Speeches on Questions of Public Policy by Richard Cobden
[In the year 1849, the revolutionary or reforming spirit, which had agitated Europe for a year before, was either repressed by violence, or had grown languid by reaction, Among the events, however, which excited the feelings of the English people strongly, was the armed intervention of Russia in the affairs of Hungary, and in support of the despotism of Austria. There is little doubt that the indignation which was roused in England at this act of the Emperor Nicholas, gave strength, a few years subsequently, to the feeling which prompted the Crimean War. Mr. Cobden on both occasions pleaded for the adoption of a principle of non-intervention. On the present, his motion, which ran, 'That an humble address be presented to Her Majesty, praying that she will be graciously pleased to direct her Principal Secretary of State for Foreign Affairs to enter into communications with Foreign Powers, inviting them to concur in Treaties, binding the respective parties, in the event of any future misunderstanding, which cannot be arranged by amicable negotiation, to refer the matter in dispute to the decision of arbitrators,' was rejected by moving the previous question. Majority, 97 (176-79).]
I do not remember rising to address the House on any occasion when I felt more desirous to be indulged with its attention; because, representing as I do a very numerous body out of this House, who take a deep interest in the question, I feel regret on their account, as well as for the cause I have in hand, that there should be so much misapprehension in the House in reference to the motion I am about to make. What has just fallen from the hon. Member for Bucks (Mr. Disraeli) is a proof of this misconception; for he would not have presumed to sneer at a motion before it was made, unless he had conceived that there was something so unreasonable and preposterous about it, that it ought to be condemned before it was heard. I have heard that hon. Gentleman indulge in a sneer before, on many occasions; but they have been ex post facto sneers. I have never until now heard him sneer at a matter by anticipation. He has grounded that sneer on an observation drawn forth by a subject which was calculated above all others to move the milk of human kindness in our bosoms. How it was possible for an hon. Member, in reference to the answer returned by the American President to Lady Franklin's letter, to indulge in a sneer of that kind, I cannot understand; unless it be that the hon. Gentleman is incapable of anything but sneering. I accept those acts of the American and Russian Governments as proofs that we live in altered times. As the right hon. Member for the University of Oxford (Mr. W.E. Gladstone) has well observed; at no former period of the world's history has there been an instance of foreign Governments sending out, at their expense, to seek for scientific adventurers, unconnected with their own community. Accepting this as a proof that we live in different times from those that are past, I think there is nothing unreasonable in our seeking to take another step towards consolidating the peace of nations, and securing us against the recurrence of the greatest calamity that can afflict mankind.
I stand here the humble representative of two distinct bodies, both of some importance in the community. In the first place, I represent on this occasion, and for this specific motion alone, that influential body of Christians who repudiate war in any case, whether offensive or defensive; I also represent that numerous portion of the middle classes of this country, with the great bulk of the working classes, who have an abhorence of war, greater than at any former period of our history, and who desire that we should take some new precautions, and, if possible, obtain some guarantees, against the recurrence of war in future. Those two classes have found in the motion which I am about to submit a common ground—and I rejoice at it—on which they can unite without compromising their principles, on one side or the other. It is not necessary that any one in this House, or out of it, who accedes to this motion, should be of opinion that we are not justified, under any circumstances, in resorting to war, even in self-defence. It is only necessary that you should be agreed that war is a great calamity, which it is desirable we should avoid if possible. If you feel that the plan proposed is calculated to attain the object sought, you may vote for it without compromising yourselves on the extreme principle of defensive war. I assume that every one in this House would only sanction war, in case it was imperatively demanded on our part, in defence of our honour, or our just interests. I take it that every one here would repudiate war, unless it were called for by such motives. I assume, moreover, that there is not a man in this House who would not repudiate war, if those objects—the just interests and honour of the country—could be preserved by any other means. My object is to see if we cannot devise some better method than war for attaining those ends; and my plan is, simply and solely, that we should resort to that mode of settling disputes in communities, which individuals resort to in private life. I only want you to go one step farther, to carry out in another instance the principle which you recognise in other cases—that the intercourse between communities is nothing more than the intercourse of individuals in the aggregate. I want to know why there may not be an agreement between this country and France, or between this country and America, by which the nations should respectively bind themselves, in case of any misunderstanding arising which could not be settled by mutual representation or diplomacy, to refer the dispute to the decision of arbitrators. By arbitrators I do not mean necessarily crowned heads, or neutral states; though we have examples where disputes have been referred to crowned heads, and where their arbitrament has been eminently successful. There is a case where the United States and France referred a dispute to England; a case in which England and the United States referred a dispute to Russia; one in which the United States and Mexico referred a question to Prussia, and one in which the United States and England referred a case to the King of the Netherlands. These cases were all eminently successful. If one failed in its immediate object, there is no instance in which a war has followed after such a reference. But I do not confine myself to the plan of referring disputes to neutral Powers. I see the difficulty of two independent states, like England and France, doing so, as one might prefer a republic for the arbitrator, and the other a monarchy. I should prefer to see these disputes referred to individuals, whether designated commissioners, or plenipotentiaries, or arbitrators, appointed from one country to meet men appointed from another country to inquire into the matter and decide upon it; or, if they cannot do so, to have the power of calling in an umpire, as is done in all arbitrations. I propose that these individuals should have absolute power to dispose of the question submitted to them.
