(c) crown copyright
Catalogue Reference:CAB/24/265
Image Reference:0005
Printed
for the Cabinet.
December
1936.
SECRET.
Copy No.
C P . 332 (36).
CABINET.
POSITION
OF BELGIUM AND THE PROPOSED
CONFERENCE.
Memorandum
by the Secretary
of State
for
Foreign
FIVE-POWER
Affairs.
I C I R C U L A T E to my colleagues a s a n n e x e s to t h i s m e m o r a n d u m a d e s p a t c h
t o H i s M a j e s t y ' s A m b a s s a d o r a t B r u s s e l s r e c o r d i n g my c o n v e r s a t i o n s on t h e
27th a n d 2 8 t h November w i t h the B e l g i a n P r i m e M i n i s t e r ( A n n e x A ) a n d a
t e l e g r a m f r o m S i r E. Ovey g i v i n g t h e t e x t of t h e r e l e v a n t y ^ o a i t i o r o of M. v a n
Z e e l a n d ' s s t a t e m e n t i n t h e B e l g i a n P a r l i a m e n t on t h e 2 n d December r e s p e c t i n g
B e l g i u m ' s p o s i t i o n in r e l a t i o n to the n e g o t i a t i o n s for t h e p r o p o s e d F i v e - P o w e r
T r e a t y . M u c h of t h e i n f o r m a t i o n c o n t a i n e d in t h e s e t w o r e p o r t s w a s a l r e a d y
k n o w n to us, b u t i n t h e l i g h t of it a n d of e a r l i e r r e p o r t s i t will be convenient
once m o r e to s t a t e briefly t h e position of t h e B e l g i a n G o v e r n m e n t : —
(a) B e l g i u m , i n a c c o r d a n c e w i t h h e r u n d e r t a k i n g given i n L o n d o n i n M a r c h ,
a d h e r e s p r o v i s i o n a l l y t o h e r o b l i g a t i o n s u n d e r t h e T r e a t y of L o c a r n o
of 1925, b u t she ' ' wishes t h e n e w a g r e e m e n t a t w h i c h w e a r e a i m i n g
t o be concluded as quickly as p o s s i b l e . " H e r e x i s t i n g obligations i n
t h i s m a t t e r ' ' m u s t not be allowed t o c r y s t a l l i s e i n t o p e r m a n e n t
o b l i g a t i o n s a n d t h e p r o v i s i o n a l period could not l a s t m u c h l o n g e r . "
(b) B e l g i u m will n o t give g u a r a n t e e s to o t h e r S t a t e s i n a n y n e w t r e a t y , b u t
she will t a k e defensive m e a s u r e s to p r e v e n t B e l g i a n t e r r i t o r y being­
u s e d by a n a g g r e s s o r S t a t e a s a p a s s a g e or base of o p e r a t i o n s .
( N . B . — I t is still n o t absolutely clear t h a t t h i s r e f e r s also to t h e air.)
(c) B e l g i u m will c o n t i n u e h e r m e m b e r s h i p of t h e L e a g u e of N a t i o n s a n d
h e r fidelity to h e r o b l i g a t i o n s u n d e r t h e C o v e n a n t , t h o u g h of those
o b l i g a t i o n s , a n d p a r t i c u l a r l y of a r t i c l e 16, B e l g i u m " w i l l a c c e p t n o
o t h e r i n t e r p r e t a t i o n t h a n t h a t w h i c h she t h i n k s p r o p e r t o give a s a
sovereign S t a t e . "
She c a n n o t , for e x a m p l e , allow t h e q u e s t i o n of
t h e p a s s a g e of t r o o p s across h e r t e r r i t o r y u n d e r p a r a g r a p h 3 of
a r t i c l e 16 of t h e C o v e n a n t t o be decided over h e r h e a d by F r a n c e o r
some o t h e r o u t s i d e body.
(d) M . v a n Z e e l a n d d i d not, in m y c o n v e r s a t i o n w i t h him, e x c l u d e t h e
p o s s i b i l i t y of B e l g i u m u n d e r t a k i n g u n d e r t h e p r o p o s e d n e w t r e a t y
to f u r n i s h F r a n c e a n d G r e a t B r i t a i n w i t h i n f o r m a t i o n d e s i g n e d to'
a s s u r e t h e m of t h e efficacy of h e r defences, b u t h e s t i p u l a t e d t h a t
B e l g i u m m u s t be free t o g i v e s i m i l a r i n f o r m a t i o n t o G e r m a n y if t h e
l a t t e r r e q u i r e d it. I n t h e B e l g i a n P a r l i a m e n t h e a d d e d t h a t " w e
r e q u i r e a m i l i t a r y system w h i c h shall n o t p e r m a n e n t l y be d i r e c t e d
a g a i n s t a n y o n e n o r tied u p i n a p e r m a n e n t f a s h i o n w i t h t h e m i l i t a r y
c o n c e p t i o n s of a n y o n e e l s e . " ( N . B . — T h i s does n o t s u g g e s t t h a t t h e
B e l g i a n G o v e r n m e n t a r e likely r e a d i l y to c o m m u n i c a t e t h e i r defence
p l a n s to t h e F r e n c h G o v e r n m e n t a s d e s i r e d by t h e l a t t e r . )
(e) A s t h e B e l g i a n G o v e r n m e n t e x p e c t t h e n e g o t i a t i o n s for t h e n e w W e s t e r n
T r e a t y to b r e a k d o w n on t h e q u e s t i o n of t h e s a f e g u a r d i n g of F r a n c e ' s
t r e a t y r e l a t i o n s w i t h R u s s i a , M . v a n Z e e l a n d s u g g e s t e d t o me t h a t
[14243] '
B
a n a t t e m p t m i g h t then be m a d e to n e g o t i a t e a t r e a t y u n d e r w h i c h
G e r m a n y , G r e a t B r i t a i n , F r a n c e , a n d possibly also I t a l y , would
g u a r a n t e e B e l g i u m ' s i n d e p e n d e n c e a n d i n t e g r i t y , a n d possibly t h a t
of the N e t h e r l a n d s ; a n d h e seemed to s u g g e s t t h a t t h i s t r e a t y m i g h t
be followed by a second t r e a t y between B r i t a i n a n d F r a n c e , or between
Britain. France and Germany, guaranteeing the German-French
f r o n t i e r a s i t w a s g u a r a n t e e d u n d e r t h e T r e a t y of L o c a r n o ; B e l g i u m
would n o t be a p a r t y to t h i s second t r e a t y . .
2. I n p a s s i n g I should like to d e a l "first W i t h M . van Z e e l a n d ' s desire to
conclude the p r o v i s i o n a l period. is:, t h e c o n t i n u a n c e of the o b l i g a t i o n s of the
e x i s t i n g T r e a t y of L o c a r n o , as speedily a s possible.
With regard to this, I
propose to ask him to await the conclusion of the exchanges of views at present
proceeding
between
the five Locarno Powers
before calling in question
the
duration
of the provisional
period, and even then to make no definite
move
without reference to me.
1
3. M e a n w h i l e , we m u s t face t h e fact t h a t t h e p r e s e n t e x c h a n g e of views
may d e m o n s t r a t e sooner r a t h e r t h a n l a t e r t h a t n o a g r e e m e n t is possible on t h e
basis of t h e old L o c a r n o T r e a t y . W e h a d b e t t e r t h e r e f o r e consider w h a t courses
will b e open to us i n t h e case of s u c h a b r e a k d o w n . T h r e e courses h a v e been
s u g g e s t e d a t different t i m e s :—
(a) T h e course o u t l i n e d in the L e t t e r s w h i c h H i s M a j e s t y ' s G o v e r n m e n t
a d d r e s s e d t o t h e F r e n c h a n d B e l g i a n G o v e r n m e n t s on t h e 1st A p r i l
l a s t ( A n n e x C).
