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Textbook First of The Small Nations The Beginnings of Irish Foreign Policy in The Inter War Years 1919 1932 First Edition Keown Ebook All Chapter PDF
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OUP CORRECTED PROOF – FINAL, 11/2/2016, SPi
F IR S T O F T HE S M A LL N AT IO NS
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Editors
P. CLAVIN J. DARWIN J. INNES
J. McDOUGALL D. PARROTT S. SMITH
B. WARD-PERKINS J. L. WATTS W. WHYTE
OUP CORRECTED PROOF – FINAL, 11/2/2016, SPi
GERARD KEOWN
1
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3
Great Clarendon Street, Oxford, OX2 6DP,
United Kingdom
Oxford University Press is a department of the University of Oxford.
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© Gerard Keown 2016
The moral rights of the author have been asserted
First Edition published in 2016
Impression: 1
All rights reserved. No part of this publication may be reproduced, stored in
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and you must impose this same condition on any acquirer
Published in the United States of America by Oxford University Press
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ISBN 978–0–19–874512–9
Printed in Great Britain by
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OUP CORRECTED PROOF – FINAL, 11/2/2016, SPi
For my parents,
Eamonn & Marie
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Acknowledgements
This book began life many years ago, with a simple question: where did
Ireland’s foreign policy come from? Along the way, I have many people to
thank.
My first attempt to answer my own question was as a D.Phil. student at
the University of Oxford. I would like to thank Professor Roy Foster for
setting me on a path that has led to this book, and for his friendship,
support, and encouragement in the years since.
Thanks are due to the staffs of the National Archives of Ireland, the
National Library of Ireland, the archives departments at University
College Dublin and at Trinity College Dublin, the Bodleian Library in
Oxford, the National Archives of the United Kingdom, and the Ministry
of Foreign Affairs in Paris, as well as to the library at the Department of
Foreign Affairs and Trade. I am grateful, in particular, to Seamus Helferty
of UCD Archives, and Catriona Crowe and Aideen Ireland of the
National Archives of Ireland. I am grateful, also, to Kathleen and Stephen
MacWhite for permission to quote from the Michael MacWhite papers;
to the late Louis le Brocquy for sharing memories of his father, Albert;
and to the late Garrett FitzGerald for his insights and for his recollections
of his father, Dermot.
Some of the ideas in this book were developed in a series of lectures at
the Department of Foreign Affairs and Trade: I am grateful to Secretaries
General David Cooney and Niall Burgess for their support, and to
colleagues whose questions helped me to clarify my ideas. Thanks, also,
to Professor Alvin Jackson and Dr Enda Delaney for an opportunity to
present one of the chapters at Edinburgh University, to Owen Dudley
Edwards for his thought-provoking comments, and to Susan Conlon for
her warm hospitality.
Sincere thanks go to Enda Delaney and Dr Eibhlín Evans for comments
on the completed manuscript, which were invariably on the mark. I owe a
debt of gratitude to Haruko Onda for technical assistance at the outset; to
Brian Glynn, Keith Moynes, and Martin Laflamme for reading chapters as
they appeared and offering encouragement to keep going, and to Brian
McElduff for his forensic ability to spot typos.
I would like to thank my editor, Professor Patricia Clavin, for her
support and patience as I juggled writing with a busy day job. Thanks
are due, also, to Professor R. J. Evans and Dr John Watts of Oxford
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viii Acknowledgements
Historical Monographs, to Cathryn Steele of OUP for her patience, and to
Dr Michael Kennedy and Professor Eunan O’Halpin for encouraging me
to write this history.
I owe a particular debt of gratitude to my sister, Edwina, for her scholarly
advice, her unflagging support, and for ‘lit-proofing’ the manuscript along
the way.
Finally, thank you to my parents for encouraging me down the path of
history, and to my partner, Stephen Donnelly, for putting up with my
endless interest in Ireland’s foreign relations, current and historical. The
views expressed are in a personal capacity and any mistakes are my own.
