
1861.
The Political
and
Social
Repercussion
in Great
Britain of
the
War. The War
at Sea. The
Position
in
Liverpool.
The s.s.
Alabama
[No.
290].
Inaction of
Lord
John
Russell.
Action
of
Mr C.
F.
Adams
(United
States Minister in
London).
History
of
the
Anglo-American
Doctrines
of
Contraband,
Blockade and
Neutrality.
Tension
in
1870
between
Great
Britain
and
the United
States.
The
High
Joint
Commission
of
1871.
The
Treaty
of
Washington, 1871.
The Three Rules
of
Neutrality.
The Indirect Claims. The
Geneva Arbitra-
tion, 1872 54
CHAPTER
II
FORWARD POLICY
AND REACTION
1
874-1 885
By
WILLIAM
HARBUTT
DAWSON
I.
The "Forward"
Policy
in Central
Asia,
1874-1880
The
Indian North-
West Frontier Problem. Relations with
Afghanistan.
The Russian Advance.
Acceptance
of the Oxus as the
Northern
Frontier
of
Afghanistan,
1873.
"Forward"
Policy
proposed
by
Lord
Salisbury
and
resisted
by
Lord Northbrook
(Viceroy), 1875.
Appointment
of
Lord
Lytton.
The Peshawur
Conference.
Growing
Distrust of the
Ameer,
Shere Ali.
Russia concludes
a
Treaty
with
Afghanistan.
Repulse
of
a
British
Mission
to
Kabul. Ultimatum and
Invasion of
Afghanistan
and
Treaty
of
Gandamak,
May,
1879.
Massacre of the British Mission
at
Kabul,
July, 1879.
Settlement
of
the
Country
under Abdur Rahman
. . . .
. .
72
II.
The
Reopening of
the
Eastern
Question,
1
875-1877
Revolt in
Herzegovina
and
Bosnia,
July, 1875.
The
Andrassy Note,
December
30th,
1875
'>
Joint
Acceptance
by
the
Powers. Inaction of the Porte. The
Berlin
Memorandum,
May
13th, 1876;
its
Rejection
by
the British
Government.
Deposition
of Abdul
Aziz and
Succession
of
Abdul
Hamid II. The
Bulgarian
Atrocities,
May,
1876,
and
Gladstone's
Crusade. The abortive
Constantinople
Conference
...........
91
III. The
Russo-Turkish
War and the
Treaty of
San
Stefano,
1877-1878
Russian Declaration
of
War
against
Turkey,
April, 1877.
GorchakofFs
Circular Letter and
the
British
Government's Attitude. Conclusion of
Anglo-
Austrian
"
Moral
Understanding,"
July
26th, 1877.
Outbreak of
"Jingoism
"
in
England,
and
Menace of
War.
Treaty
of
San Stefano.
The
Salisbury
Note
of
April
1st,
1878
115
IV.
The
Berlin
Congress
and its
Issues,
1
878-1
880
Proposals
for a
Conference
of the
Treaty
Powers. The
Salisbury-
Schouvaloff,
Vienna
and
Cyprus
Conventions.
The
Congress
and
Treaty
of
Berlin.
First
Overtures for an
Anglo-German
Alliance,
September, 1879.
Execution""
of the
Treaty
of Berlin
132
CONTENTS
xi
V.
The
Reorganisation
of Egypt:
the
Dual
Control,
1
875-1
880
Egyptian
Indebtedness
under Ismail. Purchase
of the
Suez Canal
Shares.
Institution
of
the
Caisse de
la
Dette
publique
and the
Financial
Commission
of
Control,
1877-1878.
Formation
of
a
Constitutional
Cabinet.
Ismail
rejects
the
Financial
Reform
Scheme,
and is
superseded
by
Tewfik,
June
26th,
1879.
The Law
of
Liquidation
154
VI.
The
British
Occupation of
Egypt,
1
879-1
883
Extent
of the
Foreign Population
and
Bureaucracy.
Abuse of the
Capitula-
tions.
Military
Riot in
Cairo,
and
Emergence
of
Arabi
Pasha.
French
Influ-
ence
in
Egypt,
and Gambetta's
Policy.
Revolution and Massacre
of
Europeans
at
Alexandria, June
1
ith,
1882.
Conference
of the Powers
at
Constantinople.
Bombardment of
Alexandria.
The
Wolseley Expedition
and the Battle of
Tel-
el-Kebir,
September I2th-i3th.
Lord DufTerin's Mission
to
Cairo and
his
Scheme of
National
Reorganisation 163
VII.
The
Rebellion
in the Soudan and
the
Gordon
Mission,
1
883-1
885
Rise of the
Mahdi,
and Insurrection in the
Soudan.
Massacre of the
Hicks
Pasha
Expedition,
November
5th, 1883. Proposals
for the Withdrawal
of
the
Egyptian
Garrisons.
The Gordon Mission. Lord
Wolseley's
Relief
Ex-
pedition.