(b) T h e course n o w p r o p o s e d by M . van Z e e l a n d , a s e x p l a i n e d in
p a r a g r a p h 1 (e).
(c) A s y s t e m w h e r e b y H i s M a j e s t y ' s G o v e r n m e n t would, i n s t e a d of e n t e r i n g
i n t o a n y a g r e e m e n t s w i t h o t h e r P o w e r s , merely s t a t e by m e a n s of a
d e c l a r a t i o n m a d e i n t h e m o s t f o r m a l m a n n e r t h a t i t is a v i t a l B r i t i s h
i n t e r e s t t h a t t h e i n d e p e n d e n c e a n d i n t e g r i t y of B e l g i u m ( a n d possibly
a l s o the N e t h e r l a n d s ) should be m a i n t a i n e d , a n d t h a t t h e F r a n c o G e r m a n f r o n t i e r should n o t be violated, a n d t h a t t h e y i n t e n d t h e r e f o r e
to intervene whenever they t h i n k it necessary in order to ensure the
r e s p e c t of t h i s v i t a l i n t e r e s t .
4 . U n d e r the l e t t e r s of the 1st A p r i l we u n d e r t o o k , should ' ' t h e effort of
c o n c i l i a t i o n " (based on a W e s t e r n t r e a t y of m u t u a l assistance) fail, t o c o n s i d e r
w i t h F r a n c e a n d B e l g i u m t h e s i t u a t i o n t h u s c r e a t e d , t o come to t h e a s s i s t a n c e of
the t w o c o u n t r i e s in respect of any m e a s u r e s j o i n t l y decided u p o n , t o t a k e a l l
p r a c t i c a b l e m e a s u r e s for a s s u r i n g t h e i r s e c u r i t y a g a i n s t u n p r o v o k e d a g g r e s s i o n ,
a n d t o e s t a b l i s h c o n t a c t s between t h e G e n e r a l Staffs. F r a n c e u n d e r t o o k t o t a k e
s i m i l a r a c t i o n , b u t B e l g i u m d i d n o t r e p l y t o o u r l e t t e r . I n view of t h e a t t i t u d e
now developed by t h e B e l g i a n G o v e r n m e n t , i t is i m p o s s i b l e t o c a r r y out these
p r o m i s e s i n t h e form of a m u t u a l g u a r a n t e e t r e a t y between t h e t h r e e P o w e r s , a s
was e v i d e n t l y c o n t e m p l a t e d : b u t t h e essence of these p r o m i s e s could be k e p t by
a d o p t i n g courses (b) or (c) a s will be s h o w n by the f o l l o w i n g p a r a g r a p h s .
5. A t first s i g h t M . v a n Z e e l a n d ' s p r o p o s a l h o l d s c e r t a i n a t t r a c t i o n s .
If
G e r m a n y s h o w s a m o d i c u m of goodwill it o u g h t to be possible f o r h e r t o become a
p a r t y to t h e B e l g i a n G u a r a n t e e T r e a t y a n d t h u s t o c o n t i n u e t o c o - o p e r a t e w i t h
t h e o t h e r W e s t e r n P o w e r s i n t h e m a i n t e n a n c e of t h e status quo i n W e s t e r n
E u r o p e . A l s o it p r o b a b l y r e p r e s e n t s t h e g r e a t e s t m e a s u r e of c o - o p e r a t i o n t h a t
we c a n in p r e s e n t c i r c u m s t a n c e s h o p e t o e x t r a c t f r o m B e l g i u m , a n d t h e r e is t h e
d a n g e r t h a t , unless w e a c c e p t the offer now, i t m a y be w i t h d r a w n a n d Belgium,
p e r h a p s u n d e r a n o t h e r P r i m e M i n i s t e r t h a n M . v a n Z e e l a n d , m a y g r a d u a l l y be
d r a w n i n t o the. G e r m a n o r b i t . On t h e o t h e r h a n d , t h e p r o p o s e d B e l g i a n T r e a t y
h a s a n u n p l e a s a n t r e s e m b l a n c e to the f a t e f u l . , " n e u t r a l i s a t i o n " t r e a t y of 1839,
a n d a l t h o u g h M . van Z e e l a n d a s s u r e s u s t h a t B e l g i u m h a s no w i s h to r e t u r n t o
her p r e - w a r " n e u t r a l i t y " a n d h a s e v e r y i n t e n t i o n of c o n t i n u i n g to fulfil her
L e a g u e o b l i g a t i o n s , nevertheless, the very c h a r a c t e r of t h e t r e a t y w i l l c e r t a i n l y
s t r e n g t h e n t h e p r e s e n t B e l g i a n i n c l i n a t i o n t o r e s i s t . a n y effort by G r e a t B r i t a i n
o r F r a n c e t o m a k e t h e i r g u a r a n t e e effective b y a s s u r i n g themselves t h a t B e l g i u m
i s c o n t r i b u t i n g effectively t o h e r own defence. S t i l l less will B e l g i u m u n d e r such
a t r e a t y be i n c l i n e d t o c o - o p e r a t e i n a n y w a y w i t h G r e a t B r i t a i n or F r a n c e in t h e
g e n e r a l d e f e n c e of t h e t e r r i t o r i a l status quo of W e s t e r n E u r o p e . B u t even more
i m p o r t a n t t h a n t h e s e c o n s i d e r a t i o n s is the fact t h a t t h e F r e n c h G o v e r n m e n t c a n
a n d would claim t h a t u n d e r o u r letter of t h e 1st A p r i l she c o u l d not be asked to
a c c e p t M. v a n Z e e l a n d s t r e a t y , unless a d e q u a t e provision w e r e m a d e a t t h e s a m e
t i m e to secure to F r a n c e t h e g u a r a n t e e w h i c h she a t p r e s e n t receives from G r e a t
B r i t a i n . T h i s could only be d o n e by m e a n s of a s e p a r a t e xAnglo-French t r e a t y ,
w h i c h , unless G e r m a n y could be i n d u c e d to j o i n it, would h a v e all t h e a p p e a r a n c e
of a n A n g l o - F r e n c h a l l i a n c e a g a i n s t G e r m a n y . I t would be difficult to i n d u c e
I t a l y to j o i n such a t r e a t y unless G e r m a n y d i d so too. A s for G e r m a n y , all h e r
objections w h i c h , p r e s u m a b l y , will h a v e r e n d e r e d impossible a new L o c a r n o T r e a t y
- F r a n c e ' s E a s t e r n c o m m i t m e n t s , L e a g u e of N a t i o n s control, a F r e n c h g u a r a n t e e
to G r e a t B r i t a i n , & c . — w o u l d be equally p r e s e n t when it c a m e to f o r m u l a t i n g t h i s
m o r e l i m i t e d t r e a t y . I f i t h a d been impossible to meet G e r m a n y ' s objections i n
t h e case of t h e p r o p o s e d F i v e - P o w e r T r e a t y , t h i s difficulty w o u l d be in no sense
r e d u c e d by the fact t h a t B e l g i u m w a s now e x c l u d e d from t h e scope of t h i s more
limited treaty.
