A. Wess Mitchell: Great Power Diplomacy: The Skill of Statecraft from Attila the Hun to Henry Kissinger. Chapters Four and Five. Princeton: Princeton University Press, 2022.
In 1515, Francis I, the recently crowned king of France, then under the Valois dynasty, was captured by the Austrians at the Battle of Pavia and imprisoned by the Hapsburg emperor, Charles I. The Queen Regent, Louise of Savoy, formally requested the intervention of the Ottoman sultan, Suleiman I, an entreaty that “scandalized Christendom.” Muslims were the enemy. But Mitchell sees in this policy “a blueprint for a continent-wide grand strategy rooted in the use of alliances and state interest that would culminate, a century later, in France’s rise to European preeminence and the creation of the modern states system under one of diplomacy’s greatest practitioners, Armand-Jean du Plessis, Cardinal de Richelieu.”
Like Byzantium and Venice before it, France was surrounded by enemies. That pioneer of modern statebuilding, Henry VIII, plotted recovery of the territories England had ruled in northwestern France before the Hundred Years’ War. Elsewhere, the sprawling Hapsburg empire ruled substantial territories in Central Europe, Italy, and the Iberian peninsula. Charles V, king of Spain and emperor of the Holy Roman Empire, continued to exhibit “an iron determination to expand his inheritance by all means necessary,” and France was on the list.
France had one advantage: compactness. French territory was not disjointed, as were the lands of Charles and Henry (who had more than one island in his kingdom). “French geography encouraged centralization,” that is, statism, thanks to its coherent river systems, north and south. No mountain ranges impeded movement of troops within it. But statism was still mostly potential, with monarchic rule “constrained by the particular privileges of towns and provinces, by the persistence of large ducal fiefs and foreign enclaves, and by the absence of a shared language and code of law”; most of the French didn’t speak French, and the Napoleonic Code was some three centuries distant. Still, the French understood the dangers all around them, and warfare is a great centralizer of governments. “The need to build and maintain larger armies spurred kings to assert greater central control over the resources of their realms, which meant reigning in the feudal lords with whom they had long shared power.” Centralization already had a foundation by Francis’s time, as the Estates-General did not wield the power of the purse; the king could collect taxes directly. The Parlement of Paris, which combined the judicial power with those of an upper legislative chamber, “derived its power from the king.” Francis could not rule as an ‘absolute’ monarch, as the Bourbon Louis XIV would do, but political writers had begun to ‘theorize’ monarchs as persons “bound neither by duty to the populace nor by obligations to the nobility, but only to the dictates of divine and natural law.” Those laws obligated them to defend the realm, not to promote “Christian virtue.” In this, “they were following in the footsteps of the Italians.”
Charles V proposed exchanging Francis for French territories, transfer of territories in the north to England, and allowing the Duc de Bourbon, “Francis’s French rival,” to establish “a kind of state-in-miniature inside France.” That is, he proposed to subordinate France to himself. Louise refused to pay such an intolerable price for her son’s return, but in 1526 Francis agreed to the swap, which he seemed to guarantee by giving the Hapsburgs his sons as hostages. Once safely back on French soil, however, he reneged. That might well have provoked a disastrous war. But his mother had used the intervening decade-and-a-half to some advantage. France wasn’t the only European country worried by the Holy Roman Empire.
“The hinge of Louise’s strategy was England.” She aimed at disengaging it from its alliance with the Hapsburgs, to eliminate the threat of a two-front war. Her argument to Henry was simple: instead of my territory, take my cash. This led to the Treaty of the More—a pun worthy of Shakespeare, their contemporary—which came with a promise from Henry to push for Francis’s release. Nor did Louise neglect the continent; “she sent agents to the German princes siding with Martin Luther in his escalating dispute with the emperor” and she appealed to Venice and Rome to form a coalition to remove the Habsburgs from Italy. And she reached out to the Ottomans.