Gerard Keown
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Contents
List of Figures xi
Note on Names and Terminology xiii
Irish Terms Used xv
Abbreviations xvii
Introduction: Beginnings 1
1. The Story of Ireland in the World 6
2. ‘Apostles of Liberty’: The Republic’s Quest for Recognition,
1919–1921 36
3. ‘Director for International Bluff ’: Imagining a Role for
Ireland on the World Stage 68
4. A State-in-Waiting: Foreign Policy under the Provisional
Government of 1922 91
5. ‘The Irish Harp in the Orchestra of Nations’: First Steps
on the International Stage, 1923–1924 112
6. The Free State and the Search for European
Security, 1925–1926 149
7. ‘Pious Hopes and Equally Pious Regrets’, 1927–1929 178
8. ‘A Policy of World Peace and World Economic
Development’, 1930–1932 209
Conclusion: First of the Small Nations? 242
Bibliography 253
Index 263
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List of Figures
It was common at the time that is the focus of this book to use the Irish
and English versions of names interchangeably, particularly in writing.
For clarity, the version by which an individual is most commonly known
is used: thus, Seán T. Ó Ceallaigh rather than O’Kelly; Diarmuid
O’Hegarty, rather than Ó hEageartaigh; but Michael Collins and not
Micheál Ó Coillean. Where an Irish language name or term is used, a
translation is provided on the first appearance. A glossary of frequently
used Irish terms is also provided.
Contemporary place names have been used throughout, except where
the modern equivalent is more widely known, for example Ethiopia
instead of Abyssinia, and Nanjing over Nanking. In some cases both are
given, to provide clarity for the reader.
The use of acronyms—common in the world of diplomacy and its
study—has been kept to a minimum, with an explanation provided to
guide the reader where these may be unfamiliar. The French Foreign
Ministry is referred to in places by its shorthand, the Quai d’Orsay, while
its Italian and German counterparts are known as the Farnesina and the
Wilhelmstrasse respectively; each derives from its address.
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Abbreviations
Introduction
Beginnings
1
Leo Kohn, The Constitution of the Irish Free State (London, 1932).
2
Copy of the text of cinema newsreel speeches made by William T. Cosgrave, 11 June
1931, NAI DFA DT S2366.
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Introduction: Beginnings 3
this process for the framing and conduct of Irish foreign policy in the years
after will also be explored.
This process did not take place in isolation, of course; the influence of
ideas from outside Ireland on how the international order should be
arranged and in whose interest it should be managed can be seen in
some of the ideas circulating within the country at the time. Many of
these ideas were radical then, some were hopelessly utopian, others simply
naive. The claim was even advanced to be the first of the small nations.
This conversation within nationalism, between the men and women who
set out to create an Irish state and those who were caught up in the
process, has not received as much historical attention as other aspects of
the pre-independence period. To understand the course of Irish foreign
policy it is necessary to uncover this conversation; in effect, to piece
together the intellectual origins of early Irish foreign policy. In doing so,
we will find echoes of ideas about Ireland’s place and role in the world
today.
This work began life as an attempt to find answers to these questions. In
the course of fifteen years working for the Irish foreign ministry, it has
become clear to me that many of the premises of Irish foreign policy and
the external projection of the Irish state—small state and European
country; honest broker and international good citizen; mother-country
with a diaspora and bridge between Europe and America—have roots in
the period 1900–1930. This is not to argue that policy or identity
remained constant or immutable in the years since then. At times,
differing emphases and priorities were adopted and pursued by govern-
ments of the day in response to external developments. But, when
formulating the country’s place on the world stage in the decades that
followed, politicians and diplomats frequently drew upon a vocabulary
and a palette of imagery to describe the Irish state and its place in the
world that was first assembled in the period that saw the birth of the
independent Irish state. The aim of this book is to trace the development
and evolution of these ideas; in effect, to show how an Irish foreign policy
identity was forged from a broad range of ideas and threads.
This history also aims to examine how these ideas were translated into
policy once statehood had been achieved in 1922, the extent to which
initial aspirations were realized or discarded, and how the reality of
statecraft and navigating the turbulent waters of the international scene
shaped policy in the years immediately after independence. As in other
areas, there would be a need for compromise between the aspirations of an
independence movement and the realities of government. It is, therefore,
as much a book about the nature and process of creating a foreign policy,
as it is the story of how the first Irish foreign policy emerged.