I want to show that I am practical on this occasion, and, therefore, I will cite some cases in which this method of arranging difficulties has already been resorted to. In 1794 we had a Treaty with America, for the settlement of certain British claims on the American Government. Those claims were referred to four commissioners, two appointed on each side, with the proviso that they should elect unanimously, an arbitrator; in case they should not agree in the choice of an arbitrator, it was provided that the representatives of each country should put the names of certain arbitrators into an urn, one to be drawn out by lot; and this arbitrator and the four commissioners decided by a majority all the cases brought before them. Again, in the Treaty of 1814 with the United States, provision was made for settling most important matters, precisely in the way I now propose. Provision was made for settling the boundary between the United States and Canada, for some thousands of miles; also for defining the right to certain islands lying on the coast; and for settling the boundary between Maine and New Brunswick. The plan was this: each country named a commissioner; the commissioners were to endeavour to agree on these disputed points; and the matters on which they could not agree were referred to some neutral state. All the matters referred to them—and most important they were—were arranged by mutual conference and mutual concessions, except the question of the Maine boundary, which was accordingly referred to the king of the Netherlands. Afterwards, exception was taken to his decision by the United States; the matter remained open till the time of Lord Ashburton's mission; and it was finally settled by him. But in no case has any such reference ever been followed by war. In 1818 there was a Convention with America, for settling the claims made by that country for captured negroes during the war. It was agreed to refer that matter to the Emperor of Russia; and he decided in favour of the principle of compensation. He was then appealed to by both the Governments to define a mode by which this compensation should be adjudged; and his plan was this: he said, 'Let each party name a commissioner and an arbitrator; let the commissioners meet, and, if they can agree, well and good; if not, let the names of the arbitrators be put into an urn, and one drawn out by lot; and that arbitrator and the two commissioners shall decide the question by a majority.' This method was adopted, and compensation to the extent of 1,200,000 dollars was given, without any difficulty. Hence, it appears that what I propose is no novelty, no innovation; it has been practised, and practised with success; I only want you to carry the principle a little farther, and resort to it, in anticipation, as a mode of arranging all quarrels.
