War Powers in Europe Before 1914

From The Sleepwalkers: How Europe Went to War in 1914, by Christopher Clark (Harper, 2013), pp. 239-241:

Even if we were to assume that the foreign policies of the pre-war European powers were formulated and managed by compact executives animated by a unified and coherent purpose, reconstructing the relations among them would still be a daunting task, given that no relationship between any two powers can be fully understood without reference to relations with all of the others. But in the Europe of 1903–14, the reality was even more complex than the ‘international’ model would suggest. The chaotic interventions of monarchs, ambiguous relationships between civil and military, adversarial competition among key politicians in systems characterized by low levels of ministerial or cabinet solidarity, compounded by the agitations of a critical mass press against a background of intermittent crisis and heightened tension over security issues made this a period of unprecedented uncertainty in international relations. The policy oscillations and mixed signalling that resulted made it difficult, not just for historians, but for the statesmen of the last pre-war years to read the international environment.

It would be a mistake to push this observation too far. All complex political executives, even authoritarian ones, are subject to inner tensions and oscillations. The literature on twentieth-century US foreign relations dwells at length on intra-governmental power struggles and intrigues. In a brilliant study of the US entry into the Vietnam War, Andrew Preston shows that while Presidents Lyndon B. Johnson and John F. Kennedy were reluctant to wage war and the State Department was largely opposed to intervention, the smaller and more nimble National Security Council, which strongly favoured war and operated beyond congressional oversight, narrowed down the president’s options on Vietnam until war was virtually unavoidable.

Yet the situation in pre-First World War Europe was different (and worse) in one important respect. For all the tensions that may evolve within it, the American executive is actually – in constitutional terms – a very tightly focused organization in which responsibility for executive decisions in foreign policy ultimately falls unambiguously upon the president. This was not the case for the pre-war European governments. There were perennial doubts about whether [Foreign Secretary] Grey had the right to commit himself as he did without consulting the cabinet or Parliament; indeed, these doubts were so pressing that they prevented him from making a clear and unequivocal statement of his intentions. The situation was even fuzzier in France, where the balance of initiative between the ministry of foreign affairs, the cabinet and the presidency remained unresolved, and even the masterful and determined [President] Poincaré faced efforts to shut him out of the decision-making process altogether in the spring of 1914. In Austria-Hungary, and to a lesser extent in Russia, the power to shape foreign policy flowed around a loose human circuitry within the hivelike structure of the political elite, concentrating at different parts of the system, depending upon who formed the more effective and determined alignments. In these cases, as in Germany, the presence of an ‘all-highest’ sovereign did not clarify, but rather blurred the power relations within the system.

It is not a question, as in the Cuban Missile Crisis, of reconstructing the ratiocinations of two superpowers sifting through their options, but of understanding sustained rapid-fire interactions between executive structures with a relatively poor understanding of each other’s intentions, operating with low levels of confidence and trust (even within the respective alliances) and with high levels of hostility and paranoia. The volatility inherent in such a constellation was heightened by the fluidity of power within each executive and its tendency to migrate from one node in the system to another. It may be true that dissent and polemics within the diplomatic services could have a salutary effect, in that they raised questions and objections that might have been suppressed in a more disciplined policy environment. But the risks surely outweighed the benefits: when hawks dominated the signalling process on both sides of a potentially conflictual interaction, as happened in the Agadir crisis and would happen again after 28 June 1914, swift and unpredictable escalations could be the result.