6. T h e r e r e m a i n s t h e d e c l a r a t o r y method. If H i s M a j e s t y ' s G o v e r n m e n t
m a d e a d e c l a r a t i o n a s o u t l i n e d in p a r a g r a p h 3 (c) it would, of course, be essential
t h a t France should make a similar declaration g u a r a n t e e i n g this country and
B e l g i u m ( a n d , possibly, t h e N e t h e r l a n d s ) . T h e a d v a n t a g e of t h e d e c l a r a t o r y
m e t h o d is t h a t it leaves t h e door o p e n to f u t u r e d e t a i l e d a g r e e m e n t s w i t h o t h e r
P o w e r s if a n d w h e n necessary, w h i l e it relieves H i s M a j e s t y ' s G o v e r n m e n t of
h a v i n g to t a k e a n e a r l y decision in favour of a n A n g l o - F r e n c h t r e a t y . A t t h e
s a m e t i m e t h i s system would e n a b l e H i s M a j e s t y ' s G o v e r n m e n t to fulfil in t h e i r
e s s e n t i a l s t h e p r o m i s e s t h e y m a d e to F r a n c e i n t h e -letter of the 1st A p r i l , a n d
a t t h e same t i m e i t would give H i s M a j e s t y ' s G o v e r n m e n t a n d F r a n c e a locus
standi, if they d e s i r e d it, for p r e s s i n g B e l g i u m for a s s u r a n c e s r e g a r d i n g t h e
efficacy of h e r defences and for a m e a s u r e of co-operation in t h e common defence
of t h e status quo i n - W e s t e r n E u r o p e .
7. I d o not w i s h to s u g g e s t t h a t H i s M a j e s t y ' s G o v e r n m e n t should here
a n d now m a k e t h e i r choice b e t w e e n these t w o courses. I t is difficult a t t h e p r e s e n t
m o m e n t to foresee h o w m a t t e r s a r e g o i n g to develop, and I w o u l d wish to k e e p
my h a n d s free u n t i l I can f o r m a more a c c u r a t e e s t i m a t e t h a n is possible a t
p r e s e n t of t h e p r o s p e c t s of t h e n e w " L o c a r n o " t r e a t y , and of t h e causes w h i c h
a r e likely t o r e n d e r it impossible for such a t r e a t y to m a t e r i a l i s e in p r e s e n t
c o n d i t i o n s . / would -propose, therefore,
to warn M. van Zeeland
that I see
serious difficulties
in the way of his new plan, and that I would be grateful
if
he woidd therefore abstain from putting
it forward,
even unofficially,
until
the
situation
has further
developed.
I would add, however, to M. van Zeeland
that
I saw considerable
advantage
in his carrying out the suggestion
he made to me,
of finding some early excuse for an unofficial visit to Paris for conversation
with
tlie French
Government.
8. S u p e r i m p o s e d u p o n t h i s p r o b l e m of f u t u r e policy is t h e m o r e i m m e d i a t e
question w h i c h h a s been c r e a t e d by t h e a c t i o n of t h e B e l g i a n G o v e r n m e n t in
w i t h h o l d i n g in a n y f u t u r e t r e a t y t h e g u a r a n t e e w h i c h B e l g i u m h a s , h i t h e r t o ,
given t o F r a n c e . T h e F r e n c h G o v e r n m e n t a r e p r e s s i n g for c o n s u l t a t i o n w i t h
H i s M a j e s t y ' s G o v e r n m e n t in o r d e r t o settle w h a t m e a s u r e of co-operation should
still be r e q u i r e d of B e l g i u m i n t h e absence of B e l g i u m ' s former g u a r a n t e e . T h i s
question a r i s e s p r i m a r i l y in c o n n e x i o n w i t h t h e e x c h a n g e of views now p r o c e e d i n g
r e g a r d i n g a n e w " L o c a r n o " t r e a t y , b u t i t w i l l subsist in t h e case w h e r e , a s a
result of such " L o c a r n o " t r e a t y f a i l i n g to m a t e r i a l i s e , H i s M a j e s t y ' s G o v e r n ­
ment a r e called u p o n to a d o p t a n y of t h e other courses w h i c h I h a v e e x a m i n e d
in t h i s p a p e r . A n e a r l y decision is necessary, a s t h e F r e n c h G o v e r n m e n t a r e
p r e s s i n g to k n o w o u r views on t h e subject.
:
9. T h e p o s i t i o n i s a s follows : Since the w a r we h a v e a l w a y s proceeded on­
the a s s u m p t i o n t h a t B e l g i u m s h o u l d co-operate a s a full and active c o l l a b o r a t o r
in the m u t u a l defence o f "the " t e r r i t o r i a l status qyo i n - " W e s t e r n ' E u r o p e . - This,
a s s u m p t i o n d e r i v e d f r o m t h e conviction t h a t t h e p r e v i o u s policy of " B e l g i u m ' s
n e u t r a l i s a t i o n , w h i c h h a d e x i s t e d from 1839-1914; h a d f a i l e d l a m e n t a b l y when
p u t to t h e test i n t h e l a t t e r y e a r . T h i s policy of full c o o p e r a t i b m W a s not only
formally embodied i n t h e T r e a t y of Locarno, b u t it forms t h e basis on w h i c h
H i s M a j e s t y V G o v e r n m e n t a r e a t p r e s e n t c o n d u c t i n g t h e i r n e g o t i a t i o n s "for a new­
W e s t e r n P a c t of M u t u a l G u a r a n t e e .
"
; . - ::­
:
:
a 4 i h - .[14243j '
£Bl^d£*
EhoK
:
^ f f ^ t ^ . ^ ^
.
10. I t s object is to t r y to m a k e o u r g u a r a n t e e effective b y e n l i s t i n g tbe
c o - o p e r a t i o n of B e l g i u m in t h e defence of t h e t e r r i t o r i a l status qve of W e s t e r n
E u r o p e a n d e n s u r i n g t h a t she c o n t r i b u t e s effectively to her own defence. In
p u r s u a n c e of t h i s policy, t h e F r e n c h w i s h to o b t a i n a p o s i t i v e u n d e r t a k i n g from
t h e B e l g i a n G o v e r n m e n t t h a t B e l g i u m w i l l , u n d e r p a r a g r a p h 3 of A r t i c l e 16 of
t h e C o v e n a n t of the L e a g u e of N a t i o n s ( A n n e x D) give p a s s a g e over h e r t e r r i t o r y
to a F r a n c e a c t i n g a g a i n s t G e r m a n y w h e n declared to be a n a g g r e s s o r ; t h a t the
B e l g i a n G o v e r n m e n t will c o m m u n i c a t e t h e i r defence p l a n s to the F r e n c h Govern­
m e n t ; a n d t h a t p o s i t i o n s w i l l be p r e p a r e d in B e l g i a n t e r r i t o r y w h i c h F r e n c h
troops c a n t a k e u p before G e r m a n y e n t e r s it. I s i t d e s i r a b l e t h a t H i s M a j e s t y ' s
G o v e r n m e n t should s u p p o r t t h e F r e n c h i n these d e m a n d s a n d t h a t t h e B e l g i a n
G o v e r n m e n t should, in a d d i t i o n , be called u p o n to define their u n d e r t a k i n g to
forbid access to B e l g i a n t e r r i t o r y , so as to m a k e it clear t h a t they w i l l r e s i s t not
only a violation by the G e r m a n A r m y of B e l g i a n t e r r i t o r y , b u t also of B e l g i a n air
by G e r m a n a i r c r a f t ?
11. T h e m a i n a r g u m e n t in f a v o u r of t h e policy of c o - o p e r a t i o n seems to be
t h a t i t i s a g r e a t r i s k to be c o m m i t t e d to a g u a r a n t e e of B e l g i a n i n d e p e n d e n c e
a n d i n t e g r i t y w i t h o u t r e c e i v i n g in r e t u r n a n y a s s u r a n c e s from B e l g i u m a s to her
f u t u r e p l a n s a n d policy u n d e r t h e n e w T r e a t y . T h e g i v i n g of a g u a r a n t e e to
B e l g i u m is a much more serious m a t t e r n o w t h a n w h e n t h e T r e a t y of L o c a r n o was
n e g o t i a t e d in 1925. A t t h a t t i m e t h e G e r m a n A r m y w a s confined w i t h i n the
l i m i t s of t h e T r e a t y of V e r s a i l l e s a n d t h e R h i n e l a n d w a s d e m i l i t a r i s e d . Y e t in
those d a y s w e enjoyed t h e i n d i r e c t benefit of t h e g u a r a n t e e w h i c h B e l g i u m gave
t o F r a n c e . T h a t g u a r a n t e e is n o w to go a n d , a s t h i n g s s t a n d a t p r e s e n t , w e shall,
a f t e r t h e e x p i r y of t h e p r e s e n t p r o v i s i o n a l period, be left only w i t h some general
s t a t e m e n t s of good i n t e n t i o n s by the B e l g i a n P r i m e M i n i s t e r , w h o m a y be out
of power a n d d i s o w n e d t o - m o r r o w . I t is c o m p r e h e n s i b l e t h a t t h e F r e n c h will
n o t be satisfied w i t h such a s i t u a t i o n , a n d w i l l p r e s s for i t s i m p r o v e m e n t .