For this reason, I propose an address to the Crown, praying that Her Majesty will instruct her Foreign Secretary to propose to foreign Powers to enter into treaties, providing that, in case of any future misunderstanding, which cannot be settled by amicable negotiation, an arbitration, such as I have described, shall be resorted to. There is no difficulty in fixing the means of arbitration, and providing the details; for arbitration is so much used in private life, and is, indeed, made parts of so many statutes and Acts of Parliament, that there is no difficulty whatever in carrying out the plan, provided you are agreed as to the policy of doing so. Now, I shall be met with this objection—I have heard it already—and I know there are Members of this House who purpose to vote against the motion on this ground: they say, `What is the use of a treaty of this sort, between France and England, for instance; the parties would not observe the treaty; it would be a piece of waste paper; they would go to war, as before, in spite of any treaty.' It would be a sufficient answer to this objection to say, 'What is the use of any treaty? What is the use of the Foreign Office? What is the use of your diplomacy?' You might shut up the one and cashier the other. I maintain, that a treaty binding two countries to refer their disputes to arbitration, is just as likely to be observed as any other treaty. Nay, I question very much whether it is not more likely to be observed; because, I think there is no object which other countries will be less likely to seek than that of having a war with a country so powerful as England. Therefore, if any provision were made by which you might honourably avoid a war, that provision would be as gladly sought by your opponents as by yourselves. But I deny that, as a rule, treaties are violated; as a rule, they are respected and observed. I do not find that wars, generally, arise out of the violation of any specific treaty—they more commonly arise out of accidental collisions; and, as a rule, treaties are observed by powerful States against the weak, just as well as by weak States against the powerful. I, therefore, see no difficulty specially applying to a treaty of this kind, greater than exists with other treaties. There would be this advantage, at all events, in having a treaty binding another country to refer all disputes to arbitration. If that country did not fulfil its engagement, it would enter into war with the brand of infamy stamped upon its banners. It could not proclaim to the world that it was engaged in a just and necessary war. On the contrary, all the world would point to that nation as violating a treaty, by going to war with a country with whom they had engaged to enter into arbitration. I anticipate another objection which I have heard made: they say, 'You cannot entrust the great interests of England to individuals or commissioners.' That difficulty springs out of the assumption, that the quarrels with foreign countries are about questions involving the whole existence of the empire. On the contrary, whenever these quarrels take place, it is generally upon the most minute and absurd pretexts—so trivial that it is almost impossible, on looking back for the last hundred years, to tell precisely what any war was about. I heard the other day of a boy going to see a model of the battle of Waterloo, and when he asked what the battle was about, neither the old soldier who had charge of the exhibition, nor any one in the room, could answer the question. I may quote the remark made the other night by the noble Lord (J. Russell) at the head of the Government—that the last two wars were unnecessary—in which I quite agree with him.
But, to return to the point whether or not commissioners might be entrusted with the grave matters which form the subjects of dispute between nations, I would draw the attention of the House to the fact, that already you do virtually entrust these matters to individuals. Treaties of peace, made after war, are entrusted to individuals to negotiate and carry out. Take the case of Lord Castlereagh, representing the British power at the Congress of Vienna. He had full power to bind this country to the Treaty of Vienna. When, on the 20th of March, 1815, Mr. Whitbread brought on the subject of the Treaty, with the view of censuring his conduct and that of the Government, Lord Castlereagh distinctly told the House, 'I did not wait for instructions at Vienna; I never allowed the machine of the Congress to stand still for want of my concurrence on important matters; I took upon myself the responsibility of acting; and if the interests and honour of England have been sacrificed, I stand here alone responsible.' I want to know, whether as good men as Lord Castlereagh could not be found to settle these matters before, as after, a twenty years' war? Why not depute to a plenipotentiary the same powers before a conflict as you give him after? For these matters can only be settled by empowering individuals to act for you; and let the Government instruct them as they will, a discretionary power, after all, must be left, when they are to bind the country towards other States. Take the case of Lord Ashburton, settling the Maine boundary question in America. He had the power to bind this country to anything he set his hand to. No doubt he had his instructions from the Government, but he presents his credentials to the American Government, and is received by them as authorised to bind this country to anything he agrees to do. All I want is, that this should be done before, and not after, engaging in a war—done to avert the war, rather than to make up the difference after the parties are exhausted by the conflict.