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3
Documents in Irish Foreign Policy series (Dublin, 1998– ).
4
The bibliography contains details of these works.
5
Zara Steiner, The Lights that Failed, European International History 1919–1933
(Oxford, 2005); Sally Marks, The Ebbing of European Ascendancy, an International History
of the World 1914–1945 (London, 2002).
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Introduction: Beginnings 5
For the student of interwar European international relations, there is
value in looking at the Irish experience, just as there is for those with an
interest in how small states establish and manage their foreign relations in
a world system dominated by their larger neighbours. In common with
other states at the time, the Irish Free State recognized the value of
multilateral fora in asserting and consolidating its own existence. As we
have noted, the modern international order was being shaped in this
period, a time of transition from old to new ways of conducting inter-
state relations. Like other small and newly independent states, the Irish
had to accommodate themselves to the emerging new order, with its
attendant challenges and opportunities.
It is also interesting to look at what, for the time, were ‘modern’
characteristics of Irish nationalists’ approach to the international arena:
their aspiration to a foreign policy based on values and beliefs rather than
the pure pursuit of interests associated with the foreign policy of the
existing powers is one example. This idea has become commonplace in
today’s world but, at the start of the twentieth century it was novel.
Equally modern was the attempt to create an international rationale for
Irish independence and appeal to the international community, itself a
concept then in its infancy. There was also a keen appreciation of the value
of harnessing the power of public opinion in international affairs, again a
relatively new commodity at the time.
These aspects of Ireland’s early foreign policy will be examined in the
pages that follow, including the aspiration to be ‘first of the small nations’.
It will become apparent that a set of ideas and aspirations that took shape
in the first two decades of the twentieth century shaped the development
of the Irish Free State’s early foreign policy. Before we can look at Ireland’s
first steps as a recognized state on the world stage, therefore, we must
look at the period that preceded independence to identify the raw material
from which the first generation of Irish diplomats would attempt to craft a
foreign policy.
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1
The Story of Ireland in the World
In the summer of 1865, the cable-laying ship the Great Eastern, the
largest vessel on the seas in its day, left the western coast of Ireland
paying out the first underwater cable as it crossed the Atlantic, its aim to
establish a telegraph link between Europe and North America. Its route
traced the same path ploughed by emigrant ships carrying Irish and other
Europeans from the old world to the new. The North Atlantic cable was
completed in 1866 and, in the following years, the machinery of global
communications was laid. By the end of the nineteenth century, cable
networks spanning the globe reduced the time it took information to
cross oceans and continents and this developing communications infra-
structure fed the growth of news agencies transmitting news from the
four corners of the globe in close to real time. The same cables provided a
means for Irish emigrants passing over them on their westward journey
to keep in touch with both family and news from Ireland. Faster trans-
Atlantic crossing times as sail gave way to steam and wooden ships to
steel also facilitated increased communication between Ireland and
North America.
The ability of emigrant communities to keep in touch with the home
countries they had left behind would have wide-ranging implications over
time for the nature of politics within their adoptive countries and for
relations between these countries and the former metropolis. In the Irish
case, as the nineteenth century drew to a close, the Atlantic gradually
ceased to be a barrier to become a channel of communication and
interaction. In the same year that the Great Eastern began laying its
underwater cable, the first nationalist Fenian Congress was held in Phila-
delphia. The Fenian Brotherhood had been established in 1858 as a sister
organization to the Irish Republican Brotherhood (IRB) founded in
Ireland in the same year. Both organizations were pledged to securing
Irish independence from Britain, through violent means if necessary. In
1862, the IRB adopted a constitution for an independent Irish republic,
which included a foreign minister and powers to make war and peace, and
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Physical force Irish nationalism has a long record of seeking to forge links
with the rising European power of the day, be it Spain in the seventeenth
century, France in the eighteenth century or, in the nineteenth century,
France followed by Russia and then Germany. Indeed, Ireland’s external
1
James Stephens, On the Capacity of Ireland to Exist as an Independent State (Dublin,
1862), pp. xiii, 3.
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2
John Mitchel, Jail Journal (Dublin, 1915), pp. 397–9.