12. T h e a l t e r n a t i v e policy is to t r y t o p r o d u c e a s i t u a t i o n i n w h i c h w e and
t h e F r e n c h c a n base our p l a n s on t h e a s s u m p t i o n t h a t G e r m a n y w i l l n o t violate
B e l g i a n t e r r i t o r y or a i r ; a n d w h i c h w i l l e n s u r e t h e g r e a t e s t possible c h a n c e of
B e l g i u m k e e p i n g o u t of a n y w a r . T o j u d g e from r e c e n t r e p o r t s s u b m i t t e d by
t h e C h i e f s of Staff, I g a t h e r t h a t they w o u l d propose t h e complete a b a n d o n m e n t
of the policy of c o - o p e r a t i o n w i t h B e l g i u m , a n d i t s r e p l a c e m e n t by a policy of
w h a t t h e y described as B e l g i a n " n e u t r a l i t y , " b u t w h i c h w o u l d be m o r e correctly
d e s i g n a t e d a s " n o n - b e l l i g e r e n c y . " N o t only do they d e p r e c a t e a n y co-operation
between B e l g i u m on the one side a n d F r a n c e a n d G r e a t B r i t a i n on t h e o t h e r for
t h e b e t t e r defence of B e l g i u m ' s i n d e p e n d e n c e a n d i n t e g r i t y ; they w o u l d go even
f u r t h e r a n d r e s t o r e in i t s e n t i r e t y t h e p r e - w a r system w h e r e b y B e l g i u m as a
" n e u t r a l i s e d S t a t e " w a s f o r b i d d e n to u n d e r t a k e a n y c o m m i t m e n t s or obligations
w h i c h m i g h t lead her to become a b e l l i g e r e n t in c e r t a i n c i r c u m s t a n c e s . F o r this
p u r p o s e i t w o u l d seem t h a t t h e y w o u l d welcome a c t i o n w h e r e b y B e l g i u m would
be formally released from those o b l i g a t i o n s w h i c h a r e b i n d i n g u p o n h e r i n virtue
of A r t i c l e 16 of the C o v e n a n t .
13. I n s u p p o r t of t h i s v i e w it m i g h t , I suppose, be a r g u e d t h a t if Belgium
i s " n e u t r a l " (or n o n - b e l l i g e r e n t ) , t h e v i o l a t i o n of B e l g i a n t e r r i t o r y by G e r m a n y
could a p p e a r t o t h e w o r l d i n no o t h e r l i g h t t h a n w a n t o n a g g r e s s i o n . Be t h a t as
i t may, w o r l d i n d i g n a t i o n , however i n t e n s e , w o u l d n o t d r i v e t h e G e r m a n a r m y out
of B e l g i u m i n a f u t u r e w a r a n y more t h a n i t d i d in 1914. I t m i g h t p e r h a p s also
be said t h a t if B e l g i u m w e r e " n e u t r a l " (or n o n - b e l l i g e r e n t ) , t h e r e w o u l d be less
c h a n c e of t h e v i o l a t i o n of h e r t e r r i t o r y by G e r m a n y t h a n i n 1914, because the
B e l g i a n defences a r e s t r o n g e r t h a n t h e n . B u t even if t h a t is the case, w o u l d not
t h e a d o p t i o n by B e l g i u m of s u c h a p o s i t i o n d i m i n i s h t h e p r e s s u r e w h i c h could be
b r o u g h t u p o n h e r by F r a n c e a n d t h i s c o u n t r y to m a i n t a i n a d e q u a t e , d e f e n c e s ; and
w h a t g u a r a n t e e should w e h a v e t h a t , as t h e y e a r s passed, those defences w o u l d not
become i n a d e q u a t e a n d i n c r e a s i n g l y i n a d e q u a t e 1 O u r leverage m i g h t , in fact,
v a n i s h a t a n y t i m e , a n d t h u s w o u l d d i s a p p e a r one of t h e a r g u m e n t s on w h i c h the
r e c o m m e n d a t i o n of t h e C h i e f s of Staff is f o u n d e d . A g a i n , i t m i g h t be u r g e d that
n e w d e t e r r e n t s t o G e r m a n a g g r e s s i o n h a v e been c r e a t e d by t h e p r o p o s e d extension
of the M a g i n o t line to t h e sea a n d t h e f a c t t h a t it is now k n o w n t h a t B r i t a i n will
c e r t a i n l y fight for t h e s e c u r i t y of B e l g i u m . B u t t h e e x t e n d e d M a g i n o t line is still
o n l y in p r o c e s s of c o n s t r u c t i o n ; a n d , as r e g a r d s the G e r m a n view of t h e certainty
of B r i t i s h i n t e r v e n t i o n , reference m a y be m a d e to a t e l e g r a m from H i s M a j e s t y ' s
A m b a s s a d o r a t B e r l i n of the 2 5 t h November. I t is t h e r e s t a t e d t h a t t h e i n f o r m a ­
t i o n of the h i g h e r N a z i circles is t h a t t h e B r i t i s h public will not fight a g a i n f o r
F r a n c e or B e l g i u m for a t least a g e n e r a t i o n , a n d t h a t t h e fighting s p i r i t is so
d o r m a n t in E n g l a n d t h a t only a n a t t a c k on t h e E m p i r e would a w a k e n it.
14. I n t h e l i g h t of these o b s e r v a t i o n s some d o u b t is l e g i t i m a t e w h e t h e r
the G e r m a n G e n e r a l Staff m a y not s t i l l hold t h a t B e l g i u m is the easiest line of
a d v a n c e on P a r i s a n d t h e C h a n n e l p o r t s ; a n d in t h i s connexion i t is p e r h a p s
l e g i t i m a t e t o p o i n t out t h a t , as c o m p a r e d w i t h 1914, t h e v u l n e r a b i l i t y of t h e
U n i t e d K i n g d o m a n d , t h e r e f o r e , p r e s u m a b l y , t h e a t t r a c t i v e n e s s of any d i r e c t
r o u t e to t h e U n i t e d K i n g d o m , h a s been increased by t h e development of t h e a i r
weapon. I n fact, e v e r y t h i n g seems t o confirm t h e e a r l i e r view of t h e C h i e f s o f
Staff t h a t t h e chances of B e l g i a n " n e u t r a l i t y " b e i n g m a i n t a i n e d t h r o u g h o u t a
W e s t e r n E u r o p e a n w a r a r e remote. I w o u l d go f u r t h e r a n d say t h a t they a r e so
r e m o t e as to be almost negligible. Nevertheless, in t h e i r l a t e s t r e p o r t s t h e C h i e f s
of Staff would a p p e a r to recommend t h a t o u r policy a n d o u r s t r a t e g y should be
based e n t i r e l y on t h i s a d m i t t e d l y r e m o t e p o s s i b i l i t y .
