Part 7- Failure of the London Conference
I may have my criticisms of Mr Gladstone, but I will say this. He will go down in the history books for this settlement. Never in the history of mankind has a leader of a great nation gone into negotiations, folded on all of his demands and failed in every objectives, but still has the tenacity to walk out and claim that it was a triumph.’- Benjamin Disraeli, 24th May 1872
Gladstone's ambitious attempt to end the war ended in failure. But many historians have noted that his objectives were far more limited than ending the war entirely, and he succeeded in a sense from extracting Britain from the war. It may first help to start with the principle objectives of Gladstone's little conference in London. The first, and most achievable, was the ending of what he saw as atrocities in Germany and Bohemia committed by French and Prussian forces. This he saw as the 'urging and pressing humanitarian need to alleviate suffering of citizens'. The second, and one that Gladstone was less focused on, was the need to prevent Russian influence. Whilst Disraeli and other hawks from both sides of the aisle saw this as the most important, this was rather secondary in Gladstone's thinking. Although he acknowledged the potential damages from an Russo-Prussian victory, he was ambivalent at the idea of a victory. Gladstone stated privately that 'It should not be the policy to prop up the saccrelidgous and corrupt Ottoman control in the Balkans over some potential Russian encroachment', and many of the pan-German associations were moulded in the liberal nationalist traditions, although they sat uneasily with the Prussian conservativism. So whilst Gladstone did recognise the need to contain Russia and prevent intervention, his objections were that primarily it had the capacity to prolong the war, and not because he feared Russian encroachment. The third, and more lofty aim, was to end the war entirely, which Gladstone prioritised by seemed a remote possibility, was the end of the war entirely. After all, the war looked like a stalemate, and had done for quite a while. It was clear that the French government, with Russian intervention now threatened, could not knock Prussia out of the war, seize territories it wanted or prevent the unification of Germany at the same time. It was also clear to the Prussians were uneasy with the idea of Russian subservience and increased presence should be avoided, or at least mitigated. And the Austrians were desperate to get out of the war on account of increasing levels of Hungarian dissent and a decaying domestic situation. Peace, therefore, did not look entirely unattainable, as some historians have claimed, at this juncture.
But there was a myriad of difficulties. The most obvious of which was the objections of the French. Napoleon III's regime was increasingly crumbling as the domestic situation tightened. The empire was already in trouble before the onset of the war, requiring a set of reforms known collectively as the liberal empire, and the war was seen s a high command as a remedy to the opposition posed by the increasing weakness of this system. As part of the propoganda effort, the focus of the war was placed on defeating the 'Prussian menace'. Newspapers churned out headlines with news of Prussian atrocities and condemnation of the 'pattern of militarism' that defined the Prussian state. Vast portions of school lessons were redirected to instil anti-Prussian propoganda, with excessive focus placed on 'the suffering of the people of Silesia'. The government had also encouraged pamphlets to be distributed, claiming that the Kaiser wanted to annex vast swathes of the East of the country. This meant that the very survival of the regime was staked upon the need to defend against the unification of Germany. By trading away that concession, he would be jeopardising, probably fatally, the security of his regime. The relatively poor performance of the army was also blamed not only on the corrupt generals but the corruption at the very heart of the French government, and to salvage his reputation Napoleon desperately needed to prevent German unification, and conceding it was quit e out of the question. Conversely the Prussians were unwilling to give up the prospect of unification of Germany under their balanced, even if they maintained a strong sphere of influence there, because of the multitude of pan-Germanic sentiment unleashed by the war. The government would already struggle to persuade the vocal elements to give up the annexation of Austria, but the sacrifice of the German project would be seen as an outrageous perfidy, especially now victory was apparently in sight. Whilst Gladstone and the British attempted to find some compromise, where the German Empire remained in place but Prussia relaxed domestic controls over the South, both France and Prussia found this proposal unappealing, France because it did not meet the needs of her security (which was mainly about preventing a strong unified German army from ever threatening French security again and any kind of concession in this sought would incite domestic wrath in Prussia. Prussia also refused a “Demilitarized Zone” proposal designed to shore up French security. The talks, therefore, of continental peace floundered.