Probably I shall be told that there are signs of a pacific tendency on the part of the Government and the country; it will be said that we are carrying out a pacific policy, and that there is no necessity for passing any resolution to impose on the Government the obligation of giving us this guarantee. But I do not see that this is in process of being done. I do not see any proof, in the last five or six years, that the Government has been increasing in its confidence of peace being preserved, or gaining security for its preservation. In the last ten years we have increased our armed forces by 60,000; in the army, navy, and ordnance, the expenditure has been augmented sixty to seventy per cent. From 1836, down to last year, there is no proof of the Government having any confidence in the duration of peace, or possessing increased security against war. I think the inference is quite the contrary. In the committees on which I have been sitting, I have seen an amount of preparation for war which has astounded me; and I dare say other honourable Gentlemen would share my alarm at the state of things. But I confess, when I have looked into what we are doing in the way of provision of warlike stores, means of aggression, and preparations for defence against some foreign enemy, I have been astonished at the warlike expenditure that is going on. What will honourable Gentlemen think when they know that we have 170,000 barrels of gunpowder in store? Besides that, we have sixty-five millions of ball-cartridges made up ready for use. (Hear, hear, and a laugh, from the Protectionist benches.) The public will not laugh when they read what I say. They will not join the honourable Members for counties opposite in laughing at this statement. We have 50,000 pieces of cannon in store, besides those afloat, and in arsenals, and garrisons, and batteries. There are 5,000,000 of cannon-balls and shells in the stores, and 1,200,000 sand-bags, ready for use whenever they are needed. There is a provision equal to three or four years' consumption of these articles in the height of the French war. You have, in barrelled gunpowder alone, a supply equal to nearly three years' consumption of that article in the height of the French war, and equal to fifteen years' consumption at the present rate, to say nothing of the sixty-five millions of ball-cartridges. Does this look as if the Government thought we had made any great way in the preservation of peace? Is it the part of a country, assured of peace, to make all this provision against war? You have spent, in the last five or six years, on an average, twice as much in fortifications, in steam-basins, in docks, in barracks, in means of aggressive and defensive warfare, as at any period since the peace; and my hon. Friend the Member for Montrose (Mr. Hume), who has looked much longer and deeper into those subjects than I have, believes it is more than was spent in the same time for those objects during the war. Since 1836 you have doubled the expenditure of the ordnance department. It is in that department that the great increase takes place; because, in the progress of mechanical invention, and the improvements made in the science of projectiles, it is found that the artillery and engineer corps are the arms of the service on which the fate of battles mainly depends.
So, again, in the case of steam-basins. A great discovery came to the aid of civilisation—the discovery of Fulton—which he and others probably hoped would be made contributory to the unalloyed improvement and happiness of mankind. What has been the effect in our case? We commenced the construction of a steam-navy. I do not say whether it was necessary or not, but I want you to try and make it in some degree unnecessary in future. The Government continued to increase the steam-navy, until we had as much money spent in steam vessels of war as we had invested in our merchant-steamers. I made this statement last year; I repeat it advisedly, as capable of the strictest proof. It was then received with incredulity and surprise by the right hon. the Chancellor of the Exchequer (Sir C. Wood); some facts which I showed him afterwards rather staggered him, and I am now prepared to prove that when I stated the fact last year, it was strictly true that we had invested in steam-vessels of war a larger amount than the whole cost of our mercantile steam marine; that we had expended far more in steam-basins and docks for repair of those vessels than was invested in the private docks and yards, for building and repairing private steamers.
What are we to deduce from these facts? That instead of making the progress of civilisation subservient to the welfare of mankind—instead of making the arts of civilisation available for increasing the enjoyments of life—you are constantly bringing these improvements in science to bear upon the deadly contrivances of war, and thus are making the arts of peace and the discoveries of science contribute to the barbarism of the age. But will anybody presume to answer me by the declaration that we want no further guarantee for the preservation of peace? Will any one tell me that I am not strictly justified and warranted in trying, at all events, to bring to bear the opinion of this House, of the country, and of the civilised world, upon some better mode of preserving peace than that which imposes upon us almost all the burdens which war formerly used to entail? We are now spending every year on our armaments more than we spent annually, in the seven years' war, in the middle of the last century. Therefore, far from being deterred by sneers, I join most heartily and contentedly with those worthy men out of the House, who are inspired by higher motives than I can hope to bring to bear on this occasion, and which I could not probably so rightly urge as I do those which come within your province; I join most heartily in sharing the odium, the ridicule, the calumny, and the derision, which some are attempting to cast upon those advocates of peace and of reduced armaments.