European Presses Before 1914

From The Sleepwalkers: How Europe Went to War in 1914, by Christopher Clark (Harper, 2013), pp. 229-231:

It remained unclear how the public opinion within articulate elites with direct access to the press related to the attitudes prevailing among the masses of the population. War scares and jingo campaigns made good newspaper copy, but how socially deep were they? It was a grave mistake, the German consul-general in Moscow warned in December 1912, to assume that the belligerence and Germanophobia of the Russian ‘war party’ and the Slavophile press were characteristic of the mood in the country, for these circles entertained only ‘the loosest connection with the actual tendencies of Russian life’. The problem with German newspaper coverage of these issues, the consul argued, was that it tended to be written by journalists with little experience of Russia and a very narrow range of elite social contacts. In May 1913, the Belgian minister in Paris, Baron Guillaume, acknowledged the efflorescence of ‘a certain chauvinism’ in France. It could be observed not just in the nationalist papers, but also in the theatres, reviews and café-concerts, where numerous performances offered jingoist fare that was ‘calculated to over-excite spirits’. But, he added, ‘the true people of France do not approve of these manifestations . . .’

All the governments, with the exception of Britain, maintained press offices whose purpose was both to monitor and, where possible, to shape press coverage of issues touching on security and international relations. In Britain, the foreign secretary appears to have felt little need to convince (or even inform) the public of the merits of his policies and there were no official efforts to influence the press; many of the major newspapers received handsome subsidies, but these came from private or party-political sources, rather than from government. This did not, of course, prevent a dense network of informal relationships from developing between Whitehall officials and key journalists. The picture in Italy was rather different. Giovanni Giolitti, prime minister (for the fourth time) in 1911–14, made regular payments to at least thirty journalists in return for supportive coverage of his policies. The Russian foreign ministry acquired a press department in 1906, and from 1910 Sazonov orchestrated regular tea-time meetings at the ministry with the most important editors and Duma leaders. Relations between the Russian diplomats and some favoured newspapers were so close, one journalist reported in 1911, that the ministry of foreign affairs in St Petersburg ‘often seemed a mere branch office of the Novoye Vremya’. The newspaper’s editor, Jegorov, was often to be seen in the ministry’s press bureau, and Nelidov, chief of the bureau and himself a former journalist, was a frequent visitor to the paper’s editorial offices. In France, the relationship between diplomats and journalists was especially intimate: nearly half of the foreign ministers of the Third Republic were former writers or journalists and the ‘lines of communication’ between foreign ministers and the press were ‘almost always open’. In December 1912, when he was prime minister of France, Raymond Poincaré even launched a new journal, La Politique Étrangère, to promote his views on foreign policy across the French political elite.

Semi-official newspapers and ‘inspired’ articles planted in the domestic press to test the climate of opinion were familiar tools of continental diplomacy. Inspired journalism masqueraded as the autonomous expression of an independent press, but its effectiveness depended precisely on the suspicion among readers that it emanated from the seat of power. It was universally understood in Serbia, for example, that Samouprava represented the views of the government; the Norddeutsche Allgemeine Zeitung was considered the official organ of the German Foreign Office; in Russia, the government made its views known through its own semi-official journal, Rossiya, but also ran occasional inspired campaigns in other more popular papers, like Novoye Vremya. The French foreign ministry, like the German, disbursed cash to journalists from a secret fund and maintained close ties with Le Temps and the Agence Havas, while using the less serious-minded Le Matin to launch ‘trial balloons’.

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Official manipulations of the press also took place across national borders. Early in 1905, the Russians were distributing around £8,000 a month to the Parisian press, in the hope of stimulating public support for a massive French loan. The French government subsidized pro-French newspapers in Italy (and Spain during the conference at Algeciras), and during the Russo-Japanese and Balkan Wars the Russians handed out huge bribes to French journalists. The Germans maintained a very modest fund for supporting friendly journalists in St Petersburg and plied newspaper editors in London with subsidies in the hope, mostly disappointed, of obtaining more positive coverage of Germany.