But even with this failure, the other objectives of the conference were significantly more achievable. The focus of the conference turned to the question of Russian intervention. Gladstone sought to avoid Russian intervention in a two pronged strategy- first, by removing their casus belli and secondly by threatening British intervention. Gladstone had success in the first area. Eager not to alienate Gladstone, the French agreed to ratify a protocol outlawing attacks on civilians and allowing for British organisations to survey the Rhineland and British charity workers to enter there, creating the International Rhenish Force (IRF) to help keep the peace in the area. A more general treaty, called the London Protocol, was signed by all great powers, committed all powers to renouncing warfare against the civilians and excessive force in combat, as well as setting up a consultatary international body in Geneva to assess potential breaches of this convention. But although this allayed much of Gladstone’s concerns, it was not enough to prevent Russian intervention. The Russians stressed the fact that France, who had so recently committed atrocities in the Rhineland, could not be trusted to run the Rhineland: the Russian emissary espoused to Gladstone ‘How can a nation that has demonstrated it’s violent contempt against the German people be trusted to run one of her most populated reigons?’. Russia therefore demanded that France vacate the Rhineland; a demand France couldn’t accept without a more general peace settlement. Prussia also played on the nationalist sympathies of Gladstone, and stressed the national self-determination of the people of the Rhineland. The Prussians proposed a Rhenish referendum between German and French control, something the French would have to reject, to paint Napoleon III as an illiberal aggressor. These continual delaying tactics by the Prussian and Russian delegation meant the conference came to an increasing impasse about how intervention could be avoided.
Gladstone therefore had to rely more heavily on threatening intervention. However, the Russians had come to the conclusion that this was not a credible threat. Not only did the vacillating impression that Gladstone left on the conference meant that these threats looked increasingly like a bluff, the internal tumult in Britain, in which Gladstone had staked much of his political reputation on keeping Britain at peace, meant a u-turn on this issue could be very damaging to his reputation. Not only that, his reluctance to help the Ottomans and his condemnation of the Ottoman system meant that Gladstone would not be able to recruit any new allies. During the conference, Gladstone reached out to the Porte to request a joint blow through the Dardanelles in the event of war and Ottoman help. The Porte flatly rejected, because they saw Gladstone as deeply untrustworthy and hostile to the Empire, aspiring for her dissolution, who could not be trusted to hold up his guarantees or negotiate a favourable peace.
As negotiations continued to stall in London, Gladstone was presented with a clear choice about courses of action. It was clear that Russia was going to intervene in the war. One option was intervention on the side of the Franco-Austrian alliance. But doing this would not only be costly in terms of lives and resources, especially given that this war would be protracted, it may in fact be pointless- it was far from clear, without Ottoman support, what Britain could meaningfully do to halt the Russians, and Austria would swiftly collapse, leaving the British fighting a nasty land war on behalf of the French emperor in France that they may well lose. The second option was to intervene on the side of the Prusso-Russian alliance- this was quite out of the question, not least because of the massive Russophobia back home in parliament, and doing this would be political suicide for Gladstone. But the third option was neutrality. Critics panned this option as a shameful abdication of British leadership that deprived the British a seat in the voice of Europe, and would allow an insurgent Russia to continue to role back the result of the Crimean conflict and even threatened British possessions in India. But it was the option that preserved British lives, and Britain could still act as a useful arbiter of the conflict.
On May 21st, the Congress dissolved, producing the London Protocol and various arrangements about humanitarian aid. Gladstone decried the conference a success, much to the uproar of the opposition back home, saying that ‘I have extracted Britain from a war, in which the soil would have been soaked with blood for causes so far removed from our own security, and saved the Rhenish from the hideous tide of war that they are being engulfed’. But Gladstone’s reputation, and the failure to prevent the expansion of Russia, meant his personal reputation never recovered from this utter humiliation. Britain suddenly looked like it had abdicated it’s position in upholding the balance of power in Europe, ushering in a new, more uncertain, age of diplomacy.