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3
Emile Montégut, John Mitchel, A Study of Irish nationalism (Dublin, 1915), p. 11,
originally published as ‘An exile of Young Ireland’ in Revue des Deux Mondes, (Paris,
1855).
4
James O’Kelly to Michael Davitt, 10 Mar. 1879, in Devoy’s Post Bag (Dublin, 1953),
vol. 1, p. 408.
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5
Elizabeth Coxhead, Daughters of Erin (London, 1965), p. 48. For an account of
nationalist activities at the time of the second Anglo-Boer war, see Mark Ryan Fenian
Memoires (Dublin, 1945), p. 179 passim.
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them from my observer, who was an old hand at the game. I
confess to a feeling of relief when I reached the point where
our bombs were to be thrown over. Having discharged this
duty I was glad to return to my starting-point with the motor
running at slow speed, and knowing that I was soon to be out
of range of the enemy’s deadly fire.
“In this bombardment my machine was made almost
entirely of steel tubing with a 140-horse-power engine,
capable of carrying a load of bombs weighing from four to
seven hundred pounds. As an arm of defense it carried a
machine gun. This is the type of machine that has made most
of the long raids on the enemy. I soon became accustomed to
the duty I had to perform and to flying with the spectacle of
shells bursting all around me, at the same time keeping on
the lookout for the ’planes of the enemy. We made seventeen
bombardments during the ensuing month of June and we got
to be old hands at this kind of warfare. It is never quite
agreeable to be shelled up in the air or elsewhere, and those
who make the boast of liking it do not tell the exact truth.
“To illustrate how well the French military aviation service is
organized and supplied with machines, let me tell you of my
experience at the front in Lorraine, where one day I had the
misfortune to break one of the wings of my machine. Instead
of stopping to have it repaired, all I had to do was to turn it
into a supply station near by where it was at once dismantled
and sent to the rear. I was then promptly supplied with a new
machine. A change of aeroplanes by an aviator in action in
France is like a cavalryman changing his horse. If there is
anything the matter with the animal, even if it is only a corn, a
new one is at once forthcoming. There is no suggestion of
parsimony or niggardliness in giving out the supplies
necessary for efficient fighting.
“On another occasion, when we were making a raid on the
railway station at Douai, which was about twenty-five
kilometres within the enemy’s lines, we started with a
squadron of some twenty machines. There happened to be
that day a great many German machines out. Somehow or
other they knew we were coming. We had four or five brisk
engagements with them. Our planes had only machine guns
with which to defend themselves, while the Germans used
regular fighting machines. This aerial engagement resulted in
four of our machines coming back riddled with bullets, my
lieutenant being hit in the leg.
“I was fortunate enough that day to escape the range of the
German flying machines by going farther north and passing
through the clouds, though I was shelled from a long distance
all the way. I succeeded in dropping my bombs on a railroad
station, one of which I saw explode in a bunch of freight cars
in the railroad yard. As I was returning within our lines the
Englishmen, by mistake, opened a brisk fire on me which
necessitated my going up into the clouds again. I proceeded
due west until I ran out of gasoline and I then descended in
the dark near the headquarters of the English. It was my good
fortune to land safely and on my arrival at my post I was
brought before the English commander, who asked me to tell
my story. Mine being one of the four machines out of twenty
that had reached Douai in the raid, I was awarded a citation
and given the right to wear a War Cross—my first decoration.
“My squadron spent a month in the east and during this
time I went farther into the enemy’s territory than I had been
before. I think the longest distance was when we made the
raid on two localities over one hundred kilometres within the
enemy’s lines in Bocherie, as we called it. During this month
General Joffre came to review our four squadrons of
bombarding machines. With him came the President of
France and the King of the Belgians. These distinguished
visitors witnessed the departure of a squadron of some ninety
of our machines on a bombarding raid loaded with bombs and
flying four abreast. They were highly complimentary in their
salutations to us Americans.