European Militarism Before 1914

From The Sleepwalkers: How Europe Went to War in 1914, by Christopher Clark (Harper, 2013), pp. 214-217:

‘The situation [in Europe] is extraordinary,’ Colonel Edward House reported to American President Woodrow Wilson after a trip to Europe in May 1914. ‘It is militarism run stark mad.’ House’s views may have been shaped in part by a personal experience: he was a ‘political colonel’ of the American type. He had been appointed to that rank in the Texas militia in return for political services there. But when Colonel House visited Berlin, the Germans took him to be a military man and always sat him with the generals at dinner. His views on the prevalence of militarism may have owed something to this unfortunate misunderstanding. Be that as it may, there is no doubt that, viewed from across the Atlantic, pre-war Europe presented a curious spectacle. Senior statesmen, emperors and kings attended public occasions wearing military uniform; elaborate military reviews were an integral part of the public ceremonial of power; immense illuminated naval displays drew huge crowds and filled the pages of the illustrated journals; conscript armies grew in size until they became male microcosms of the nation; the cult of military display entered the public and the private life of even the smallest communities. In what ways did this ‘militarism’ shape the decisions that led Europe to war in 1914? Did the roots of the July Crisis lie, as some historians have argued, in an abdication of responsibility by civilian politicians and a usurpation of political power by the generals?

There was without doubt a struggle between the soldiers and the civilians within the pre-war executives: it was a struggle for money. Defence expenditure accounted for a substantial share of government spending. Military commanders keen to improve equipment, training and infrastructure had to contend (as they do today) with civilian politicians for access to government resources. Conversely, ministers of finance and their political allies fought to impose restraint in the name of fiscal rigour or domestic consolidation. Who prevailed in these contests depended on the structure of the institutional environment and the prevailing domestic and international political constellation.

Until 1908, the chaotic structure of the Russian military command made it difficult for the generals to lobby government effectively. But the balance began to shift from 1908, when reforms to the military administration created a more concentrated executive structure, establishing the minister of war as the pre-eminent defence official with the exclusive right to report to the Tsar on military matters. From 1909, a rivalry of epic bitterness evolved between the new war minister Vladimir Sukhomlinov (who was still in post in July 1914) and the strong-willed conservative finance minister, Vladimir Kokovtsov. Backed by the powerful premier Pyotr Stolypin, Kokovtsov, a champion of fiscal responsibility and domestic economic development, routinely blocked or curtailed Sukhomlinov’s draft budgets. Professional friction swiftly deepened into lively personal hatred.118 Sukhomlinov thought Kokovtsov ‘narrow, verbose and self-seeking’; Kokovtsov accused the minister of war (with more justice) of incompetence, irresponsibility and corruption.

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We can discern analogous tensions in every European executive. In Britain, the Liberals campaigned (and won an absolute majority) in 1906 on the promise to cut back the vast military expenditure of the Boer War years under the slogan ‘Peace, Retrenchment and Reform’. Budgetary constraints were a significant factor in the decision to seek an understanding with France and Russia. One consequence was that, while British naval budgets continued to soar (British naval spending was three times the German figure in 1904 and still more than double in 1913), army expenditure remained static throughout the pre-war years, forcing War Minister Haldane to focus on efficiency savings and reorganization rather than expansion. In Austria-Hungary, the tumultuous domestic politics of dualism virtually paralysed the monarchy’s military development after the turn of the century, as autonomist groups within the Hungarian parliament fought to starve the monarchy’s joint army of Hungarian tax revenues and recruits. In this environment, proposals for increased military allocations were worn down in endless legislative feuding, and the Habsburg military languished in a condition, as the Austrian staff chief put it, of ‘persistent stagnation’. This was one reason why, as late as 1912, Austria-Hungary spent only 2.6 per cent of its net national product on defence – a smaller proportion than any other European power and certainly far below what its economy could afford (the figures for Russia, France and Germany in that year were 4.5, 4.0 and 3.8 per cent respectively).

Poland's Zaduszki celebrations

This week's Culture.pl newsletter previews All Souls' Day in Poland in an article by Gabriel Stille from October 2025, when the Far Outliers were visiting historic Sandomierz, where we attended a large open-air mass in a large hilltop cemetery above the city that was filled with flowers and candle lamps. Here are some excerpts from the article.

