Security Studies and the Use of History: Neville Chamberlain's Grand Strategy Revisited

In The Gathering Storm, Winston S. Churchill claimed that during the 1930s British leaders were willfully blind to the German threat and failed to meet it by rearming. Accepting the Churchillian narrative, leading IR scholars regard British grand strategy during the 1930s as glaring example of strategic adjustment failure. This article reappraises British grand strategy during the 1930s and rejects both the Churchillian narrative, and the scholarly claims that Britain did not adjust its strategy to the German threat. In the 1930s, Britain did balance against Germany and focused on countering what policy makers perceived as the key threat facing Britain: its vulnerability to German air attack. Britain's grand strategic options were limited by external conditions and by domestic economic constraints. Neville Chamberlain, therefore, was playing a weak hand, and did the best that he could with the cards he was dealt. Britain's 1930s grand strategy is one of the historical cases most frequently used by IR scholars for theory testing. For that reason alone, it is important to get the history right. This is not the only reason, however. The 1930s have provided many of the concepts, images, and metaphors that have dominated the discourse about American foreign policy since World War II. Because scholarship about the events of the 1930s shapes the discourse about real-world policy, getting the history right matters.     

‘A question between empires’: the restriction of Japanese immigration in British Columbia and the reassessment of Japan's foreign policy, 1907–1908

Abstract

Great Britain was the first of the major Powers that revised its unequal treaty with Japan, recognizing the success of Japan's modernization and its growing role in the international arena. However, British Columbia perceived Japanese residents as a threat to ‘the British character’ of this regions' population profile. After the movement against Japanese residents in British Columbia peaked during the anti-Japanese riots in Vancouver in September of 1907, Canadian Minister of Labor Rodolphe Lemieux headed a diplomatic delegation to Tokyo to negotiate the restriction of Japanese immigration to Canada. The dispatch of this mission revealed some of the complexities in relations between the Colonial and Foreign Offices in London on the one hand and the Dominion's and British Columbian governments on the other. Based on previously unused primary sources, this article will examine the interplay between the policy towards Japanese migrants in the British Dominion of Canada and the British policy towards Japan as a nation.     

Britain and Japan: Long-Range Images, 1900-52

The Anglo-Japanese Alliance signed in 1902 was revised substantially in 1905 and 1911. It survived the First World War and did not lapse until 1923. For two decades, it enabled Britain to withdraw its navy from East Asia, leaving its commercial interests to the protection of Japan. Meanwhile it enabled Japan to expand its influence in Korea and China. There was not an immediate breach of the alliance, but interests clashed in China in the difficult world of economic collapse in the 1930s. When they failed to come to an accommodation, Japan declared war on Britain in 1941. After the war, Britain shared with the United States the task of policing the military occupation of Japan. But when that occupation came to an end in 1952 during the anxious days of the Korean war, the vast majority of Japanese believed that their country's future rested with Washington.     

Britain and Japan: Long-Range Images, 1900–52

The Anglo–Japanese Alliance signed in 1902 was revised substantially in 1905 and 1911. It survived the First World War and did not lapse until 1923. For two decades, it enabled Britain to withdraw its navy from East Asia, leaving its commercial interests to the protection of Japan. Meanwhile it enabled Japan to expand its influence in Korea and China. There was not an immediate breach of the alliance, but interests clashed in China in the difficult world of economic collapse in the 1930s. When they failed to come to an accommodation, Japan declared war on Britain in 1941. After the war, Britain shared with the United States the task of policing the military occupation of Japan. But when that occupation came to an end in 1952 during the anxious days of the Korean war, the vast majority of Japanese believed that their country's future rested with Washington.     

High Hopes,Bold Aims,Limited Results: Britain and the Establishment of the NATO Mediterranean Command, 1950–1953

Although a great deal has been written about British policy in the Middle East in the late 1940s and early 1950s, the reorganization of the Southern flank of Supreme Headquarters Allied Powers Europe after the admission of Greece and Turkey into the North Atlantic Treaty Organisation and the assumption of NATO's naval Mediterranean Command by Britain has attracted little attention. This article analyses British aims and policy on the formation of the Mediterranean Command, the talks between London and Washington concerning the appointment of a Naval Commander-in-Chief, the attitudes of France, Italy, Greece, and Turkey towards British policy, and finally, the establishment of NATO's Mediterranean Command in conjunction with the reorganization of SHAPE's Southern flank. For strategic as well as prestige reasons, Britain tried to retain its traditional dominant eastern Mediterranean position by encouraging the establishment of an Allied naval Mediterranean Command under a British Commander-in-Chief. However, the decline of British military and naval power and political influence meant that Britain secured a compromise settlement which only partially satisfied its aspirations.     

