This problem was considered by William James in an admirable address on “The Moral Equivalent of War,” delivered to a congress of pacifists during the Spanish-American War of 1898. His statement of the problem could not be bettered; and so far as I know, he is the only writer who has faced the problem adequately. But his solution is not adequate; perhaps no adequate solution is possible. The problem, however, is one of degree: every additional peaceful outlet for men’s energies diminishes the force which urges nations towards war, and makes war less frequent and less fierce. And as a question of degree, it is capable of more or less partial solutions.[17]
Every vigorous man needs some kind of contest, some sense of resistance overcome, in order to feel that he is exercising his faculties. Under the influence of economics, a theory has grown up that what men desire is wealth; this theory has tended to verify itself, because people’s actions are often determined by what they think they desire rather than by what they really desire. The less active members of a community often do in fact desire wealth, since it enables them to gratify a taste for passive enjoyment, and to secure respect without exertion. But the energetic men who make great fortunes seldom desire the actual money: they desire the sense of power through a contest, and the joy of successful activity. For this reason, those who are the most ruthless in making money are often the most willing to give it away; there are many notorious examples of this among American millionaires. The only element of truth in the economic theory that these men are actuated by desire for money is this: owing to the fact that money is what is
Some pacifists and all militarists deprecate social and political conflicts. In this the militarists are in the right, from their point of view; but the pacifists seem to me mistaken. Conflicts of party politics, conflicts between capital and labour, and generally all those conflicts of principle which do not involve war, serve many useful purposes, and do very little harm. They increase men’s interest in public affairs, they afford a comparatively innocent outlet for the love of contest, and they help to alter laws and institutions, when changing conditions or greater knowledge create the wish for an alteration. Everything that intensifies political life tends to bring about a peaceful interest of the same kind as the interest which leads to desire for war. And in a democratic community political questions give every voter a sense of initiative and power and responsibility which relieves his life of something of its narrow unadventurousness. The object of the pacifist should be to give men more and more political control over their own lives, and in particular to introduce democracy into the management of industry, as the syndicalists advise.
The problem for the reflective pacifist is twofold: how to keep his own country at peace, and how to preserve the peace of the world. It is impossible that the peace of the world should be preserved while nations are liable to the mood in which Germany entered upon the war—unless, indeed, one nation were so obviously stronger than all others combined as to make war unnecessary for that one and hopeless for all the others. As this war has dragged on its weary length, many people must have asked themselves whether national independence is worth the price that has to be paid for it. Would it not perhaps be better to secure universal peace by the supremacy of one Power? “To secure peace by a world federation”—so a submissive pacifist might have argued during the first two years of the war— “would require some faint glimmerings of reason in rulers and peoples, and is therefore out of the question; but to secure it by allowing Germany to dictate terms to Europe would be easy. Since there is no other way of ending war”—so our advocate of peace at any price would contend—“let us adopt this way, which happens at the moment to be open to us.” It is worth while to consider this view more attentively than it is commonly considered.
There is one great historic example of a long peace secured in this way; I mean the Roman Empire. We in England boast of the
In one case we were clearly wrong: in our resistance to revolutionary France. If revolutionary France could have conquered the Continent and Great Britain, the world would now be happier, more civilized, and more free, as well as more peaceful. But revolutionary France was a quite exceptional case, because its early conquests were made in the name of liberty, against tyrants, not against peoples; and everywhere the French armies were welcomed as liberators by all except rulers and bigots. In the case of Philip II we were as clearly right as we were wrong in 1793. But in both cases our action is not to be judged by some abstract diplomatic conception of the “liberties of Europe,” but by the ideals of the Power seeking hegemony, and by the probable effect upon the welfare of ordinary men and women throughout Europe.
“Hegemony” is a very vague word, and everything turns upon the degree of interference with liberty which it involves. There is a degree of interference with liberty which is fatal to many forms of national life; for example, Italy in the seventeenth and eighteenth centuries was crushed by the supremacy of Spain and Austria. If the Germans were actually to annex French provinces, as they did in 1871, they would probably inflict a serious injury upon those provinces, and make them less fruitful for civilization in general. For such reasons national liberty is a matter of real importance, and a Europe actually governed by Germany would probably be very dead and unproductive. But if “hegem-ony” merely means increased weight in diplomatic questions, more coaling stations and possessions in Africa, more power of securing advantageous commercial treaties, then it can hardly be supposed that it would do any vital damage to other nations; certainly it would not do so much damage as the present war is doing. I cannot doubt that, before the war, a hegemony of this kind would have abundantly satisfied the Germans. But the effect of the war, so far, has been to increase immeasurably all the dangers which it was intended to avert. We have now only the choice between certain exhaustion of Europe in fighting Germany and possible damage to the national life of France by German tyranny. Stated in terms of civilization and human welfare, not in terms of national prestige, that is now in fact the issue.
Assuming that war is not ended by one State conquering all the others, the only way in which it can be permanently ended is by a world-federation. So long as there are many sovereign States, each with its own Army, there can be no security that there will not be war. There will have to be in the world only one Army and one Navy before there will be any reason to think that wars have ceased. This means that, so far as the military functions of the State are concerned, there will be only one State, which will be world-wide.
The civil functions of the State—legislative, administrative, and judicial—have no very essential connection with the military functions, and there is no reason why both kinds of functions should normally be exercised by the same State. There is, in fact, every reason why the civil State and the military State should be different. The greater modern States are already too large for most civil purposes, but for military purposes they are not large enough, since they are not world-wide. This difference as to the desirable area for the two kinds of State introduces a certain perplexity and hesitation, when it is not realized that the two functions have little necessary connection: one set of considerations points towards small States, the other towards continually larger States. Of course, if there were an international Army and Navy, there would have to be some international authority to set them in motion. But this authority need never concern itself with any of the internal affairs of national States: it need only declare the rules which should regulate their relations, and pronounce judicially when those rules have been so infringed as to call for the intervention of the international force. How easily the limits of the international authority could be fixed may be seen by many actual examples.
The civil and military State are often different in practice, for many purposes. The South American Republics are sovereign for all purposes except their relations with Europe, in regard to which they are subject to the United States: in dealings with Europe, the Army and Navy of the United States are their Army and Navy. Our self- governing Dominions depend for their defence, not upon their own forces, but upon our Navy. Most Governments,