One of the most important family holidays in Poland, Zaduszki sees people all over the country gather to visit the graves of their loved ones. Throughout Poland, cemeteries glow with lights. Travelling home is a must to celebrate Zaduszki. What once began as a set of traditions to please the spirits of the departed is now an occasion to gather the family and remember those no longer with us.

The word zaduszki comes from dzień zaduszny, which could be translated as day of prayer for the souls. The eve of the holiday, November 1st, falls on what is also known as All Saints' Day in Catholic communities. In the church calendar, that day is followed by All Souls' Day, the official day to commemorate the departed faithful.

Polish Zaduszki celebrations begin with tending to family graves and surrounding graveyards on the first day, and then extends into the the next. November 1st is a bank holiday in Poland and remained free of work even during Communist times, while the following day is not. The Zaduszki custom of honouring the dead thus corresponds with All Souls' Day celebrations in many parts of the world, but has a more profound meaning, and is much more observed in Poland than in most places in the West.

In the Polish calendar, Zaduszki is, along with Easter and Christmas, a requisite opportunity to meet with one's extended family. In today's society, that means travels can be long as as roads fill and traffic is usually exceptionally heavy. It is a sad and well known fact that that road accidents peak during this holiday.

Many of the folk traditions surrounding Zaduszki have ancient pagan roots. According to old beliefs, during this time the spirits of forefathers come to inhabit our world once more. Not disturbing or angering the forefathers was considered very important. For example, if water or waste had to be thrown on the ground, a word of warning had to be uttered to alert the invisible spirits. In general, not undertaking any work and going to bed early was preferable during this time so as to not interfere with the doings of the spirits. Instead, food and other items were prepared for the forefathers, and feasts were held among the living as well. The dead were said to attend a special mass during the night, where no living persons should allow themselves to be found.

Another tradition involved the baking of bread to be brought to the graveyards and distributed to the poor or the clergy, or to be left at the graves. This tradition served the purpose to please the spirits or to bring good fortune. In keeping with church practices of the times, this could also be a way to atone for the sins of the forefathers and thus relieve the suffering of their spirits in Purgatory.

The honouring of the dead during this holiday holds similar importance all over Central and Eastern Europe, and many of the Polish folk customs can be traced back to common old Slavic traditions. At certain times, those Slavic roots have been a strong source of national identity among the Polish people. During Romanticism and the period of the formation of national states in Europe, Adam Mickiewicz drew upon the legends of Dziady, a festival common to Slavic and Baltic peoples and early ancestor of Zaduszki, for his epic drama Forefathers' Eve.

Visiting Poland's Cemeteries

In anticipation of All Saints' Day, last week's Culture.pl newsletter includes an article about Unusual Polish Cemeteries by Anna Cymer. Here are some excerpts.

We normally visit cemeteries to bury our nearest and dearest, but many notable graveyards in Poland also possess exceptional atmosphere, history and architecture.

Powązkowski Cemetery, Warsaw

The oldest cemetery in the capital opened in 1790, covering an area of two hectares, which has since grown to 44. Two years later, Dominik Merlini (court architect to King August III and Stanisław August Poniatowski, and creator of both the Palace on the Water in Warsaw’s Łazienki Park and the Królikarnia Palace) designed the Church of St Charles Borromeo, built on one side of the cemetery. Its decorated white towers still overlook the area today.

Around a million people lie buried in Powązkowski Cemetery. Its most famous section is the Avenue of the Heroes, the final resting place of many distinguished Polish historical, cultural and scientific figures. There are centuries-old tombs, for example those of Hugo Kołłątaj and soldiers from the time of the Kościuszko Uprising, as well as numerous graves of more recently deceased artistic celebrities, including Julia Hartwig and Wojciech Młynarski.