By the time of her son’s return, France had positioned itself to force Charles V to think twice about a punitive war. A scholar and patron of arts and letters, Francis readily justified his refusal to comply with the treaty “on the grounds that under natural law, a ruler could not give away any part of his demesne without obtaining the permission of his people.” He reinforced his mother’s diplomatic overtures by forging a formal alliance with England in the spring of 1527 and continued to court German Protestants, along with the ever-restive Poles. But it was “the breadth and audacity of the Franco-Ottoman alliance” that “shocked Europe,” this “blasphemous union of the lily and the crescent,” as its critics sniped. The renowned Italian writer Pietro Aretino exclaimed, “You have thrust the sword of the Ottoman into the heart of Christendom!” In the war itself, France fared poorly, saved “only by the military incompetence” of its enemies. But, Mitchell observes, the example of French diplomatic success stands as an example of a country confronted with military threats on several fronts “foist[ing] the problem back” onto his main rival, notwithstanding the religious differences between his country and a principal ally. In Francis’s reign “we see the stirrings of a French school of diplomacy geared to the conscious cultivation of a European states system.”
After Francis had passed from the scene, three Valois kings succeeded him, after which the male line of the dynasty died out. The first Bourbon, Henry IV, married a Valois, uniting the two rival families; he also attempted to unite French Catholics and the Huguenots. His reward was assassination. Henry’s son, Louis XIII, ascended the throne in 1610 as a child. His mother, a Medici, ruling in his stead, rather badly, and was exiled by him in 1617; her closest advisers were killed. The Thirty Years’ War, initially a civil war of religion within the Holy Roman Empire, broke out a year later. In 1624, Louis made the most important decision of his thirty-three-year reign, appointing Richelieu as his principal minister. The Empire was not only divided religiously but it had also been divided into Spanish and Austrian lines, with the Austrian Habsburgs looking east toward Central Europe and the Spanish Hapsburgs concentrating their attention on the New World. Spain was “the greater threat” to France, having invaded France a few years earlier in an attempt to overthrow Louis’s father. Although predominantly Catholic France might have supported the Hapsburgs in their civil war against Protestants, they could not do so, given the geopolitical threat the empire posed.
Instead, Richelieu undertook la guerre couverte. Remaining formally at peace with Spain “for the time being,” Richelieu forged a system of alliances against the empire. He prudently “avoided Francis I’s mistake of being sucked into Italian affairs,” focusing instead on Germany and its Protestant states, intending to prevent Habsburg consolidation of power there. “If the Habsburgs could be stopped in Germany, they would remain, from France’s perspective, a largely peripheral empire confined to Spain and Austria.” ‘Germany’ was not united; unification of the some thirty-seven German states would only occur two centuries later. Richelieu encouraged German Protestants to remain “in the fight against the Hapsburgs” while working to pry German Catholic states away from “the Imperial cause.” In the event, he did sign a secret treaty with Bavaria, agreeing to a defensive alliance. At the same time, he made overtures to the Low Countries, Denmark, and Sweden, with whose monarch, Gustavus Adolphus, France entered into alliance in 1631. As the Byzantines and the Venetians knew, money lubricated good relations and were a lot less expensive than the cost of maintaining larger armies.
As with Byzantium and Austria, such a complex diplomatic strategy required the establishment of a foreign policy bureaucracy to assist in its management. “The very creation of such an entity gave institutional expression to diplomacy as a standing preoccupation of the state, distinct from war, with its own budget, staff, and voice in high policy.” Accordingly, Richelieu systematized French foreign policy, with its ambassadors abroad now “tightly tethered to a professional secretariat back home.”