15. T o me t h i s seems to c o n s t i t u t e a r i s k which is a l t o g e t h e r too g r e a t a n d
w h i c h we o u g h t n o t to be invited to r u n u n t i l it is absolutely u n a v o i d a b l e . I n
o t h e r w o r d s , t h e a r g u m e n t s w h i c h have been a d v a n c e d so f a r have n o t convinced
me t h a t it is e i t h e r d e s i r a b l e or safe t o a l t e r t h e policy of c o - o p e r a t i o n w i t h
B e l g i u m w h i c h F r a n c e , a n d to a less e x t e n t H i s M a j e s t y ' s G o v e r n m e n t , h a v e
followed since t h e w a r .
16. Moreover, by r e c o m m e n d i n g for B e l g i u m a policy of non-co-operation
we s h o u l d be g o i n g f u r t h e r t h a n M. v a n Z e e l a n d , who, to j u d g e from h i s conversa­
tions, i s p r e p a r e d for some m e a s u r e of co-operation. I n a n y case, h e h a s never
suggested t h a t B e l g i u m should be free f r o m h e r o b l i g a t i o n s u n d e r A r t i c l e 16 of
the C o v e n a n t . All t h a t he h a s s t i p u l a t e d is t h a t B e l g i u m s h o u l d be free t o
i n t e r p r e t t h e m herself. I f now B e l g i u m were, for our p u r p o s e s , relieved of these
obligations, o t h e r S t a t e s m i g h t well desire t h e same a d v a n t a g e s for their p u r p o s e s ;
a n d t h e d i s i n t e g r a t i o n of t h e L e a g u e i n i t s p r e s e n t f o r m would t h u s h a v e received
a c o n s i d e r a b l e i m p u l s i o n a t our h a n d s . On the o t h e r h a n d , by s h o w i n g the
B e l g i a n s t h a t w e a r e i n favour of some m e a s u r e of co-operation, we shall
s t r e n g t h e n t h e h a n d s of those B e l g i a n s w h o a r e a n x i o u s t o c o - o p e r a t e w i t h u s i n
defence of B e l g i a n t e r r i t o r y a n d shall c o r r e s p o n d i n g l y w e a k e n those who, in the
face of t h e g r o w i n g m e n a c e of G e r m a n y , a r e r e a d y to s u b m i t t o G e r m a n influence
and, if need be, G e r m a n d i c t a t i o n .
17. I n p r i n c i p l e t h e r e f o r e I a d h e r e t o a policy of co-operation between the
U n i t e d K i n g d o m , F r a n c e a n d Belgium. B u t since i n p r a c t i c e it i s clear t h a t
B e l g i u m is n o t likely t o go beyond t h e a t t i t u d e w h i c h M . v a n Z e e l a n d h a s n o w
t a k e n u p t o w a r d s A r t i c l e 16 of t h e C o v e n a n t , a n d t o w a r d s t h e c o m m u n i c a t i o n
of defence p l a n s , I s h o u l d p r o p o s e to t a k e t h e f o l l o w i n g line in d i s c u s s i n g w i t h
the F r e n c h a n d B e l g i a n G o v e r n m e n t s the p o i n t s w h i c h the F r e n c h h a v e r a i s e d
with m e i n connection w i t h t h e B e l g i a n decision to give no g u a r a n t e e u n d e r t h e
proposed n e w " L o c a r n o " T r e a t y :—
(1) The French
Government
having
raised
the question
of
Belgium'^
responsibilities
under paragraph
3 of Article
16 of the Covenant in the
matter
of the passage of troops across Belgian territory,
I would propose to advise
them
to agree with M. van Zeeland to accept as the best solution that can be obtained
in the circumstances
the assurance which he is apparently
ready to (jive, to the
effect that he recognises Belgium's
obligations
under paragraph
3 of Article
16,
provided that Belgium
is alone fudge of the circumstances
when, and extent
to
which, she shall carry out these
obligations.
(2) I should ask the Belgian Government
(again either alone or jointly
with
the French) to define their undertaking
to forbid access to their territory,
so as
to mean that they will resist not only a violation
by the German army of
Belgian
territory, but also of Belgian air by German aircraft.
This seems
particularly
important
for us.
(3) I should urge the Belgian Government
to do all they can to remove the,
present uncertainty
as regards
their attitude
towards
co-operation
with
the
French, and impress upon them the importance
that both we and the French, attach,
[14243]
'
B 3
to being assured at regular intervals that Belgium
is continuing
to maintain
her
defences in such a state of efficiency as really to be able to carry out her under­
taking not to grant access to her territory or allow it to serve as a passage or base
for operations
for German military
or aeronautical
forces.
A gain this seems of
vital importance
to us; and its reasonableness
has been admitted
by M. van
Zeeland.
(4) In discussing
with the French the question of urging
the Belgians
to
define the extent to which they are prepared
to co-operate with France, I should
make it clear that, although I sympathise
with the desire of the French to remove
the present
uncertainty,
I am not prepared
to take part in any
detailed
discussions
with regard to the actual French proposals
(i.e., communication
of
defence plans, and. the preparation
of positions
in Belgian territory
for
French
troops), since His Majesty's
Government
themselves
do not wish to
participate
in such measures of co-operation.
The latter desideratum
I am satisfied that the
Belgian Government
would not in any circumstances
grant.
Foreign
Office, December
5, 1936.
ANNEX
Mr. Eden
A.
to Sir E. Ovey
[Brussels).
(No. 608.)
Sir,
Foreign Office, November 30, 1936.
T H E B e l g i a n P r i m e M i n i s t e r took t h e o p p o r t u n i t y of h i s r e c e n t v i s i t t o
L o n d o n t o e x p l a i n to m e t h e p r e s e n t a t t i t u d e of t h e B e l g i a n G o v e r n m e n t as a
r e s u l t of the s i t u a t i o n c r e a t e d by the w i t h d r a w a l by B e l g i u m of t h e g u a r a n t e e
she h a s h i t h e r t o given to F r a n c e .
M. v a n Z e e l a n d stressed t h e f a c t t h a t h e h a d n e v e r u s e d t h e w o r d
" n e u t r a l i t y " i n d e s c r i b i n g B e l g i u m ' s n e w position, a n d i n s i s t e d t h a t h e h a d
n o w i s h to see B e l g i u m r e t u r n to the p o s i t i o n of a n e u t r a l i s e d S t a t e as before
1914.
O n t h e c o n t r a r y , h e s t a t e d definitely t h a t t h e B e l g i a n G o v e r n m e n t
c o n s i d e r e d themselves b o u n d by all t h e i r e x i s t i n g o b l i g a t i o n s , t h a t i s to say, by
t h e C o v e n a n t of t h e L e a g u e a n d by t h e a r r a n g e m e n t of t h e 1 9 t h M a r c h , which
k e p t a l i v e t h e c o n d i t i o n s of t h e L o c a r n o T r e a t y as between G r e a t B r i t a i n , F r a n c e
and Belgium.
A s r e g a r d s the Covenant, M. van Zeeland did not deny t h a t in certain
c i r c u m s t a n c e s B e l g i u m w a s b o u n d by p a r a g r a p h 3 of a r t i c l e 16 a s r e g a r d s the
p a s s a g e of t r o o p s across h e r t e r r i t o r y . . T h e p o i n t , however, h e d i d i n s i s t upon
w a s t h a t B e l g i u m s h o u l d in every case be t h e j u d g e a s to w h e n a n d whether
t h e s e c i r c u m s t a n c e s h a d a r i s e n ; h e could n o t allow t h i s q u e s t i o n to be decided
over t h e h e a d of B e l g i u m by F r a n c e o r by a n y o u t s i d e body.
As r e g a r d s B e l g i u m ' s o b l i g a t i o n s u n d e r t h e a r r a n g e m e n t of t h e 1 9 t h March,
M . v a n Z e e l a n d stressed t h e f a c t t h a t t h e s e o b l i g a t i o n s w e r e c l e a r l y of a
provisional character.