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Old Cemetery, Łódź 

Built in 1855, this mixed-denomination cemetery perfectly reflects the formerly multiple cultures of Łódź. To this day, it contains Catholic, Evangelist and Orthodox graveyards. Buried here are famous 19th-century Łódź industrialists, people who aided the city’s development, social activists, lawyers, doctors and cultural figures.

More than 200 of the cemetery’s headstones are listed monuments, and many of them are fine examples of sculpture and small-scale architecture. The cemetery’s grandest monument is the Karol Scheibler mausoleum, erected in 1888 in the form of an immense, neo-Gothic chapel designed by Edward Lilpop and Józef Dziekoński.

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Old Jewish Cemetery, Wrocław

Jewish cemeteries in Poland were forgotten and neglected for many decades. Fortunately, in recent years, some of them have been tidied up and are now not only final resting places of the dead, but also precious monuments. One of the most beautiful is the Old Jewish Cemetery in Wrocław, which dates back to the latter half of the 19th century. Since affluent Jewish people (including some living outside Poland’s current borders) chose to be buried in this cemetery, many impressive monumental, decorative mausoleums and gravestones were erected. One can even find small-scale examples of Moorish and Egyptian architecture. The Old Jewish Cemetery, now a subsidiary of the City Museum of Wrocław, covers 4.6 hectares and contains around 12,000 headstones.

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Mennonite Cemetery, Sosnówka

In the late 16th century, the Mennonites – followers of a branch of Protestantism who had previously lived in the Netherlands – were forced to flee persecution in their country. Some settled in formerly tolerant Poland, particularly the Lower Vistula Valley. Sosnówka in the Grudziądz district has one of the few remaining Mennonite cemeteries in Poland. It probably came into use around 1690, and some remnants of 17th-century gravestones have survived. A sign by the cemetery gate lists its most noteworthy historical relics:

The original layout is clearly visible, as are numerous headstones of outstanding artistic value (the oldest dating from 1691, 1836, and 1861) and a relic of the main gate.

Muslim Cemetery, Kruszyniany

Over 600 years ago, a Muslim minority inhabited lands belonging to Poland. From the latter half of the 17th century onwards, the Tatar community had its own cemetery in Kruszyniany. Its oldest surviving gravestone dates from 1699. Interestingly, the site continues to be used for Muslim burials. In one section, next to an 18th-century wooden mosque, headstones over 300 years old stand alongside completely modern ones.

Lipowa Street Cemetery, Lublin

The history of the Lipowa Street Cemetery in Lublin dates back to 1794. From the outset, it always contained a range of nations and religions, and there are still Catholic, Evangelist and Orthodox gravestones today. From a historical point of view, the latter section of the cemetery is particularly valuable. Apart from more than 500 ancient headstones, there is also the Church of the Holy Maidens Bearing Fragrances, built in the early 20th century – a two-storey, five-domed brick chapel in the Russian-Byzantine style that, despite its fairly small size, boasts all the major elements of Orthodox architecture.

Lemko Cemetery, Świerzowa Ruska

Świerzowa Ruska in the Low Beskids was a Lemko village, probably founded in the late 16th century. In the early 20th century, the village numbered almost 500 residents and had its own school and Orthodox church – but the villagers were resettled in 1947, and the abandoned buildings fell into disrepair. The former village later became part of Magurski National Park and was inaccessible for many years, even to tourists. But in 2015, paths were created, along with an eight-stop educational trail that allows one to discover the history of the Lemkos who lived there and visit the local cemetery, which has been preserved to some extent. Today, 20 gravestones (some from the 19th century), wooden crosses and sculptures are all that remain of the people who inhabited this area for several hundred years.