But I wish to know where this system is to end. I have sat on the army, navy, and ordnance committees, and I see no limit to the increase of our armaments under the existing system. Unless you can adopt some such plan as I propose, unless you can approach foreign countries in a conciliatory spirit, and offer to them some kind of assurance that you do not wish to attack them, and receive the assurance that you are not going to be assailed by them, I see no necessary or logical end to the increase of our establishments. For the progress of scientific knowledge will lead to a constant increase of expenditure. There is no limit but the limit of taxation, and that, I believe, you have nearly reached. I shall probably be told that my plan would not suit all cases. I think it would suit all cases a great deal better than the plan which is now resorted to. At all events, arbitration is more rational, just, and humane than the resort to the sword. In the one case, you make men what they are never allowed to be in private life—the judge in their own case; you make them judge, jury, and executioner. In the other case, you refer the dispute to impartial individuals, selected for their intelligence and general capabilities. In any case, and under any circumstances, I do not see why my plan should not have the advantage over that now adopted. If I am opposed by supposititious cases, and told that my plan would not apply to such, I take my stand upon past experience, and will show you numerous instances where it would have applied. Nay, I am prepared to show that all the unavoidable quarrels we have had during the last twenty-years—I mean those which could not have been avoided by any conduct on the part of our Government—all these might have been more fitly settled by arbitration than in any other way; and I will appeal to the right bon. Gentlemen on both sides of this House, who have filled the highest offices of Government, when such disputes have arisen, whether they would not have felt relieved from harassing responsibilities, had they had this principle of arbitration to rely on, in these cases.
Take the case of 1837, when a dispute arose with Russia, about the confiscation of a ship in the Black Sea, called the Vixen. The noble Lord, the Member for Tiverton, was then Foreign Secretary. He knows very well that this vessel was sent to the Black Sea by a certain party, with a particular object; the thing was entirely got up. I was in Constantinople at the time, and knew the whole history of it. That vessel was freighted and sent to the coast of Circassia, for the very purpose of embroiling us with Russia; and immediately she was seized, there was a party in this country ready to raise an excitement against the noble Lord, for submitting to the arrogant spoliation of the Russian Government. Had we then had an arbitration treaty with Russia, would not that have been the best possible resource for the noble Lord in that case, and have enabled him to escape the party attacks made upon him in this country? That question, which, after all, did not involve an amount of property exceeding 2,000l. or 3,000l., might have been settled by a petty jury of twelve honest tradesmen, quite as well as by the noble Lord at the Foreign Office.
Will any one, for a moment, tell me that the disputes about the boundary between Maine and New Brunswick, and the misunderstanding respecting Oregon, might not have been settled by arbitration? I prefer the appointment of commissioners to that of crowned heads—because I would have men who are most competent to judge of the subject in dispute. For instance, this was a geographical question: why should not the two ablest geographers of this country have met those of the United States, assuming them otherwise qualified by moral character and general attainments, and have been authorised to call in an umpire, if necessary? Supposing the case to have been left to the decision of such an umpire as Baron Humboldt, for example; would he not have decided far more correctly than any war would be likely to do? I know that the Oregon question caused the liveliest apprehensions to those who were engaged on both sides, in this dispute, in 1846. I am aware that Mr. M'Lane, the American Minister, felt the greatest solicitude, and manifested the deepest anxiety on the arrival of every packet, and I know how anxious he was that the right hon. Gentleman (Sir R. Peel) should remain in office till the question was settled. I know what he felt, and what every Minister in a similar position must feel, on such occasions. The great difficulty was lest party spirit and popular excitement should arise on either side of the water, to hinder and perplex the efforts of those who were interested in its settlement. It is to remove that difficulty in future—to prevent the interposition of bad passions and popular prejudices in these disputes—that I desire to have provision made, beforehand, for the settlement of any quarrel that may arise by arbitration.