再议英国在新马合并与分离中的态度和作用

马来西亚计划公布之初，英国态度犹豫不决，更倾向于支持新马合并。由于马来亚联合邦不肯做任何让步，英国遂改变立场，转而支持马来西亚计划。马来西亚成立后，英国在军事、外交及经济方面给予了很大的帮助。在行动党与联盟出现矛盾时，英国从中斡旋，在协调新马关系方面起到了一定作用。但由于各种原因，英国并没有能够阻止新马分家。     

Ferocious Times: The IRA,the RIC,and Britain's Failure in 1919–1921

The 1916 Rising was, in military terms, a shambolic failure. Despite the fact that Britain was locked in a gruelling struggle with Germany, the Rising was still utterly crushed within a week. How then, in the aftermath of victory against Germany, did Britain fail to win the subsequent struggle with the Irish Republican Army (IRA) between 1919 and 1921? This article assesses some of the key factors that played out in the conflict, drawing particular attention to the IRA's focus on the Royal Irish Constabulary and the consequences of this, and then later, how distorted perceptions of the proximity of success ultimately undermined British commitment. One of the most remarkable features of the conflict was the widespread belief among many on the British side (and more than a few in the Republican camp) that the IRA was on the verge of total defeat when the truce was declared in 1921. The IRA had suffered heavy casualties and were running low on weapons and ammunition. Yet, somehow the movement prevailed. This article aims to shed light on how and why that happened.     

“Screening the Food from the Flies”: Britain,Kuwait, and the Dilemma of Protection, 1961-1971

This study looks at how the widening gap between Britain’s available military resources and its remaining overseas commitments in the 1960s affected its ability and willingness to protect Kuwait after the latter elected for independence in June 1961. It provides a fresh account of how successive British governments addressed the dilemma of providing adequate cover for the Kuwaiti commitment. Over the course of the decade, Britain found it increasingly difficult to maintain the minimum forces considered necessary for forestalling an attack from Kuwait’s principal threat – Iraq. The challenge of providing protection became more difficult by political conditions in Kuwait, which prohibited the stationing of troops, and the evolving nature of the Iraqi threat. British decision-makers increasingly saw the Kuwaiti military as a way to make up for the shortfall in cover and eventually replacing British protection altogether. This move towards self-reliance, however, would prove a failed strategy for Kuwait over the long term.     

India’s fitful quest for seapower

Building on several years of research, and many interviews of Indian naval officers and government officials, both serving and retired, this article aims to provide a deeper understanding of the context and ramifications of India's naval rise. In particular, it seeks to explain a troubling paradox: the relative neglect of the navy vis-à-vis the other services, and the seeming misalignment of New Delhi's military strategy with its maritime geography. Indeed, the country's enviable position at the heart of the Indian Ocean, along with its peninsular formation, large exclusive economic zone, and extensive coastlines, would seem to suggest a natural predisposition towards the exercise of naval power. In reality, however, India's navy since independence has consistently been the most poorly funded of its military services, and has frequently struggled to make do with limited resources. The core question this article endeavors to address is whether this trend will persist, or whether various factors will combine in order to provoke a gradual rebalancing of the nation's military strategy and force structure.     

Public Goods,Club Goods,and Private Interests:

Abstract

This paper sheds light on the question of how domestic elite preferences drive states’ foreign policies by studying British efforts to suppress maritime piracy in the South China Sea in the 1920s and 1930s. The archival record shows that the British conducted military interventions, which included destroying entire Chinese villages, principally to serve the private aims of London business elites. Absent these parochial interests Britain ignored pirate attacks, including attacks on British-flagged ships. This finding challenges the standard structural explanation, put forward by global public goods scholars, that powerful maritime states suppress piracy to protect universal access to the global maritime commons. It does so through a detailed examination of the principal example cited by this argument’s supporters: historical British counter-piracy efforts. Understanding why states pursue their foreign policies also provides a greater understanding of why powerful states choose to serve as global public goods providers in some instances but not in others.     