We visited many cemeteries among other historical sites in Poland during our year there, and one of the unheralded sections of any cemetery in eastern Poland (and even a little country cemetery in Transnistria that we visited) was a section for Soviet soldiers who died fighting the Germans, helping to "liberate" them. Lots of war dead are buried in Polish cemeteries from World War I and World War II, including many Unknown Soldiers. All Saints' Day is the time of year when candles are lit and flowers are placed all over Polish grave markers.  The Jewish cemetery in Kielce, like many everywhere, was destroyed during World War II, and partially restored with the help of expatriate donors. Its gates remain locked and there is often a police car parked within sight of the entrance.

Britain's Foreign Secretary Before 1914

From The Sleepwalkers: How Europe Went to War in 1914, by Christopher Clark (Harper, 2013), pp. 199-202:

Britain presents a rather different picture. Unlike Stolypin and Kokovtsov or their German colleagues Bülow and Bethmann Hollweg, the British foreign secretary, Sir Edward Grey, had no reason to fear unwanted interventions by the sovereign. George V was perfectly happy to be led by his foreign secretary in international matters. And Grey also enjoyed the unstinting support of his prime minister, Herbert Asquith. Nor did he have to contend, as his French colleagues did, with over-mighty functionaries in his own Foreign Office. Grey’s continuity in office alone assured him a more consistent influence over policy than most of his French colleagues ever enjoyed. While Edward Grey remained in control of the Foreign Office for the years between December 1905 and December 1916, the same period in France saw fifteen ministers of foreign affairs come and go. Moreover, Grey’s arrival at the Foreign Office consolidated the influence of a network of senior officials who broadly shared his view of British foreign policy. Grey was without doubt the most powerful foreign minister of pre-war Europe.

Like most of his nineteenth-century predecessors, Sir Edward Grey was born into the top tier of British society. He was the descendant of a distinguished line of Whig grandees – his great grand-uncle was the Earl Grey of the 1832 Reform Bill and eponym of the popular scented tea. Of all the politicians who walked the European political stage before 1914, Grey is one of the most baffling. His aloof and lofty style did not go down well with the rank and file of the Liberal Party. He had long been a Liberal MP, yet he believed that foreign policy was too important to be subjected to the agitations of parliamentary debate. He was a foreign secretary who knew little of the world outside Britain, had never shown much interest in travelling, spoke no foreign languages and felt ill at ease in the company of foreigners. He was a Liberal politician whose vision of policy was opposed by most Liberals and supported by most Conservatives. He became the most powerful member of the faction known as ‘the liberal imperialists’, yet he appears to have cared little for the British Empire – his views on foreign policy and national security were tightly focused on the European continent.

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There was a curious dissonance between Grey’s persona – private and public – and his modus operandi in politics. As a young man, he had shown little sign of intellectual curiosity, political ambition or drive. He idled away his years at Balliol College, Oxford, where he spent most of his time becoming Varsity champion in real tennis, before graduating with a third in Jurisprudence, a subject he had chosen because it was reputed to be easy. His first (unpaid) political post was fixed up through Whig family connections. As an adult, Grey always cultivated the image of a man for whom politics was a wearisome duty, rather than a vocation. When parliament was dissolved in 1895 following a Liberal defeat in a key vote, Grey, who was then serving as an MP and parliamentary under-secretary of state for foreign affairs, professed to feel no regrets. ‘I shall never be in office again and the days of my stay in the House of Commons are probably numbered. We [he and his wife Dorothy] are both very relieved.’ Grey was a passionate naturalist, birdwatcher and fisherman. By the turn of the century, he was already well known as the author of a justly celebrated essay on fly-fishing. Even as foreign secretary, he was apt to leave his desk at the earliest opportunity for country jaunts and disliked being recalled to London any sooner than was absolutely necessary. Some of those who worked with Grey, such as the diplomat Cecil Spring-Rice, felt that the country excursions were getting out of hand and that the foreign secretary would be well advised to ‘spare some time from his ducks to learn French’. Colleagues found it difficult to discern political motivation in Grey; he struck them as ‘devoid of personal ambition, aloof and unapproachable’. And yet Grey did develop a deep appetite for power and a readiness to deploy conspiratorial methods in order to obtain and hold on to it. His accession to the post of foreign secretary was the fruit of careful planning with his trusted friends and fellow liberal imperialists, Herbert Asquith and R. B. Haldane. In the ‘Relugas Compact’, a plot hatched at Grey’s fishing lodge in the Scottish hamlet of that name, the three men agreed to push aside the Liberal leader Sir Henry Campbell-Bannerman and establish themselves in key cabinet posts. Secretiveness and a preference for discreet, behind-the-scenes dealing remained a hallmark of his style as foreign secretary. The posture of gentlemanly diffidence belied an intuitive feel for the methods and tactics of adversarial politics.

