Anglo – Irish Treaty Negotiations
1921
Part I: Preliminary Discussions
(July – October 1921)
Part II: Delegations & Negotiations
in London
(October – December 1921)
Part III: Dáil Debates & Vote on Treaty
(December 1921 – January 1922)
The Leaders
Dáil Eireann
British Government
Part I: Preliminary Discussions
DeValera & Lloyd George
(July – October 1921)
Background to Negotiations
• Escalating political and social unrest in Ireland throughout
1920 & 1921: British Government losing control of Ireland,
politically & militarily
• Truce and offer of negotiations made by British Government
in July 1921
• Truce comes into effect on 11th July, 1921
• Between July & October 1921, DeValera & Lloyd George meet
and correspond with each other in an attempt to resolve key
issues between British Government & Sinn Féin.
DeValera’s Talks with L. George (1920)
In 1920, DeValera held a series of
discussions with Lloyd George
about a possible settlement even
while the War of Independence
was raging throughout the
country.
The most persistent idea that
deValera espoused was that of
‘External Association’, whereby an
independent Ireland would be
choose to be ‘externally associated’
with Britain: thereby
accommodating Unionists in the
north of Ireland
Key Issues
Sovereignty
• The Proclamation of the Irish
Republic (1916) and the
Declaration of Independence
(1919) were the Republican
movement’s key manifestos.
• In these, Republicans committed
themselves to a fully-sovereign,
independent, united Ireland
Achieving an independent, unified
Ireland
Partition
• The Government of Ireland Act
(1920) remained Britain’s final
compromise towards the
situation in Ireland.
• In this provision, Ireland would
be divided, north & south, to
protect Unionist membership of
the UK and keep all of Ireland
within the British Empire
Protecting the integrity of the
British Empire
‘External Association’
• DeValera’s key concept which
envisaged an independent, united
Ireland, ‘externally associated’ to
Britain.
• This external association was
conceived as an attempt to
placate Unionists’ fears of an
Catholic-dominated,
independent Ireland and in some
way, to placate British
imperialists’ fears of a ‘domino
effect’ on their other colonies.
Choosing a Delegation:
Controversy & Confusion
DeValera’s decision to remain in Dublin:
How would External Association be argued convincingly if its author was not
present?
DeValera’s qualification of ‘Envoys Plenipotentiaries’:
‘a main question’ or ‘the complete text of the draft treaty about to be signed’
(Refer back to Dublin)
To what extent did this secret instruction diminish the Sinn Féin delegation’s
ability to achieve their objectives in negotiation?
Prelude to Negotiations
Instructions to Irish
Delegation
British Proposals &
Representatives
‘Draft Treaty A’ = External
Association
Northern Ireland already
established: therefore ‘off the table’
DeValera’s qualification of ‘Envoys
Plenipotentiaries’:
Integrity of British
Commonwealth to be maintained
Lloyd George,
Winston Churchill,
Chamberlain
& Lord Birkenhead
to form front-line negotiation team.
‘a main question’ or ‘the complete text of the
draft treaty about to be signed’ (Refer
back to Dublin)
DeValera’s insistence at remaining at
home during negotiations.
(To distance the office of President of Dáil Eireann from
unacceptable proposals & create time-lapse to control
direction of negotiations)
Government of Ireland Act (1920)
-
In response to the escalating situation
throughout most of the country, northern
Unionists moved to cement their position within
the United Kingdom.
-
The result of these talks between Craig & Lloyd
George was the Government of Ireland Act
(1920), whereby the north of Ireland would
remain part of the UK as long they wished.
-
When the Anglo-Irish Treaty was signed, one of
the key agreements was that the north of Ireland
could ‘opt out’ of the new Irish Free State if they
wished. They did so, two days after the
foundation of the Irish Free State on December
8th, 1921.
` Government of Ireland Act (1920)
•
•
•
Lloyd George hoped to bring about a
‘Home Rule all Round’ solution to
Ireland, thereby placating both
Republicans & Unionists as well as
international opinion.
Unionists demanded simple majority,
but PR was inserted into the Bill as
the voting method.
Unionists argued in favour of a 6county Northern Ireland, rather than
a 9-county Northern Ireland, thereby
ensuring their majority in the new
state.
Provisions of the Act:
-
-
-
A ‘Northern State’ of six counties & a
‘Southern State’ of 26 counties
Bicameral Parliaments, North &
South (Commons & Senate)
Each State would elect a government
& a Prime Minister
Both states would share a common
Viceroy to the King of England
Westminster would retain ‘Imperial
Powers’ over both states
A ‘Council of Ireland’ would be set up
to create a platform for discussion,
interaction & agreement between
both states.