Political linguistics and events research

In an early study of the impact of defense spending on economic growth in Latin America, it was suggested that the military burden hampered growth (Lieuwen, 1962). Recent studies, however, have found the relationship to be positive (Biswas and Ram, 1986; Frederiksen and Looney, 1983). The present study differs from those by considering the relationship between “guns and growth” over time, and by looking at both the overall and externality effects of military spending. The findings demonstrate that defense spending has both positive and negative impacts on economic growth in Latin America, but that there is no net positive effect. This finding will be obscured by research designs which do not disaggregate the effects of military spending into both its size and externality components.     

The Spirit of Ulysses? Ideology and British Appeasement in the 1930s

The British government's appeasement of fascism in the 1930s derived not only from economic, political, and strategic constraints, but also from the personal ideologies of the policy makers. Widespread guilt about the terms of the Versailles Treaty and tensions with France created sympathy for German revisionism, but the Cabinet properly recognized that Nazi Germany represented the gravest threat to peace in the 1930s. Fear of war and the recognition that Britain would have to tolerate peaceful change underlay attempts to appease the dictators, culminating in the Munich agreement in September 1938. After Munich, continued German belligerence, the Kristallnacht, and British intelligence assessments indicating that Hitler was prepared to attack the Western powers led to a reassessment of appeasement. The British government gave security guarantees to several European countries, seeking to deter future aggression and to lay the groundwork for a successful war against Germany should it prove necessary. While most of the British elite detested communism, anti-communist views did not govern British policy; security considerations required Soviet support in Eastern Europe, and Britain and France made a determined effort to secure Soviet support for the Peace Front.     

“A Trivial and Unimportant Ally”? Britain and the West German-Soviet Treaty Negotiations, 1970

ABSTRACT

This analysis explores British perceptions and roles regarding the negotiation of the West German-Soviet Moscow treaty of 1970. Whilst supportive of West German Ostpolitik, Britain has received a very marginal role in the historiography of the treaty. By exploring the consultation process in the so-called Bonn Group of the United States, Britain, France, and West Germany, this exegesis explains that Britain played a leading role in building consensus and forming schemes to resolve the issue of the treatment of Quadripartite Rights and Responsibilities concerning Berlin in the Moscow treaty package. As background, this essay also explains the policies of the Harold Wilson’s Labour government and Edward Heath’s Conservative government regarding European détente in Europe, including West German Ostpolitik.     

Liberal intervention in the foreign policy thinking of Tony Blair and David Cameron

David Cameron was a critic of Tony Blair's doctrine of the ‘international community’, which was used to justify war in Kosovo and more controversially in Iraq, suggesting caution in projecting military force abroad while in opposition. However, and in spite of making severe cuts to the defence budget, the Cameron-led Coalition government signed Britain up to a military intervention in Libya within a year of coming into office. What does this say about the place liberal interventionism occupies in contemporary British foreign policy? To answer this question, this article studies the nature of what we describe as the ‘bounded liberal’ tradition that has informed British foreign policy thinking since 1945, suggesting that it puts a distinctly UK national twist on conventional conservative thought about international affairs. Its components are: scepticism of grand schemes to remake the world; instinctive Atlanticism; security through collective endeavour; and anti-appeasement. We then compare and contrast the conditions for intervention set out by Tony Blair and David Cameron. We explain the similarities but crucially the vital differences between the two leaders' thinking on intervention, with particular reference to Cameron's perception that Downing Street needed to loosen its control over foreign policymaking after Iraq. Our argument is that policy substance, policy style and party political dilemmas prompted the two leaders to reconnect British foreign policy with its ethical roots, ingraining a bounded liberal posture in British foreign policy after the moral bankruptcy of the John Major years. This return to a pragmatic and ethically informed foreign policy meant that military operations in Kosovo and Libya were undertaken in quite different circumstances, yet came to be justified by similar arguments from the two leaders.     

“We Can't be more Russian than the Russians”: British Policy During the Liman von Sanders Crisis, 1913–1914

This article examines British policy in the Liman von Sanders crisis, which arose between Germany and Russia in late 1913. It takes issue with recent arguments that Britain was too closely bound to the Dual Alliance of France and Russia, that concern for her Indian empire determined her foreign policy, and that the Anglo-German cooperation in 1912 and 1913 was a hollow détente. Britain played an important role in resolving the crisis, by restraining an erratic Russian policy and appealing to Germany to make concessions. Moreover, Britain was the dominant power in the entente and influenced French restraint in this crisis. This served Britain's interests in Turkey, which aimed at the strengthening of that state. Finally, the resolution of the crisis demonstrated a functioning international system, based on alliances and the Concert of Europe, not a system on the verge of collapse into war.     