Richelieu’s aim was “a Europe of sovereign states Catholic and Protestant, whose rights would be enshrined in law and held together by an equilibrium underwritten by its largest powers,” among whom France would hold the balance. The smaller states would be protected. The balance of power would “ensure le repos de la chrétienté.” Mitchell knows that “what ultimately gave French diplomacy its compelling energy was the country’s capacity for large-scale military action.” When its envoys spoke, foreigners listened. But the threat of military intervention came with rational justification: Do you really want to descend into religious warfare, again? Do small states not deserve to have their rights, especially their “liberties” or self-government, respected as much as big states do? Does not the law of nations say that all states have such rights? “By appealing to custom and law as the basis for this policy, rather than the power principle, French kings elevated self-interest to a national mission.” Such arguments required that French statesmen practice what they preached. “The minute [France] switched to a policy of active conquest it would be seen not as a protector but as an opportunistic predator.” When Louis XIV took the throne a year after Richelieu’s death in 1642, he initially followed the advice of the Richelieu’s successor, Mazarin; the 1648 Peace of Westphalia ended the Thirty Years’ War and kept Europe at peace for a generation. But in the 1660s, Louis abandoned the Richelieu-Mazarin strategy, adopting a policy of “security through conquest,” which ended the peace of Europe. And the great power France had neutralized led the charge against France.
In 1755, after ninety years of intermittent war, Austria saw that Prussia, ruled by the brilliant and ruthless Frederick the Great, had arisen as a new danger to Europe generally and to Austria in particular, having seized and held Austria’s most valuable territory, Silesia, in two wars, with a third (also won by Prussia) to follow the next year. The Austrian empress, Maria Theresa, did not rule a thoroughly modernized state, as Austria consisted of “a wild assortment of territories, inhabited by more than a dozen ethnicities,” which “complicated its leaders’ ability to create a powerful central government capable of mobilizing resources for war.” And it was surrounded by enemies.
Wenzel Anton von Kaunitz-Rittburg was Maria Theresa’s most sagacious cabinet minister. In 1749, he wrote a memorandum proposing “nothing less than a comprehensive overhaul of Hapsburg foreign policy” in light of the Prussian menace. Austria needed allies. That required detente with France, hitherto Austria’s “archenemy”—a radical proposal, indeed, since “rivalry with the Bourbons was part of the fixed furniture of Habsburg statecraft,” and one that might easily Austria’s alliances with England and Holland. But those sea powers had proved inadequate for Austrian security. Austria needed the assistance of “nearby land powers—big players, with real military heft, like France and Russia.”
Austria also needed a much more coherent foreign policy apparatus. Its Privy Conference had charge of national security, overseeing the Austrian Court Chancellery, headed by the Chancellor, effectively the foreign minister. In the second quarter of the eighteenth century, another institution was established, the Chancellery of State, headed by the State Secretary. This led to confusion, which Kaunitz set out to eliminate by “install[ing] modern administration on the French model”: a foreign minister (himself), a deputy minister, three department heads, all of whom practiced regular reporting from the ambassadors and routinized office functions. Foreign diplomats were no longer allowed to approach the empress’s advisors directly. The Chancellery, not the Privy Conference, became “the real locus of policy.” This enabled the empress and her foreign minister to implement a coherent new policy, which otherwise would have been stymied: to break with the maritime countries and ally with France and other Catholic countries against the Protestants of Prussia.
When the French and their Indian allies defeated and mortally wounded British General Edward Braddock in the July 1755 Battle of the Monongahela, Kaunitz seized the moment to persuade the Privy Conference to adopt his policy, implemented by offering Louis XV the part of the Austrian Netherlands now called ‘Belgium’ in exchange for French territories in Italy. The French were reluctant, at first, but when Frederick successfully treated with England the following year, they began to see merit in the offer, and in the reconstitution of their alliance structure. Louis pledged military aid to Austria, if the Habsburgs were attacked by a “third party”—obviously, Prussia. Mitchell judges that “it would be hard to find a more lopsidedly advantageous arrangement in diplomatic history.” Kaunitz had no use for the Austrian Netherlands, preferred the southern sphere of influence, Italy (well away from Prussia), and could hope for French military assistance to regain Silesia, if Prussia attacked. Further, France was unthreatened by Prussia and was sending troops needed in North America to a bordering country on continental Europe, instead. Kaunitz then reached out to the Holy Roman Empire, Russia, and the Ottomans in what was called his renversement des alliances.