Fall
of
Khartoum and Death
of
Gordon,
January 25th,
1885
176
BOOK
V
THE
SECOND AND
THIRD
SALISBURY
ADMINISTRATIONS AND AFTER
1
886-1
907
CHAPTER III
IMPERIAL
POLICY IN THE OLD
AND THE
NEW
WORLD
1
885-1 899
By
WILLIAM
HARBUTT
DAWSON
I.
Frontier Disputes in
Central
Asia
A.
The
Afghan
Boundary
Delimitation,
1
884-1895
Russian
Advance
to
Merv and
Sarakhs.
Appointment
of an
Anglo-Russian
Boundary
Commission, August,
1884.
Collision
between Russian and
Afghan
Forces at
Penjdeh.
Definitive
Delimitation of
the
Afghan
Frontier,
July,
1887
187
B.
Annexation
of Upper
Burma,
1
878-1
886
French "Pacific
Penetration" of
Upper Burma,
and
British
Annexation,
January
1st,
1886
.193
C.
Disputes
with France
concerning
Siam,
1
889-1904
French
Designs against
Siam
;
the
Franco-Siamese
War,
and British Media-
tion.
Disputes
with
France
regarding
the
Mekong Region
. .
196
<
VI
J
\J
xii
CONTENTS
II.
The European
Partition
of
Africa;
Heligoland and
Madagascar,
1850-1904
Attitude
of British
Governments
towards
Imperial
Expansion
in the
Middle
of
the
Century.
The
Shepstone
Mission and
the
Annexation
of the
Transvaal,
\
April
1
2th, 1877.
Despatch
of Sir
Bartle
Frere
to the
Cape,
and
the Zulu
\
War, 1879.
Proclamation
of
the South African
Republic;
the Boer
War;
\
I
the
Disaster
of
Majuba
Hill
(February,
1881),
and
the
Pretoria
Convention
(August
3rd).
Belgian
and
French
Acquisitions
in
Central
Africa,
and
German
Activity
in South-West
and
West Africa and
the
Pacific.
The
Congo
Conference
and
Treaty.
British
Dispute
with
Portugal.
German
and British
Rivalry
in East
Africa.
The
Zanzibar-Heligoland
Convention,
July
1
st,
1890.
Aggressive
Action of
France in
Madagascar,
leading
to
the
Annexation of the
Island,
and the
Repudiation
of British
Treaty
Rights,
1882-1896
200
III.
Territorial
Settlements
with
the
United
States,
1
887-1
901
A.
The Venezuela
Boundary
Dispute,
1887-1899
Revival
of the Venezuela
Boundary Dispute,
and
Intervention of
the
American Government.
The
Olney-Salisbury Correspondence,
1895.
Ap-
pointment
of a Court
of
Arbitration,
and its
Award,
1
897-1
899
.
222
B.
The
Behring
Sea
Fishery
and Alaska
Disputes,
1
893-1899
.
226
C.
The Panama Canal
Treaties,
1
899-1
901
American Panama
Canal
Scheme and the
Clayton-Bulwer Treaty.
The
Pauncefote-Hay
Treaty,
November
18th,
1901
....
227
IV. Foreign Encroachments in
China,
1885-1898
Proclamation of a French
Protectorate over Annam and its
Dependencies,
leading
to War with
China,
1885.
Great Britain
occupies
Port Hamilton
(April, 1885),
but
withdraws two
years
later
(February,
1887).
The Corean
War
between
Japan
and China and
the
Treaty
of
Shimonoseki,
April 15th,
1895. Anti-foreigner
Riots
in
China,
and
Murder of German
Missionaries,
August, 1897.
Germany
seizes
Kiaochow;
Russia
occupies
Port Arthur and
Talienwan,
and Great
Britain obtains a
Lease of
Wei-Hai-Wei .
228
(
V.
ill!
^fulfilled Provisions
of the
Treaty of Berlin
A.
The Armenian
Question,
1
894-1
904
Turkey's
Refusal of
Reforms to
Armenia;
Massacres in
July,
1894.
The
Governments
of Lords
Rosebery
and
Salisbury
fail
to secure Effectual Action
by
the
Powers.
Further
Massacres in
1896
233
B.
Crete and the
Graeco-
Turkish
War,
1878-1898
Mussulman
Attacks
on
Christians in
Crete,
followed
by
Greek
Invasion
of
the
Island and
the
Graeco-Turkish
War
(1897).
Evacuation of
Crete
by
the
Turks and
Appointment
of
Prince
George
of Greece
as
High
Commissioner
by
the Powers
237
CONTENTS
Xlll
VI.
Reconquest
of
the
Soudan and the
Fashoda
Dispute,
1885-
1899
Negotiations
with
Turkey
for the Conditional Withdrawal
of
British
Troops
from
Egypt,
and Sir H. D. Wolff's
Missions,
1885
and
1887.
French
Attempts
to oust Great
Britain from
Egypt;
Bismarck
refuses
to
assist,
November,
1886. Further Alliance Overtures
by
Bismarck to
Lord
Salisbury.
The
Re-conquest
of the
Soudan,
1
896-1
897.