T h e y clearly m u s t n o t be a l l o w e d to c r y s t a l l i s e into
p e r m a n e n t o b l i g a t i o n s , a n d h e w a r n e d m e t h a t h e c o n s i d e r e d t h a t t h e provisional
p e r i o d could n o t l a s t m u c h "longer in view of t h e d e c r e a s i n g p r o s p e c t s of a new
L o c a r n o . I n case, t h e r e f o r e , of t h e p r e s e n t n e g o t i a t i o n s for a n e w L o c a r n o
h a v i n g to be a b a n d o n e d , h e h a d been t h i n k i n g over w h a t could best t a k e t h e place
of t h i s p r o v i s i o n a l r e g i m e , a n d h e now p r o p o s e d t h e f o l l o w i n g p l a n :—
I t w a s p r o b a b l e t h a t t h e n e g o t i a t i o n s for a n e w L o c a r n o w o u l d suffer ship­
w r e c k on t h e rock of F r a n c e ' s o b l i g a t i o n s i n t h e E a s t . I t w a s i n d e e d these same
o b l i g a t i o n s w h i c h m a d e i t difficult for B e l g i u m to a s s u m e c o m m i t m e n t s vis-a-vis
o f F r a n c e . On t h e o t h e r h a n d , t h e r e , w a s g e n e r a l a g r e e m e n t between all the
p a r t i e s t h a t B e l g i u m ' s i n d e p e n d e n c e a n d i n t e g r i t y o u g h t to be g u a r a n t e e d , a n d
h e s u g g e s t e d t h a t a new t r e a t y m i g h t be c o n s t r u c t e d r o u n d t h i s n u c l e u s , t h a t is
t o say, t h a t G e r m a n y , G r e a t B r i t a i n , F r a n c e , B e l g i u m , a n d possibly also Italy,
s h o u l d e a c h a e r e e to g u a r a n t e e B e l g i u m ' s i n d e p e n d e n c e a n d i n t e g r i t y . M. van
Z e e l a n d c o n s i d e r e d , moreover, t h a t the N e t h e r l a n d s m i g h t be r e a d y t o e n t e r into
s u c h a t r e a t y on t h e s a m e t e r m s as B e l g i u m . M. v a n Z e e l a n d d i d n o t exclude
the possibility in such a t r e a t y of B e l g i u m f u r n i s h i n g i n f o r m a t i o n to F r a n c e
a n d G r e a t B r i t a i n to a s s u r e t h e m of t h e c o n t i n u e d efficacy of B e l g i u m ' s own
defences, but he s t i p u l a t e d t h a t B e l g i u m m u s t be free to give s i m i l a r i n f o r m a t i o n
to G e r m a n y if the l a t t e r r e q u i r e d it, as B e l g i u m could not associate herself
exclusively w i t h a n y p a r t i c u l a r P o w e r s .
M . van Z e e l a n d seemed to s u g g e s t t h a t this B e l g i a n g u a r a n t e e system would
be a c c o m p a n i e d by a n A n g l o - F r e n c h or possibly a n A n g l o - F r e n c h - G e r m a n t r e a t y
to g u a r a n t e e t h e G e r m a n - F r e n c h f r o n t i e r in the same w a y as i t w a s g u a r a n t e e d
u n d e r t h e T r e a t y of L o c a r n o , b u t B e l g i u m would definitely not be a p a r t y to t h i s
second t r e a t y .
M . van Z e e l a n d s a i d he h a d been very d i s a p p o i n t e d and s u r p r i s e d at the
c r i t i c a l a t t i t u d e which t h e F r e n c h b a d t a k e n u p as r e g a r d s t h e K i n g of the
B e l g i a n s ' speech. I t w a s p o i n t e d o u t to h i m t h a t it w a s only n a t u r a l t h a t the
F r e n c h should be u p s e t a t b e i n g s u d d e n l y d e p r i v e d of B e l g i u m ' s g u a r a n t e e a f t e r
the a s s u r a n c e s of m u t u a l a s s i s t a n c e w h i c h h a d been e x c h a n g e d l a s t M a r c h , a n d
t h a t t h e y should be a n x i o u s to see w h e t h e r they could n o t save o u t of t h e wreckage
for the f u t u r e some m e a s u r e of t e c h n i c a l c o - o p e r a t i o n between F r a n c e a n d
B e l g i u m . T o t h i s M . v a n Z e e l a n d r e p l i e d t h a t h e w a s q u i t e willing, a n d indeed
i n t e n d e d , to i n i t i a t e f u r t h e r conversations s h o r t l y w i t h F r e n c h M i n i s t e r s w i t h a
view to r e a s s u r i n g t h e m of B e l g i u m ' s policy and i n t e n t i o n s .
I am, &c.
ANTHONY EDEN.
A N N E X B.
:
Sir E. Ovey to Mr.
Eden.—(Received
December
3.)
( T e l e g r a p h i c . ) En clair.
Bmssels,
December 3, 1936.
F O L L O W I N G i s t h e t e x t of M . v a n Z e e l a n d ' s r e m a r k s i n r e g a r d to t h e
T r e a t y of L o c a r n o a n d t h e L e a g u e :-—
' ' I m u s t h e r e r e m i n d you t h a t t h e conclusion of t h e P a c t of L o c a r n o w a s
a tremendous step forward.
T h e s a m e c o n s i d e r a t i o n of i n d e p e n d e n c e a n d
of c a r e for the p r e s e r v a t i o n of e q u i l i b r i u m a m o n g o u r n e i g h b o u r s which
a n i m a t e s us a t t h e m o m e n t w e n t t o w a r d t h e m a k i n g of i t .
A t Locarno
f o r m e r enemies f o u n d themselves p l a c e d on a f o o t i n g of e q u a l i t y , a n d our
c o u n t r y r e t a i n e d t h e p o s i t i o n w h e r e i n i t believed t h a t i t could most effectively
p l a y i t s role of p e a c e m a k e r i n t h e west. I feel t h a t I c a n say h e r e a n d now
t h a t if w e w e r e to find ourselves a g a i n in t h e same c i r c u m s t a n c e s which
p r e v a i l e d a t the p e r i o d w h e n the T r e a t y of L o c a r n o w a s signed, in t h e light
of e v e r y t h i n g w h i c h w e h a v e since seen, we w o u l d h a v e to clo a g a i n t h a t
w h i c h w e h a v e done. B u t , i n r e a l i t y , c i r c u m s t a n c e s h a v e been modified; t h e
c o n c e p t i o n s w h i c h d i c t a t e d t h e T r e a t y of L o c a r n o r e m a i n i n t a c t , b u t they
m u s t be a p p l i e d to a s i t u a t i o n w h i c h h a s been p r o f o u n d l y c h a n g e d .
The
r e o c c u p a t i o n of t h e R h i n e l a n d , G e r m a n r e a r m a m e n t , t h e w e a k e n i n g of t h e
L e a g u e of N a t i o n s , involve t h e m u l t i p l i c a t i o n of p a c t s a n d t h e confusion
w h i c h flows from them, all these elements oblige us t o a d a p t o u r a t t i t u d e to
t h e n e w c i r c u m s t a n c e s . H e n c e the c l e a r - c u t p o s i t i o n w h i c h t h e G o v e r n m e n t
h a s t a k e n u p a n d w h i c h f o u n d its e x p r e s s i o n i n t h e R o y a l speech.