Now, Prussia was the isolated country. Its rival, Austria, had doubled the military strength it could field. Its new ally, England, was a naval power, unable to offer much military help on the continent. Unfortunately for the Austrians, their military officers were less skilled than their diplomatic corps. In the Seven Years’ War, the Habsburg coalition defeated Prussia repeatedly, driving its army back into its own territory, “but each time, cautious Austrian commanders frittered away their victories and allowed Frederick to bounce back.” When Czarina Elisabeth died and “her erratic son, Peter III,” succeeded her, he abandoned Austria and allied with Prussia, “allowing Frederick to focus his full attention on Austria” and to “force Maria Theresa to the negotiating table,” where she was unable to recover Silesia. Kaunitz’s balance-of-power system might have worked, had the other elements of the Austrian regime met the challenge. They didn’t. With the Polish-Lithuanian Commonwealth, which had buffered Austria from Russia, now in disarray, Austria could either do nothing other than watch Russia and Prussia carve it up or join in the carving. They chose the latter, agreeing to the first partition of Poland in 1772. Kaunitz thus added more than 30,000 square miles of territory and 2.65 million people to the empire—a mixed blessing, since now the acquisitions would need to be governed by the none-too-coherent Austrian state apparatus. He had avoided war, temporarily, at the cost of increased dependence upon Russia, which he had brought back into alliance with Austria; he needed it as a counterweight to Prussia, which had also gained territory and population. “As Europe’s sprawling middle power, Austria could never win in these games.”
And the games continued. The French Revolution and Napoleon made France a new menace to Austria, this time not only a threat to its territories but to its imperial structure and its regime. Austria lost some of its territory in 1797, but this was only a prelude to Napoleon’s dismantling of the Holy Roman Empire in 1806 and to the 1807 agreement between the French emperor and Czar Alexander I, which “divided Europe between them.” A last, desperate war Austria launched two years later “ended with her comprehensive defeat” and the loss of 32,000 square miles of territory along with independence. As an act of propitiation, “the Austrian emperor, Francis I, gave his eldest daughter, Marie Louise,” the great-niece of Marie Antoinette, in marriage “to the Corsican ogre.” And while Napoleon finally met his Waterloo, Austria suffered more combat fatalities than any other country, lost one-third of its population and territory, and incurred a huge war debt.
Once again, diplomacy, so often the art of the weaker, proved Austria’s strongest feature. Klemens Wenzel Count von Metternich, the Austrian foreign minister, organized and hosted the Congress of Vienna, where the victorious powers met to negotiate the postwar settlement. Metternich aimed at what he described as “a long general peace” after “the pains of a two-and-twenty years’ war.” To do that, he recognized, would require the establishment of “a new state of affairs” in Europe “that conforms to all interests,” putting “the geographic and political relations of the powers on a just and therefore durable basis.” He went on to write that he wanted European statesmen to reject “the system of conquest” and to establish a “system of restitution and equivalents in the forming of kingdoms and states” in accordance with the law of nations. “The modern world,” he wrote inclines nations “to draw near to each other, and in some fashion to enter into a social league.” The ancients had only “prudence” to restrain international relations, but modern states might establish those relations “upon the basis of reciprocity, under the guarantee of respect for acquired rights, and the conscientious observance of plighted faith”—all of which requires steady diplomacy. Metternich did not imagine that the balance of power could be erased. It rather should be supplemented by “adherence to treaty rights”—those “acquired rights” he had cited—and an institutional structure that would enable the great powers to consult with one another and coordinate their actions. This went “well beyond Kaunitz’ conception of diplomacy,” as Metternich proposed “a political order in which peace would be preserved not on a reactive basis, through the cobbling-together of coalitions once a war had already broken out, but proactively, on the basis of binding obligations supervised by the great powers,” “an essentially federative arrangement rooted in collective security.” The Holy Roman Empire could provide Europeans with an example of such a structure, a precedent which collapsed not because it was too big but because it wasn’t big enough, did not encompass the whole of Europe. This, and Austria’s own vulnerability, “lent moral credibility to Austrian diplomacy”; the moral thing to do, the peacemaking thing to do, was the only thing contemporary Austria could do. Unlike the other great powers, its particular ‘is’ coincided with the universal ‘ought.’