There was another case, in 1841, the danger from which was, in my mind, the most imminent of all—I mean the case of Mr. M'Leod, who had been taken and imprisoned by the State of New York, and tried for his life, for having, as he himself avowed, taken part in the burning of the Caroline, in which an American citizen lost his life. Our Government claimed to have this question decided between the general Government of the United States and themselves. But the Government of the United States said that they had not the power to remove the case out of the New York Court, and that they could not prevent the State of New York proceeding in the matter. We all know the excitement which took place on that occasion. There was great irritation in America, and great excitement in this country. Now, if Mr. M'Leod had been executed, what would the consequence have been in this country? Why, the old cry of our honour being involved would have been raised. [An hon. Member: 'Certainly.'] An hon. Member says, 'Certainly.' But what means would you take to vindicate your honour? You would go to war, and, for the one life that had been taken away, you would sacrifice the lives of thousands, nay, perhaps, tens of thousands. But would all this sacrifice of human life restore the life of the man on whose account you were fighting? Would it not be much wiser if, instead of resorting to war,—which is nothing but wholesale murder, if war can be avoided,—you had recourse to arbitration, by which, indeed, you could as little restore the individual to life, as by the employment of all your military forces, but by which you might obtain a provision for his widow and family, and which, be it remarked, is no part of the object of those who engage in wars?
Now, there is another case, upon which I call the right hon. Gentleman opposite (Sir R. Peel) as a witness into court—the case of Mr. Pritchard, a missionary, and the consul of this country at Tahiti, who had been put under arrest by the French admiral. When this news first arrived in this country, from a distance of 12,000 or 14,000 miles, the press, both here and in France, sounded the tocsin, and national prejudices and hatreds were invoked on both sides. The French Minister, M. Guizot, was told that he was going to succumb to the dictation of England; and in this country, it was said that the honour of England was sacrificed to the insolence of France. The right hon. Gentleman (Sir R. Peel), then at the head of affairs, rose in his place in this House, and declared that the insult offered was one of the grossest outrages ever committed, and was inflicted in the grossest manner. That added to the difficulty of dealing with the question in the proper manner. M. Guizot and Lord Aberdeen also complained of the conduct of the press of both countries, which exasperated the national animosity on that occasion, and rendered it more difficult to settle the question amicably. I now ask the right hon. Gentleman, if he would not have felt consoled and happy, in 1844, if a treaty of arbitration had existed between this country and France, by which this miserable and trumpery question might have been at once withdrawn from the arena of national controversy, and placed under the adjudication of a commission set apart for that purpose?
I may be told that none of these instances had led to or terminated in war. That is true. But they led to an enormous amount of expenditure; and, what is worse, to lasting hate between nations. I have no hesitation in saying that these disputes have cost this country 30,000,000l. sterling. They not only led to expenditure in preparation for war at the time, but they occasioned a permanent increase in your establishments, as I have shown you on a former occasion, and you are now paying every year for the increase of these establishments which was then made.
Now, I would ask, in the face of these facts, where is the argument you can use against the reasonable proposition which I now put forward? I may be told that, even if you make treaties of this kind, you cannot enforce the award. I admit it. I am no party to the plan which some advocate—no doubt with the best intentions—of having a Congress of nations, with a code of laws—a supreme court of appeal, with an army to support its decisions. I am no party to any such plan. I believe it might lead to more armed interference than takes place at present. The hon. Gentleman opposite, who is to move an amendment to my motion (Mr. Urquhart), has evidently mistaken my object. The hon. Gentleman is exceedingly attentive in tacking on amendments to other persons' motions. My justification for alluding to him, on the present occasion, is, that he has founded his amendment on a misapprehension of what my motion is. He has evidently conceived the idea that I have a grand project for putting the whole world under some court of justice. I have no such plan in view at all; and, therefore, neither the hon. Gentleman, nor any other person, will answer my arguments, if he has prepared a speech assuming that I contemplate anything of the kind. I have no plan for compelling the fulfilment of treaties of arbitration. I have no idea of enforcing treaties in any other way than that now resorted to. I do not, myself, advocate an appeal to arms; but that which follows the violation of a treaty, under the present system, may follow the violation of a treaty of arbitration, if adopted. What I say, however, is, if you make a treaty with another country, binding it to refer any dispute to arbitration, and if that country violates that treaty, when the dispute arises, then you will place it in a worse position before the world—you will place it in so infamous a position, that I doubt if any country would enter into war on such bad grounds as that country must occupy.