Grey quickly secured unchallenged control over the policy-making process, ensuring that British policy focused primarily on the ‘German threat’. It would be going too far, of course, to view this reorientation of British policy as a function solely of Edward Grey’s power. Grey was not the puppet-master; the men of the new policy – Bertie, Hardinge, Nicolson, Mallet, Tyrrell and so on – were not manipulated or controlled by him, but worked alongside him as the members of a loose coalition driven by shared sentiments. Indeed, Grey was quite dependent on some of these collaborators – many of his decisions and memoranda, for example, were modelled closely on reports from Hardinge. The ascendancy of the Grey group was eased by recent structural reforms to the Foreign Office whose object had not been to reinforce the authority of the foreign secretary, but rather to parcel influence out more widely across a range of senior officials. Nevertheless, the energy and vigilance with which Grey maintained his ascendancy are impressive. It helped, of course, that he enjoyed the firm support of his former co-conspirator Herbert Asquith, prime minister from 1908 until 1916. The backing of a large part of the Conservative bloc in the House of Commons was another important asset – and Grey proved adept at maintaining his cross-party appeal.

But Grey’s plenitude of power and consistency of vision did not entirely protect British policy-making from the agitations characteristic of the European executives. The anti-German position adopted by the Grey group did not enjoy wide support outside the Foreign Office. It was not even backed by the majority of the British cabinet. The Liberal government, and the Liberal movement more generally, were polarized by the tension between liberal imperialist and radical elements. Many of the leading radicals, and they included some of the most venerable figures in the party, deplored the foreign secretary’s policy of alignment with Russia. They accused Grey and his associates of adopting a pose towards Germany that was unnecessarily provocative. They doubted whether the advantages of appeasing Russia outweighed the potential benefits of friendship with the German Empire. They worried whether the creation of a Triple Entente might not pressure Germany into adopting an ever more aggressive stance and they pressed for détente with Berlin. A further problem was the complexion of British public opinion, especially within the cultural and political elite, which, despite intermittent Anglo-German ‘press wars’, was drifting into a more pro-German mood during the last few years before the outbreak of war. Antagonism to Germany coexisted across the British elites with multi-layered cultural ties and a deep admiration of the country’s cultural, economic and scientific achievements.

Who Ruled France's Third Republic?

From The Sleepwalkers: How Europe Went to War in 1914, by Christopher Clark (Harper, 2013), pp. 190-193:

In France, there was a different but broadly analogous dynamic. To a much greater extent than in Russia, the foreign ministry, or the Quai d’Orsay as it was known on account of its location, enjoyed formidable power and autonomy. It was a socially cohesive and relatively stable organization with a high sense of its own calling. A dense network of family connections reinforced the ministry’s esprit de corps: the brothers Jules and Paul Cambon were the ambassadors to Berlin and London respectively, the ambassador to St Petersburg in 1914, Maurice Paléologue, was Jules and Paul’s brother-in-law, and there were other dynasties – the Herbettes, the de Margeries, and the de Courcels, to name just a few. The ministry of foreign affairs protected its independence through habits of secrecy. Sensitive information was only rarely released to cabinet ministers. It was not unusual for senior functionaries to withhold information from the most senior politicians, even from the president of the Republic himself. In January 1895, for example, during the tenure of Foreign Minister Gabriel Hanotaux, President Casimir Périer resigned after only six months in office, protesting that the ministry of foreign affairs had failed to keep him informed even of the most important developments. Policy documents were treated as arcana. Raymond Poincaré was informed of the details of the Franco-Russian Alliance only when he became premier and foreign minister in 1912.