Negotiations Begin
October 11th – December 6th
1921
Anglo – Irish Treaty Negotiations
1921
Sinn Féin Delegation
British Delegation
Arthur Griffith, Michael Collins, Robert Barton,
George Gavin Duffy, Eamon Duggan , Erskine
Childers.
Lloyd George, Winston Churchill, Lord Birkenhead ,
Austen Chamberlain
Issues of Contention
Offer of negotiation from British Government to Dáil Eireann in July 1921.
Truce declared on July 11th 1921.
Plenipotentiaries: Who should negotiate & what powers should they be granted?
“..negotiate and conclude … a treaty or treaties of settlement, association and
accommodation between Ireland and the community of nations known as
the British Commonwealth..”
‘Dominion Status’ v. ‘External Association’ : What was the ultimate aim of the
Sinn Féin delegation?
Partition, Unionism & Government of Ireland Act (1920): How would the Sinn
Féin delegation overcome the already-established Northern Ireland State?
Sinn Féin Delegation
•
•
•
•
Passionate but inexperienced
Removed from support of Dáil Éireann & Dáil Cabinet (London)
Made up of moderates & extremists
Confusion over power of plenipotentiaries
British Delegation
•
•
•
•
Highly experienced (Paris Peace Settlement, 1919)
Diplomatic craft of P.M. Lloyd George – The ‘Welsh Wizard’
Situated in London, psychological advantage
Government of Ireland Act (1920) already in place with Northern
Ireland state already founded
Goodwill Message Strikes a Nerve
Pope Benedict XV
DeValera
(to King of England)
(Public reply to Pope’s message)
• “We rejoice at the resumption of
the Anglo-Irish negotiations and
pray to the Lord with all our heart
that He may bless them and grant
to Your Majesty the great joy and
imperishable glory of bringing to
an end the age-long dissension.”
• “…They (people of Ireland) are
confident that the ambiguities in
the reply sent in the name of King
George will not mislead you into
believing that the troubles are in
Ireland, or that the people of
Ireland owe allegiance to the
British King. “
Negotiations:
Opening Plenary Sessions
11th – 24th October: The Early Opening Rounds
British delegation outline strong proposals and reinforce their aim to maintain the integrity of British
Commonwealth. Sinn Féin delegation refute British claim over Ireland & offer considered
clarifications & responses. Little discussion or progress made on key issues. However, some
tension was eased by British delegation’s assurance that nothing would be done to prevent
Ireland’s economic development.
Between 11th & 24th October, seven plenary sessions were held. Trade & finance appeared to present
little obstacle to agreement.
However, a message sent by Pope Benedict XV to the King od England expressing goodwill and a
hope for a peaceful settlement drew a strong response from DeValera in his public message to
the Pope (see previous slide)
Negotiations:
Draft Treaty ‘A’ & Recognition of the Crown
24th October: ‘Draft Treaty A’
Griffith & Collins present the first draft of Irish proposals – ‘Draft Treaty A’.
The term ‘Republic’ is not used in this draft, and discussions focus primarily on
issue of defense.
2nd – 8th November: Discussions on Recognition of the Crown
Collins & Griffith meet with Lloyd George, Birkenhead & Chamberlain
Griffith & Collins continue to struggle with ‘External Association’ concept, with the
previous discussions and notes having moved the position more towards
‘Dominion Status’.
Negotiations:
Griffith’s Letter & “Essential Unity”
2nd November:
Griffith, under pressure from Lloyd George, who was himself under pressure from the
House of Commons, wrote a letter assuring them that he would recommend Ireland’s
membership of the British Commonwealth in return for “essential Unity” of Ireland:
“I assured you in reply that, provided I was so satisfied, I was
prepared to recommend a free partnership of Ireland with the
other States associated within the British Commonwealth, the
formula defining the partnership to be arrived at in later
discussion. I was, on the same condition, prepared to
recommend that Ireland should consent to a recognition of the
Crown as head of the proposed association of free States.”
- Arthur Griffith
Negotiations:
Tom Jones & The Boundary Commission
8th November:
Tom Jones, Lloyd George’s secretary proposed the setting up of a ‘Boundary Commission’ to look at
the border between a future Irish State (26 counties) & Northern Ireland (established by Govt.
of Ireland Act 1920) in return for Sinn Féin’s acceptance of a partitioned Ireland.
10th November:
Lloyd George meets with James Craig, representing the Unionists of Ulster. Craig explicitly rejects any
involvement in an all-Ireland Parlieament. The potential threat of a Boundary Commission did
not sway him either. Lloyd George needed the support of Conservatives in his government and
Craig knew the Conservatives would support his position.