“During this month in Lorraine I experienced the hardest
knock I had received up to that time. One day six German
machines, fully equipped, bombarded Nancy and our aviation
field. To retaliate, my squadron was sent out to bombard their
field on the same afternoon. We started with thirty machines
to a designated rendezvous and fifty minutes later, after
getting grouped, we proceeded to our ultimate destination. I
had a very fast machine, and reached the German flying field
without being hit. When about to let go my bombs and while
my observer was aiming at the hangars of the Germans my
machine was attacked by them—one on the left and two on
the right. I shouted to my observer to drop his bombs, which
he did, and we immediately straightened out for home. While I
was on the bank the Germans opened fire on me with their
machine guns which were even more perilous than their
shells. My motor stopped a few moments afterwards. It had
given out and to make matters worse a fourth German
machine came directly at us in front. My observer, who was
an excellent shot, let go at him with the result that when last
seen this German aeroplane was about four hundred feet
below and quite beyond control. The other Germans behind
kept bothering us. If they had possessed ordinary courage,
they might have got us. Flying without any motive power
compelled me to stand my machine on end to keep ahead of
them. As we were nearing the French lines these Germans
left us, but immediately batteries from another direction
opened fire on us. As I was barely moving I made an
excellent target. One shell burst near enough to put shrapnel
in my machine. It is marvelous how hard we can be hit by
shrapnel and have no vital part of our equipment injured. I
knew I was now over the French lines, which I must have
crossed at a height of about four hundred metres. I finally
landed in a field covered with white crosses marking the
graves of the French and German soldiers who had fallen the
previous September at this point. This was the battle the
Kaiser himself came to witness, expecting to spend that night
in Nancy.
“Thousands fell that day, but the Kaiser did not make his
triumphal entry. Looking back on this latter experience of mine
I think myself most fortunate in having been able to return to
the French lines without a scratch. I got home safely because
the German aviators lacked either courage or skill or both.
They had me with my engine dead, four against one, and
twenty kilometres within their lines.”
Portrait as exhibited at Allied Fairs
July 2, 1916.
Dear Mamma,—A few lines to tell you that tout va bien.
This letter will be taken over and mailed in New York by an
American Ambulance driver who dined with us last night.
To-day I am de garde all the morning—that is to say, from
dawn to noon. I must be by my avion ready to start as soon
as any Boches are signaled. None have been so far this
morning—worse luck!
Your affectionate son,
Norman.
Esc. 124, Secteur 24.
Esc. N. 124, Secteur 24, July 6, 1916.
Dear Governor,—Enclosed is a letter which speaks of
Freddy. The Escadrille is running well. St.-Saveur lunched at
our popole last week and wished to be remembered to you
and Mamma; de R⸺, who was on our team at Bagatille,
was here for lunch to-day with R⸺; both wish to be
remembered; de P⸺ came last week looking very fit and
will write to you shortly.
The aviaphone for my helmet arrived in good shape and I
have lent it to my captain, as I am riding at present a single-
seated aeroplane.
Your affectionate son,
Norman.
Memorandum of the bringing-down of his first German machine
To his Mécanicien
Cher Michel,—En cas qu’un accident m’arrive—c’est à dire
que je suis tué, blessé ou que je reste chez les Boches—je
vous prie d’écrire quelques lignes à ces dames, les adresses
desquelles sont écrites sur les enveloppes (ci-incluses).
Dis leur que je t’avais dis d’écrire préférant qu’elles sachent
ce qu’il m’est arrivé plutôt que de rester dans l’angoisse au
sujet de mon sort.
Signe ton nom en mettant que tu avais été mon mécanicien
dévoué depuis mon arrivée sur le front.
Mes effets, papiers, lettres, etc., le tout, il faut mettre de
suite dans mes valises et les remettre personnellement à mon
frère.
Ci-inclus deux chèques comme cadeau en récompense du
boullot que vous et André ont fait si soigneusement sur les
appareils de Bibi et qui m’ont permis à gagner la Médaille
Militaire.
Ces chèques sont payables, à ma mort ou dans le cas que
je reste chez les Boches, à défaut de ce que cela m’arrive—
(espérons-le) à la démobilisation de vous deux.
En cas qu’un de vous devient civil avant l’autre, celui
devenu civil prends son chèque et le présente à la Banque—
où il sera payé.
Bonne poignée de main!
Norman Prince.
Esc. N 124, par Luxeuil-les-Bains, le 6 Septembre, 1916.