" Gentlemen, somebody h a s d a r e d in t h i s H o u s e t o t r y to establish a
d i s t i n c t i o n (I k n o w n o t how) between t h e a t t i t u d e of t h e G o v e r n m e n t a n d
t h e K i n g ' s speech. B u t h a s t h e f a c t been lost s i g h t of t h a t t h e p u b l i c a t i o n
of t h e K i n g ' s speech is a d e c l a r a t i o n of t h e G o v e r n m e n t ? W e live u n d e r a
p a r l i a m e n t a r y regime, a r e g i m e of c o n s t i t u t i o n a l m o n a r c h y . T h e K i n g acts
t h r o u g h t h e i n t e r m e d i a r y of h i s M i n i s t e r s , a n d i t i s t h e G o v e r n m e n t w h o
bear t h e r e s p o n s i b i l i t y , w h o e n d o r s e , w h o a p p l y a n d w h o m a k e t h e i r own
t h e policy so magnificently set o u t i n t h e R o y a l s p e e c h . " ( A p p l a u s e from
t h e G o v e r n m e n t side.)
" H o w e v e r , I w o u l d not, I t h i n k , be c o m m i t t i n g a n y breach of d i s c r e t i o n
w h e n I say t h a t w h e n a t t h a t h i s t o r i c a l council H i s M a j e s t y m a d e to h i s
M i n i s t e r s t h e c o m m u n i c a t i o n c o n t a i n e d i n t h a t f a m o u s speech the
s p o n t a n e o u s r e a c t i o n to i t was such t h a t one member of t h e C a b i n e t s t r a i g h t
a w a y d e c l a r e d : ' T h e r e is n o t one w o r d of t h i s speech t o w h i c h w e c a n n o t
subscribe unreservedly.'
A n d , G e n t l e m e n , to t h i s speech, w h i c h h a s
become t h r o u g h p u b l i c a t i o n a d e c l a r a t i o n of the G o v e r n m e n t , n o one h a s
t h e r i g h t to give m o r e or less f a n t a s t i c or more or less i m a g i n a r y
i n t e r p r e t a t i o n s . N o one h a s t h e r i g h t to c u t i t into pieces nor keep t h a t p a r t
of it w h i c h pleases h i m a n d to t h r o w a w a y t h e rest. T h e d e c l a r a t i o n , which
is a g r e a t d e c l a r a t i o n , c o n s t i t u t e s a n e n t i t y w h i c h m u s t be t a k e n a s such.
I t d e m o n s t r a t e s in a m a r v e l l o u s f a s h i o n a s a c r e d a n d i n d e s t r u c t i b l e bond
w h i c h u n i t e s in one single c o n c e p t i o n the views on foreign'policy-" a n d t h e
v i e w s on m i l i t a r y policy w h i c h a r e e x p r e s s e d t h e r e i n . A n d I d o n o t u n d e r ­
s t a n d h o w a n y b o d y c a n d a r e t o i n v o k e t h e R o y a l speech a n d be g o v e r n e d
i n m i l i t a r y affairs by a n y p r i n c i p l e o t h e r t h a n those w h i c h h a v e a n i m a t e d
t h e K i n g a n d h i s G o v e r n m e n t , i n o t h e r w o r d s the vote on m i l i t a r y defence
w h i c h is s u b m i t t e d t o y o u . "
S p e a k i n g on a policy of i n d e p e n d e n c e M. v a n Z e e l a n d w e n t on :—
" I n d e p e n d e n c e does n o t m e a n a n a b s u r d p r e t e n s i o n t o w a r d s isolation,
still less a d a n g e r o u s a n d blind m i s a p p r e c i a t i o n of o u r d u t i e s . On t h e c o n t r a r y ,
w e m e a n to c a r r y o u t our d u t i e s a n d , as a first s t e p , to p u t ourselves in a
p o s i t i o n t h e b e t t e r to fulfil t h e m . S m a l l c o u n t r i e s , more t h a n a n y o n e else,
s h o u l d be c a r e f u l s c r u p u l o u s l y to r e s p e c t a n d , i n full, to a p p l y all t h e
o b l i g a t i o n s w h i c h they have u n d e r t a k e n . W e h a v e a l w a y s d o n e t h i s . W e
a l w a y s shall, b u t t h i s is y e t a f u r t h e r reason for n o t u n d e r t a k i n g
o b l i g a t i o n s e x c e p t w i t h p r u d e n c e a n d for only u n d e r t a k i n g such obliga­
t i o n s a s we could fulfil a n d s u c h as a r e e n t i r e l y precise, c l e a r a n d l i m i t e d ;
o b l i g a t i o n s w h i c h could not d r a g u s into a d v e n t u r e s w i t h w h i c h w e h a v e
n o t h i n g to do.
' ' W h a t a r e our o b l i g a t i o n s t h e n ? T o b e g i n w i t h we a r e m e m b e r s of
t h e L e a g u e of N a t i o n s . O u r p o s i t i o n vis-a-vis
t h e L e a g u e of N a t i o n s
h a s n o t c h a n g e d ; w e r e m a i n convinced t h a t t h e L e a g u e of N a t i o n s
r e p r e s e n t s a g r e a t effort t o w a r d s a b e t t e r f u t u r e . W e believe i n i t s usefulness,
w e believe in i t s f u t u r e . N o t e m p o r a r y check, however g r a v e , c a n modify
o u r policy, b u t w e h a v e never t h o u g h t t h a t t h e L e a g u e f r e e d u s (from t h e
o b l i g a t i o n s ) to m a k e t h e m a x i m u m effort i n o u r p o w e r to p r o t e c t ourselves.
W e h a v e a l w a y s considered i t a n d w e w i l l s t i l l consider it a s a s u p p l e m e n t a r y
f a c t o r w h i c h i n c e r t a i n c i r c u m s t a n c e s could afford u s a s s i s t a n c e , a n d I t h i n k
t h a t w e h a v e n o r i g h t to reject a n y element w h i c h , i n difficult m o m e n t s , could
succour u s in a n y d e g r e e a t all; A l a s , if w e look f a c t s i n t h e f a c e w e m u s t
t o - d a y recognise t h a t t h e s u p p o r t b r o u g h t or p r o m i s e d by t h e L e a g u e a n d
i t s m e m b e r s is, since the reverse ( w h i c h i t suffered) in t h e m a t t e r of E t h i o p i a ,
sensibly r e d u c e d . T h u s our fidelity to t h e L e a g u e of N a t i o n s u r g e s us to
seek t o define, w h i l e l i m i t i n g c e r t a i n l y b u t a t the s a m e t i m e m a k i n g them
p e r f e c t l y clear, t h e o b l i g a t i o n s w h i c h a r e i n c u m b e n t u p o n u s by v i r t u e of
t h e C o v e n a n t u n t i l t h e s e definitions have been g i v e n a n d p a r t i c u l a r l y as
r e g a r d s a r t i c l e 16. W e will a c c e p t no o t h e r i n t e r p r e t a t i o n e x c e p t t h a t which
w e t h i n k p r o p e r to g i v e t h e m a s a sovereign S t a t e .
" T h e o t h e r k i n d of i n t e r n a t i o n a l e n g a g e m e n t s w h i c h w e h a v e arise
from t h e T r e a t y of L o c a r n o . T h e y a r e a t t h e m o m e n t p r o v i s i o n a l l y embodied,
if I m a y say so, i n t h e a g r e e m e n t s r e a c h e d in L o n d o n l a s t M a r c h . A g a i n —
a n d t h a t goes w i t h o u t s a y i n g — w e a r e s t r i c t l y a n d r i g o r o u s l y loyal t o these
e n g a g e m e n t s , as to t h e o t h e r s ; b u t these L o n d o n a g r e e m e n t s h a v e a provi­
s i o n a l c h a r a c t e r ; t h e y a r e to be r e p l a c e d by o t h e r s ; t h e y c o u l d n o t in any
w a y be t r a n s f o r m e d a u t o m a t i c a l l y i n t o definite a g r e e m e n t s , a n d we wish
t h e n e w a g r e e m e n t s t o w a r d s w h i c h w e a r e a i m i n g to be c o n c l u d e d as quickly
a s possible, by w h a t e v e r m e t h o d i t m a y be.