Negotiations:
Lloyd George & Griffith
12th November:
Meeting between Lloyd George & Griffith where the concept of a Boundary Commission
is discussed officially for the first time. The next day, following Griffith’s
recommendation, the Dáil Cabinet would agree reluctantly to the idea of a Boundary
Commission.
•
*Griffith was assured that the work of the Boundary Commission would benefit
nationalists far more than Unionists. However, details or written assurances to this
effect were neither sought nor offered.*
Negotiations:
22nd November – 30th November
Discussion now moved to the issue of Soveriegnty.
External Association V. Dominion Status
22nd November:
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Sinn Féin delegation submit their memorandum, repeating their deman for External
Association, while guaranteeing Ireland’s non-alignment with any enemies of Britain.
On the 24th November, the British reject any proposal of External Association that
does not include a role for the British Crown in Ireland.
The British offered ‘Dominion Status’, arguing that this would mean complete
freedom from interference. The Sinn Féin delegation countered that Britain could still
interfere legally in a dominion’s internal affairs.
The British argued that dominions enjoyed total freedom from interference, citing
Canada as a domion who would object to any interference in any dominion.
Sinn Féin rejected the comparison with Canada, arguing that an Irish Army and Navy
could be interfered with/ opposed by the British.
Negotiations:
Britain’s Final Draft & Dáil’s Rejection
1st December
Lloyd George presented the Sinn Féin delegation with Britain’s final draft of the Treaty:
•‘Irish Free State’ would be a dominion of the British Empire
•All TDs to Dáil Eireann would have to swear an oath to the King as he would be the Head
of State.
•Northern Ireland could ‘opt out’ of the Irish Free State.
3rd December
•After returning to Dublin with Britain’s offer, divisions appear in Dáil. Dominion Status
was rejected, while the Boundary Commission was accepted. Griffith wanted DeValera to
go to London if it was to be rejected, but eventually agreed to return himself. DeValera
wrote instructions about a change in the wording of the oath to the King.
Negotiations:
“War. Immediate & Terrible”
4th December
Sinn Féin delegation re-writes draft Treaty based on DeValera’s instructions and divisions
erupt within the delegation itself. When presented to the British delegation, they reject it
outright. Talks break off again.
5th December
Private meeting between Collins & Lloyd George, where the British Prime Minister
assured Collins of the effectiveness of the Boundary Commission and agreed to revisit the
wording of the oath of allegiance. Collins agreed to a final round of negotiations.
At this, Lloyd George threatened war if he did not get a definitive acceptance to the Draft
Treaty, as he had to inform Craig and the Ulster Unionists on the 6th December. He used
the analogy of two envelopes, one of which would be sent by Imperial messenger to
Craig. War or Peace?
Anglo-Irish Treaty
6th December 1921
• When Griffith hesitated, demanding to know Craig’s position, Lloyd
George produced Griffith’s letter of assurance to accept the Boundary
Commission in return for essential unity.
• A final, subtle alteration to the Oath of Allegiance (whereby TDs would
swear “true faith & allegiance” to their own Constitution and to be
“faithful” to the King) seemed to offer an important, symbolic concession
by the British.
• After much delaying by some of the Sinn Féin delegation, they all signed
the Treaty at 2:10 a.m. on 6th December 1921.
• The formation of the Irish Free State had been agreed in principle.
Anglo-Irish Treaty
•
Articles 1 & 2: Irish Free State recognised as a dominion of the British
Commonwealth.
•
Articles 3 & 4: The King of England would be represented in Ireland by a GovernorGeneral and that all TDs in Dáil Eireann would have to swear an oath of allegiance
to the King.
•
Article 5: The Irish Free State would pay a share of the UK war debt.
•
Articles 6 – 9: The ‘Treaty Ports’: British Navy would have access to Cobh,
Berehaven & Lough Swilly.
•
Articles 11 – 15: Northern Ireland & its right to ‘opt out’ of Irish Free State
•
Article 12: The Boundary Commission to be set up to determine the border
between North & South, if the Northern Parliament (Stormont) opted out of the
Irish Free State.
Dáil Debates & Vote on Treaty
December 8th 1921 – January 7th
1922
Dáil Debates Anglo-Irish Treaty
M. Collins (Pro-Treaty)
E. deValera (Anti-Treaty)
• Freedom to achieve
freedom
• Control of Internal Affairs
• Removal of British forces
from Ireland
• Oath of Allegiance
• Partition
• Dominion Status
Dáil Vote on Anglo-Irish Treaty
7th January 1922
Republican Ideal
Irish Free State: “freedom
to achieve freedom”
Oath of
Allegiance
unacceptable
Partition
unacceptable
Boundary Commission to
examine Partition Border