France
attempts
to
establish
herself
on the
Upper
Nile;
the Marchand
Mission
to
Fashoda,
and
French
Withdrawal under
Pressure, 1898.
Establishment of an
Anglo-Egyptian
Condominium
in
the
Soudan .
. . .
.
.
.
242
VII.
The First
Hague
Peace
Conference,
1899
Growth of
the Idea
of
International
Arbitration.
Peace Conference
con-
vened
by
the
Tsar
Nicholas
II
;
Creation
of a Permanent
Arbitration Tribunal
at The
Hague. Appreciation
of Lord
Salisbury
as
Foreign Secretary;
his
Moderating
Influence
in
International
Relations;
Secret of
his
Reputation
abroad
258
CHAPTER
IV
THE
BOER WAR AND
THE INTERNATIONAL
SITUATION
1
899-1
902
By
Sir
VALENTINE
CHIROL
zP
\l.
The
Jameson
Raid
and the
South African
War,
1
895-1902
Difficulties
in the Transvaal. The
Jameson
Raid. William
H's
Telegram
to
Kruger.
Increasing
Tension.
Kruger's
Declaration of War.
South
African
Campaign.
Peace
of
Vereeniging
263
I
II.
The International
Situation at
the
Outbreak
of
War,
1
899
^Europe
and the
South African
War. The
T^eutral
Powers.t'German
Colonia
D
Expansion.
Continental Public
Opinion.
JVnti^
Brjtish
Feeling
in
German^
.r,
Willia
m
II
and Lord
Salisbury*.
Chamberlain's Views
on
Anglo-German
*
Relatioi)?
.
266
III.
Anglo-German
Negotiations,
1898-1901
William II
at Windsor in
1899.
Chamberlain
and Bulow.
Seizure
of
German Mail
Steamers.
The
German
Navy
Bill.
Anglo-German
Agreement
concerning
China. The
Eckardstein
Conversations
in London
on an
Anglo-
German
Alliance.
Billow's
"biting
on
granite" Speech.
Fresh Outburst
of
Anglophobia.
The
Emperor's
Ill-humour. The Failure of the
London
Con-
versations
276
IV.
The
Anglo-Japanese
Alliance,
1898-1902
The
Origins
of
the
Anglo-Japanese
Alliance.
British
Relations
with
Japan.
The Boxer
Rising.
The
Open
Door in
China. Russian
Pressure
at
Peking.
The
Manchurian
Issue. The
Anglo-Japanese
Agreement.
The
Effect
upon
European
Relations
286
xiv
CONTENTS
CHAPTER V
CONTINENTAL
AGREEMENTS
i
902-1907
By
G.
P.
GOOCH,
M.A.,
Trinity
College;
Litt.D.
/TN3reat
Britain
and
Germany,
1
902-1905
Anglo-German
Co-operation
in .Venezuela. Great
Britain declines toco-
operate
in the
Bagdad
Railway.
The Results
of
Canadian
Preference.
The
Construction
of a German
Navy
294
(fl^\
Great
Britain
and
France,
1902-1904
King
Edward visits
Paris, 1903.
The
Anglo-French
Arbitration
Convention.
The
Treaties
of
April
8th,
1904.
Egypt
and Morocco. French Concessions
in
regard
to
the Newfoundland
Fisheries.
British Concessions in West
Africa.
Madagascar,
Siam,
the
New Hebrides ....
305
|fft.)
Great
Britain
and
Russia,
1
900-1905
Lord Curzon's
Visit
to the Persian Gulf.
The
Younghusband Expedition
to
Lhasa.
The
Dane Mission to
Cabul. The
Russo-Japanese
War.
The Russian
Volunteer
Fleet interferes
with British
Shipping.
The Renewal of the
Anglo-
Japanese
Alliance. The
Treaty
of
Bjorko 319
IV.
The
Conference
of
Algeciras,
1904-1906
The Kaiser's Visit to
Tangier.
The
Secret
Treaties of
1904.
The
Fall of
Delcasse
and the
alleged
British Offer of an Alliance with
France.
Anglo-
French
Military
Conversations
begin.
The
Conference
of
Algeciras 338
V.
The
Second Hague
Conference,
1
906-1908
Campbell-Bannerman's
Appeal
in the Nation for a Reduction
of Armaments.
Sir
Edward
Fry's
Speech
at the
Hague.
The Plan of an
International
Prize
Court
349
VI.
The
Entente with
Russia,
1905-1907
Great Britain contributes to
Witte's
Loan,
1906.
The
Anglo-Russian
Con-
vention of
August
31st, 1907.
Persia,
Afghanistan,
Tibet. Lord Curzon's
Criticisms
...........
356
VII.
The
Congo,
1
891-1907
The first
Debate
in
Parliament,
May
20th,
1903.
Consul Casement's
Report.
The
Belgian
Commission of
Enquiry
.
. .
. . .
366
VIII.
Macedonia,
1901-1907
The
Austro-Russian
February
and
Miirzsteg Programmes
of
1903.
The
Gendarmerie under
European
Officers.
Lord
Lansdowne secures
a
Financial
Commission
373