" W e h a v e clearly defined "what p o s i t i o n w e w o u l d t a k e i n t h e negotia­
t i o n s of t h e s e n e w a c c o r d s ; w e will n o l o n g e r give to F r a n c e a n d G e r m a n y
t h e g u a r a n t e e which is w r i t t e n d o w n i n t h e a c c o r d s of L o c a r n o of 1925—a
g u a r a n t e e w h i c h n o n e t h e less a t t h a t m o m e n t w a s n e c e s s a r y a n d justified,
a g u a r a n t e e w h i c h w o u l d be t o - d a y inefficacious, d a n g e r o u s a n d unjustifiable.
" A s for s a y i n g t h a t w e w i l l not assist i n the o r g a n i s a t i o n of peace in
t h e west, f a r f r o m it, w e have a g r e a t d u t y to fulfil t o w a r d s o u r neighbours,
o u r h i s t o r i c a l role w h i c h derives f r o m o u r g e o g r a p h i c a l p o s i t i o n ; i t is o u r duty
t o t h e best of o u r a b i l i t y to isolate (' i m m u n i s e r ') one of t h e most sensitive
p o i n t s in t h e west, a n d probably of t h e world, in p r e v e n t i n g o u r t e r r i t o r y
from s e r v i n g a s a s t a r t i n g - p o i n t or a s a p a s s a g e or p a w n to one or o t h e r of
t h e g r e a t c o u n t r i e s which c a n . ami h a v e so often, entered i n t o conflict. W e
lessen by t h a t action in a considerable m e a s u r e the possibilities a n d t h e risks
of conflict. S u c h is the service which all o u r n e i g h b o u r s have a r i g h t to expect
from u s . I t is our d u t y to p r o t e c t t h e m reciprocally, t h e ones from t h e o t h e r s
all round us, a n d with, t h a t in view i t is necessary t h a t we. should be s t r o n g
j n e v e r y w a y , s t r o n g enough to be able to snatch a w a y iu a d v a n c e from o u r
n e i g h b o u r s every a d v a n t a g e w h i c h t h e y could t a k e by a violation of o u r
f r o n t i e r s , a n d thus, here we a r e . b r o u g h t back to the m i l i t a r y p r o b l e m . To
follow t h e policy of independence w h i c h we have, a n d in o r d e r t h a t t h i s policy
should h a v e the results which we desire, t h a t is to say, peace a t h o m e as an
element of peace in the west a n d in t h e w o r l d , it is necessary t h a t w e m a k e
every effort in o u r p o w e r ; a n d t h a t is t h e reason w h y i t is necessary for us
t o a s s u r e for ourselves a cover for o n r mobilisation, a n d t h a t is the reason
w h y it is n e c e s s a r y t h a t our a r m y should h a v e resources in men a n d in riches
c o m m e n s u r a t e w i t h t h e i m p o r t a n c e of o u r country. B u t a t t h e s a m e t i m e t h a t
is t h e r e a s o n w h y it is necessary for o u r m i l i t a r y o r g a n i s a t i o n to c o r r e s p o n d
w i t h the conception of o u r f o r e i g n policy, w h i c h I h a v e j u s t o u t l i n e d . W e
r e q u i r e a m i l i t a r y system w h i c h should n o t p e r m a n e n t l y be directed a g a i n s t
anybody, n o r t i e d u p in a p e r m a n e n t f a s h i o n w i t h t h e m i l i t a r y conceptions of
a n y o n e else. T h a t is t h e conception w h i c h is a t the bottom of the d r a f t B i l l
w h i c h w e h a v e s u b m i t t e d to y o u . "
ANNEX
Mr. Eden
to M. Corbin
and to Baron
C.
de Cartier
de
Marchienne.
Your Excellency,
Foreign Office, April 1, 1936.
I H A V E t h e h o n o u r to h a n d h e r e w i t h to your Excellency t h e l e t t e r
contemplated in t h e T e x t of P r o p o s a l s d r a w n u p on t h e 19th M a r c h by t h e
r e p r e s e n t a t i v e s of B e l g i u m , F r a n c e , t h e U n i t e d K i n g d o m of G r e a t B r i t a i n a n d
N o r t h e r n I r e l a n d , a n d I t a l y . Y o u r Excellency w i l l a p p r e c i a t e t h a t t h e d e l i v e r y
of t h i s l e t t e r in no w a y i m p l i e s t h a t in t h e v i e w of H i s M a j e s t y ' s G o v e r n m e n t
in the U n i t e d K i n g d o m t h e effort of conciliation r e f e r r e d to in this l e t t e r h a s
failed. A s you a r e a w a r e , we have to-day received from t h e G e r m a n G o v e r n m e n t
certain p r o p o s a l s w h i c h we h a v e c o m m u n i c a t e d to y o u r G o v e r n m e n t a n d to w h i c h
we a r e g i v i n g o u r i m m e d i a t e c o n s i d e r a t i o n .
M e a n w h i l e , H i s M a j e s t y ' s G o v e r n m e n t a r e w i l l i n g , in accordance w i t h
p a r a g r a p h I I I of t h e P r o p o s a l s , to i n s t r u c t t h e i r G e n e r a l Staffs f o r t h w i t h to
enter i n t o c o n t a c t w i t h the B e l g i a n G e n e r a l Staffs, w i t h a view to a r r a n g i n g t h e
technical c o n d i t i o n s in w h i c h t h e obligations r e f e r r e d to in t h a t p a r a g r a p h s h o u l d
be c a r r i e d o u t in case of u n p r o v o k e d a g g r e s s i o n .
On behalf of H i s M a j e s t y ' s G o v e r n m e n t I h a v e the h o n o u r to s t a t e t h a t i t is
understood t h a t t h i s c o n t a c t between t h e G e n e r a l Staffs c a n n o t give rise i n r e s p e c t
of either G o v e r n m e n t to a n y p o l i t i c a l u n d e r t a k i n g , n o r to a n y o b l i g a t i o n r e g a r d i n g
the o r g a n i s a t i o n of n a t i o n a l defence. I shall be g l a d to h a v e y o u r E x c e l l e n c y ' s
confirmation t h a t t h i s is likewdse t h e u n d e r s t a n d i n g of y o u r G o v e r n m e n t ,
H i s M a j e s t y ' s G o v e r n m e n t p r o p o s e t h a t t h e conversations between t h e
General Staffs of t h e t w o c o u n t r i e s , necessary for e s t a b l i s h i n g t h e c o n t a c t s i n
question, s h o u l d be b e g u n in L o n d o n .
I am a d d r e s s i n g a s i m i l a r letter to the F r e n c h A m b a s s a d o r .
I have, &c.
ANTHONY EDEN.
ANNEX
Paragraph
3 of Article
D.
Id of the
Covenant.
T H E M e m b e r s of t h e L e a g u e agree, f u r t h e r , t h a t t h e y will m u t u a l l y s u p p o r t
one a n o t h e r in the financial a n d economic m e a s u r e s w h i c h a r e t a k e n u n d e r this
A r t i c l e , in o r d e r to m i n i m i s e t h e loss a n d inconvenience r e s u l t i n g from t h e above
m e a s u r e s , a n d t h a t t h e y will m u t u a l l y s u p p o r t one a n o t h e r i n r e s i s t i n g a n y special
m e a s u r e s a i m e d a t one of t h e i r n u m b e r by the c o v e n a n t - b r e a k i n g S t a t e , a n d t h a t
they w i l l t a k e the necessary s t e p s to afford p a s s a g e t h r o u g h t h e i r t e r r i t o r y to the
forces of a n y of t h e M e m b e r s of the L e a g u e w h i c h a r e c o - o p e r a t i n g to p r o t e c t the
c o v e n a n t s of the L e a g u e .