I may be told that this is not the time to bring forward such a motion. I never knew a good motion brought forward in a bad season. But it may be said, that the time is badly chosen, because there are wars on the Continent now. I quite disagree to that. Is there anything in those wars so inviting, that we should hesitate before we take precautions against their recurrence? I should have thought, on the contrary, that what is taking place on the Continent is the very reason why we should take every precaution now. There were none of these wars, with the exception of that between Schleswig and Denmark, to which international treaties would apply; because they are all either civil wars, or wars of insurrection, and rebellion. This war between Schleswig and Denmark was an instance of the very insignificant means by which you could produce widespread mischief in this commercial age. Is there a case where the principle of arbitration, in the persons of first-rate historians or jurists, could be adopted with more advantage than in the case of Schleswig and Denmark? It is difficult to see how the dispute is ever to be settled by going to war, for one party being stronger by land, and the other by sea, there may be no end of the conflict. But see what mischief this dispute has occasioned to others. The blockade of the Elbe, the great artery of the north of Europe, has shut out their supplies, not from Schleswig, but from Germany. It has interrupted the commerce of not merely a small Danish province, but the whole world. The people of Schleswig, who have comparatively no manufactures, are not punished, but your fellow-citizens in Manchester, your miners in North-umberland, and the wine-growers of the Gironde are punished. Mischief is done all over the world by this petty quarrel, which could be more properly settled by arbitration than by any other means. Let not people turn this matter into ridicule by saying that I want to make arbitration treaties with everybody—even Bornean pirates. Hon. Gentlemen may create a laugh by coupling together a Bornean pirate and a member of the Society of Friends. But I do not want to make treaties with Bornean pirates or the inhabitants of Timbuctoo. I shall be quite satisfied, as a beginning, if I see the noble Lord, or any one filling his place, trying to negotiate an arbitration treaty with the United States, or with France. But I should like to bind ourselves to the same principle with the weakest and smallest States. I should be as willing to see it done with Tuscany, Belgium, or Holland, as with France or America, because I am anxious to prove to the world that we are prepared to submit our misunderstandings, in all cases, to a purer and more just arbitrament than that of brute force. Whilst I do not agree with those who are in favour of a Congress of nations, I do think that if the larger and more civilised Powers were to enter into treaties of this kind, their decisions would become precedents, and you would in this way, in the course of time, establish a kind of common law amongst nations, which would save the time and trouble of arbitration in each individual case.
I do not anticipate any sudden or great change in the character of mankind, nor do I expect a complete extinction of those passions which form part of our nature. But I do not think there is anything very irrational in expecting that nations may see that the present system of settling disputes is barbarous, demoralising, and unjust; that it wars against the best interests of society, and that it ought to give place to a mode more consonant with the dictates of reason and humanity. I do not see anything in the present state of European society to prevent us from discussing this matter, and hoping that it may be brought to a satisfactory conclusion. I have abstained from dwelling on those topics which may excite the feelings of hon. Gentlemen opposite. I have not entered into the horrors of war, or the manifold evils to which it gives rise. I will, on the present occasion, content myself with the description of it by Jeremy Bentham, who calls it 'mischief on the largest scale.' I will leave these topics, and that mode of handling the question, to others who may discuss the matter, either here or elsewhere. I have stated clearly, explicitly, and in a matter-of-fact manner, what my object is, in order that it may not be misunderstood. I have shown examples in which this plan has been adopted. All I want is, that we should enter into mutual engagements with other countries, binding ourselves and them, in all future cases of dispute which cannot be otherwise arranged, to refer the matter to arbitration. No possible harm can arise from the failure of my plan. The worst that can be said of it is, that it will not effect its object—that of averting war. We shall then remain in that unsatisfactory state in which we now find ourselves. I put it to any person having a desire to avert war, whether, when he sees that the adoption of this plan can do no harm, it is not just and wise to try whether it may not effect good. As it is likely to have that effect in the opinion of nearly 200,000 petitioners to this House—as that is the opinion declared by 150 public meetings in this country—as it is the opinion expressed by members of several town councils who calmly discussed this matter in their large boroughs—as it is the opinion of so many of your reflecting and intelligent fellow-citizens—will you refuse to them, under the circumstances I have stated, this, the only mode that has been propounded, of affording a guarantee against war, which we all equally deprecate?
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