But the relative independence of the ministry did not necessarily confer power and autonomy upon the minister. French foreign ministers tended to be weak, weaker indeed than their own ministerial staff. One reason for this was the relatively rapid turnover of ministers, a consequence of the perennially high levels of political turbulence in pre-war France. Between 1 January 1913 and the outbreak of war, for example, there were no fewer than six different foreign ministers. Ministerial office was a more transitory and less important stage in the life cycle of French politicians than in Britain, Germany or Austria-Hungary. And in the absence of any code of cabinet solidarity, the energies and ambition of ministers tended to be consumed in the bitter factional strife that was part of the everyday life of government in the Third Republic.

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Of course, there were exceptions to this rule. If a minister stayed in power for long enough and possessed sufficient determination and industry, he could certainly imprint his personality upon the workings of the ministry. Théophile Delcassé is a good example. He remained in office for a staggering seven years (from June 1898 until June 1905) and established his mastery over the ministry not only through tireless work, but also by ignoring his permanent officials in Paris and cultivating a network of like-minded ambassadors and functionaries from across the organization. In France, as elsewhere in Europe, the waxing and waning of specific offices within the system produced adjustments in the distribution of power. Under a forceful minister like Delcassé, the power-share of the senior civil service functionaries known collectively as the Centrale tended to shrink, while the ambassadors, freed from the constraints imposed by the centre, flourished, just as Izvolsky and Hartwig did during the early years of Sazonov. Delcassé’s long spell in office saw the emergence of an inner cabinet of senior ambassadors around the Cambon brothers (London and Berlin) and Camille Barrère (Rome). The ambassadors met regularly in Paris to discuss policy and lobby key officials. They communicated with the minister through private letters, bypassing the functionaries of the Centrale.

The senior ambassadors developed an extraordinarily elevated sense of their own importance, especially if we measure it against the professional ethos of today’s ambassadors. Paul Cambon is a characteristic example: he remarked in a letter of 1901 that the whole of French diplomatic history amounted to little more than a long list of attempts by agents abroad to achieve something in the face of resistance from Paris. When he disagreed with his official instructions from the capital, he not infrequently burned them. During a tense conversation with Justin de Selves, minister of foreign affairs from June 1911 until January 1912, Cambon somewhat tactlessly informed de Selves that he considered himself the minister’s equal. This claim looks less bizarre if we bear in mind that between 1898, when he became ambassador to London, and the summer of 1914, Cambon saw nine ministers enter and leave office – two of them did so twice. Cambon did not regard himself as a subordinate employee of the government, but as a servant of France whose expertise entitled him to a major role in the policy-making process.

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Underpinning Cambon’s exalted sense of self was the belief – shared by many of the senior ambassadors – that one did not merely represent France, one personified it. Though he was ambassador in London from 1898 until 1920, Cambon spoke not a word of English. During his meetings with Edward Grey (who spoke no French), he insisted that every utterance be translated into French, including easily recognized words such as ‘yes’. He firmly believed – like many members of the French elite – that French was the only language capable of articulating rational thought and he objected to the foundation of French schools in Britain on the eccentric grounds that French people raised in Britain tended to end up mentally retarded. Cambon and Delcassé established a close working relationship whose fruit was the Entente Cordiale of 1904. It was Cambon, more than anyone else, who laid the groundwork for the Entente, working hard from 1901 to persuade his British interlocutors to settle over Morocco, while at the same time urging Delcassé to relinquish France’s putative claims on Egypt.