Structurally, Metternich planned what his aide Friedrich von Gentz called a “central dike” consisting of a strengthened Habsburg monarchy, drawing revenues from territories it had lost to Germany, surrounded by smaller states tied to Austria politically, militarily, and economically. Austria would head a German Confederation, its states following the policy of ‘an attack on one is an attack on all.’ He also hoped that eventually the states within the Confederation would agree to common commercial policies and a transportation network. He also advocated a Quadruple Alliance consisting of Austria, Russia, Prussia, and Britain to contain France and the Holy Alliance consisting of Austria, Prussia, and Russia to uphold monarchic regimes against republics and republicanism, associated in Europe with secularism. A son of the Enlightenment himself, Metternich privately despised the Holy Alliance’s religious inflexion while regarding it as necessary to keep Orthodox Russia involved—which he wanted to do, because he envisioned of regular consultations among Alliance members as a means of restraining the Czar’s ambitions in Eastern and Central Europe.
Generally, such consultation was the animating practice of all these constructs. He did not want any of them to have a professional executive body. That, “he believed, would have fueled the growth of a permanent bureaucracy with its own separate agenda.” Regular conferences or “congresses” charged with addressing specific interstate problems or questions were much preferable.
In 1818, France joined the Quadruple Alliance. The new Quintuple Alliance proved fragile, as Britain “was drawn more and more to its traditional foreign policy of avoiding peacetime alliances on the European continent,” especially after George Canning replaced Metternich’s friend, foreign secretary Viscount Castlereagh in 1822, and as France also distanced itself after the appointment of Chateaubriand, who “saw France’s participation in the Vienna system as a national humiliation.” On Austria’s eastern and southern fronts, Russia coveted Ottoman territories in the Balkans “under the guise of protecting Orthodox Christians” and Ottoman power declined, especially under the pressure of the Greek independence movement.
Metternich kept the alliance with Russia alive, nonetheless, and it was fortunate for Austria that he did. In the revolutionary period of 1848-49, the Habsburg family was threatened, Metternich fled the country, but Russia came to Austria’s aid and Prussia assisted in quelling the rebel forces within the German Confederation. “Metternich’s diplomacy helped ensure not only that Austria’s geopolitical rivalries were pacified but that the rivals themselves were active participants in her salvation.”
War among the great powers did break out in the mid-1850s, when the ever-weakening Ottomans refused the Czar’s demand to make Russia the protectors of Orthodox Christian in the sultan’s empire. In retaliation, the Czar’s army occupied the Danubian Principalities—Moldavia and Wallachia—controlled by the Ottomans. In order to preserve what was now called the Concert of Europe, Britain and France sided with the Ottomans and defeated the Russian forces in 1856. Thanks to the Austrian system, however, the war did not become generalized, as it would in 1914. That was after “the impetuous young emperor Franz Joseph had discarded Metternich’s conservative methods in favor of a new grand strategy centered on offensive military power,” which left Austria “ranged against multiple rivals without a single ally.” The results “were catastrophic” both for Austria and for Europe.
Austria’s decline facilitated its expulsion from the German Confederation, a move precipitated by Prussia under the direction of its master geopolitician, Otto von Bismarck.
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