The politics of naval aid: the foreign office, the admiralty, and Anglo-Soviet technical cooperation, 1936-37

This article examines the interdepartmental friction caused by Soviet requests for technical naval assistance from Britain between 1936 and 1937. With an eye to the deteriorating global situation, the Admiralry remained wedded to the view that any help leading to the strengthening of the Soviet navy would only wreck Germanys commitment to crucial qualitative and quantitative naval restrictions. Adopting a different tack, the Foreign Office welcomed the opportuniry to accommodate Soviet fleet requirements as a means of forging Anglo-Soviet amiry and a European balance of power. Ultimately however, the fate of Anglo-Soviet technical cooperation was determined by the exigencies of British rearmament.     

Decolonizing an informal empire: Argentina,Great Britain,and the United States, 1930–1943

The key to understanding how the relationship between Argentina and Great Britain changed during the decade after 1930 lies in the evolution of the British economy and the shifting configuration of political forces within the British Commonwealth of nations after World War I that made it impossible for Great Britain to maintain the old imperial relationship with Argentina. The purpose of Argentine foreign policy during the 1930s was to buy time to alter the internal structure of dependence and allow Argentina greater flexibility in world affairs. Until the structure of the economy could be Changed, primary product exports were vital to the national interest. First the Argentines tried to salvage some portion of their relationship with Great Britain and the market stability they needed in the Roca‐Runciman Pact (1933). Next, they turned to the U.S. for help, but with no success. By 1943, the British and Argentine economies were no longer structurally compatible and the U.S. had declined to accommodate Argentine economic needs. These frustrations provoked a strong nationalist reaction in Argentina against dependence. Argentine governments‐civilian and military‐retreated to a policy of neutrality as the best means of securing the most favourable terms for the sale of the nation's exportable agricultural surplus.     

Identity,Insecurity, and Great Power Politics:The Tragedy of German Naval Ambition Before the First World War

Why did Germany pursue naval expansion at the turn of the twentieth century? This question has long puzzled scholars of international security, who consider German naval ambition to be an instance of suboptimal arming—a decision that decreased Germany's overall security and risked the survival of the German state. This article argues that the social desire to be recognized as a world power guided Germany's decision to challenge British naval hegemony. From the beginning of its naval planning, Germany had one clear aim: a powerful fleet of battleships stationed in the North Sea would alter the political relationship with Britain in such a way that it could no longer ignore Germany's claim to world power status. Reconceptualizing Germany's naval ambition as a struggle for recognition elucidates the contradictions at the center of German naval strategy, explaining how the doomed policy could proceed despite its certain failure. The article concludes that the power-maximizing practices of great powers should be seen as an important component of identity construction and an understudied dimension of contemporary security practice.     

Henry Cabot Lodge,Hawaii, and the Shift from Continental to Hemispheric Defense

Over the course of the 1890s, the United States shifted from a continental defense model toward a hemispheric one. Senator Henry Cabot Lodge (R-MA) was a leading proponent of this shift. Lodge was convinced that the United States needed to build a blue-water navy, acquire maritime bases overseas, establish its predominance in Central America, and push US influence out into the Pacific. The first test of this vision came not against Spain or Germany in the Caribbean, but against the possibility of British and Japanese influence over Hawaii in 1894–95. Domestic political and economic considerations acted mainly as a constraint on Lodge’s vision rather than as a basis for it. The main impetus was strategic, as he looked to safeguard an extended security zone for the United States in Atlantic, Pacific, and Caribbean waters. As he put it, “I would take and hold the outworks, as we now hold the citadel, of American power.”     

In Pursuit of a Pacific Strategy:British Planning for the Defeat of Japan, 1943-45

This article seeks to explain why the British pushed for a role in Pacific operations during the Second World War when it faced other strategic priorities in Southeast Asia, as well as a powerful American military that maintained tight control over operational decision-making. Although several quarters in Whitehall, including the Prime Minister, Winston Churchill, had doubts about the necessity of a Pacific strategy, there were sensible reasons behind pursuing such a course. It would illustrate to an “anti-imperialist” America that Britain was not only interested in recovering its colonial possessions but also prepared to fight the Japanese on their homeland. More importantly, taking part in the main operations would allow the British to claim a voice at the peace table while helping to encourage the Americans to cement their close working relationship with Britain in the postwar period.