Hammering out the treaty

The Paris Peace Conference opened on January 18, 1919, in a politically charged atmosphere. The delegations of 27 nations harassed the Great Powers with their various and conflicting complaints and demands. The Great Powers, in turn, sent five delegates each, supported by sprawling staffs of geographers, historians, and economists. Clearly, peace could not be made in such a global assembly; hence the five leading victors created a Council of Ten—the heads of government and their foreign ministers. But even this proved unwieldy, and since Italy and Japan tended to focus on questions of local interest, major decisions were hammered out in private by an informally constituted Big Three: Wilson, Lloyd George, and Clemenceau. The French had tried to impose a schedule of priorities for the conference, but Wilson insisted on tackling the League of Nations first in order to prevent the others from rejecting the League or using it as a bargaining chip in later disputes. The French were skeptical of the idealistic basis of the League but hoped that it might be turned into an instrument of security committing the British and Americans to the defense of the new European order. In this they were disillusioned, for the British viewed the League less as a means for mobilizing force against an aggressor than as a means of preventing future conflicts in the first place. The Covenant of the proposed League provided for a plenary assembly of all members and a council of the Great Powers and outlined a system of sanctions against aggressor states. But the British chose to focus on moral sanctions (not unlike Wilson’s belief in the “court of world opinion”), or at most economic sanctions, and participation in military sanctions was made voluntary. The Covenant also contained machinery for declaring boundary changes, implying that the League’s primary function was to secure peace, not to secure the status quo. Upon final rejection in April of a Franco-Italian plan for tougher collective security and an international force adequate to enforce peace, French newspapers scorned the League as a toothless debating society. And since Clemenceau had succeeded in having Germany barred from the League pending good behaviour, the German press denounced it as a “League of Victors.”

In mid-February Wilson returned to the United States to attend to presidential duties, and in his absence committees went to work on the details of the German treaty. Foremost in the minds of the French was security against future German attack. As early as November 1918 Marshal Ferdinand Foch drafted a memo identifying the Rhine as “the frontier of democracy” and arguing for the separation of the Rhineland from Germany and its occupation in perpetuity by Allied troops. This plan echoed earlier French war aims: The victory of 1871 had created a unified Germany; the defeat of 1918 should undo it. Foch’s occupation forces tried also to locate and encourage the Rhenish autonomist tendencies that grew up for a brief time in 1919 out of the desire to escape the burden of defeat and fear of the Communist agitation in Berlin. But the primary French argument was strategic: Four times in a century German armies had invaded France from the Rhineland (1814, 1815, 1870, 1914), and a united Germany would remain potentially overwhelming. As General Fayolle put it, “One speaks of the League, but what can this hypothetical society do without a means of action? One promises alliances, but alliances are fragile, like all human things. There will always come a time when Germany will have a free hand. Take all the alliances you want, but the greatest need for France and Belgium is a material barrier.”

André Tardieu, Clemenceau’s chief aide, sought to give the Rhineland scheme a Wilsonian gloss in a lengthy memo distributed on February 25. The Rhenish people, he claimed, were largely Celtic, Catholic, and liberal and resented the rule of Germanic, Protestant, and authoritarian Prussia. They had been loyal citizens of the French Republic and Empire from 1792 to 1815. Thus an autonomous Rhineland would serve both self-determination and the defense of democracy. The British and Americans rejected Tardieu’s brief in the strongest terms and warned that dismemberment of Germany would only create “a new Alsace-Lorraine” and the seeds of a new war. In April, after Wilson returned to Paris, he and Lloyd George countered with an unprecedented offer: an Anglo-American guarantee to fight on the side of France in case of future German aggression. The French were again skeptical. In a future war the United States and Britain would need months or years to raise and transport armies, by which time France might be lost. On the other hand, how could Clemenceau refuse an unlimited extension of the wartime coalition? On March 17 he proposed a mixed solution—the guarantee treaties, plus material safeguards including German disarmament, demilitarization, and Allied occupation of the Rhine.

This acrimonious debate over security overlapped with the negotiations over reparations. The latter was perhaps an even more emotional issue, since the financial settlement would affect every taxpayer in every country. The moral issues also seemed clearer: Surely Germany, and not her victims, should pay for reconstruction; surely the wealthy British and Americans should forgive France’s war debt, a small sacrifice beside those made by France in the joint effort. The French government had borrowed 26,000,000,000 francs from its own people during the war and owed another $3,600,000,000 to Britain and the United States. The franc had lost 70 percent of its value. Yet French hopes for Allied economic unity were dashed when the U.S. Treasury refused to discuss abrogation of war debts, rejected French and Italian proposals for a “financial League of Nations,” and opposed economic favouritism of all kinds in accord with the Fourteen Points. The British, in turn, repudiated the resolutions of the 1916 Allied Economic Conference and refused to forgive France her debt so long as the United States insisted on repayment from London.

“If it is France or Germany that must be ruined,” wrote a conservative French journal about the reparations debate, “let us be sure that it is Germany!” The French chamber refused to vote a tax on capital and relied on German payments to cover the cost of repairing the devastated regions. Wilson accepted German responsibility for war damage, but the British vastly inflated reparations by insisting on repayment for “invisible damage” like sunken ships and cargo, lost markets and production, and veterans’ pensions. On the other hand, the British favoured setting a fixed indemnity in the treaty, while the French claimed that Germany should agree to pay whatever reparation ended up costing. When negotiations failed to fix either a total sum or the percentage shares to flow to France, Britain, Belgium, and the others, the U.S. delegation recommended on March 24 that the whole problem be postponed. On April 5 it was agreed that a Reparations Commission would determine, by May 1, 1921, the amount and timing of German payments and be empowered to declare defaults and sanctions in case of noncompliance. But in the meantime Germany would make immediate transfers totaling 20,000,000,000 gold marks. Thus the peace conference obliged the Germans to sign an open account and adjourned without plans to stabilize currencies or settle war debts.

In economic matters the French delegation laboured to improve the imbalance in heavy industry between Germany and France. At first Clemenceau fought hard for annexation of the Saar—the French “frontier of 1814”—and then settled for French control of the Saar coal mines and a League of Nations administration for 15 years, at which time the Saarlanders would hold a plebiscite to decide their permanent status. Germany was also obliged to deliver 20,000,000 tons of coal per year to France and Belgium and to allow the products of Alsace-Lorraine into Germany duty-free for five years.

Such punitive clauses ensured German feebleness for some time to come. France, on the other hand, now possessed both the largest army in Europe and a set of natural allies among the new states in eastern Europe. Not surprisingly, many British observers came to consider France the primary threat to dominate the Continent. In late March Lloyd George’s eloquent Fontainebleau Memorandum warned that vindictiveness in the hour of victory would serve not justice and reconciliation but German revanchism and Bolshevik propaganda. Nevertheless Clemenceau, under attack from President Poincaré, Marshal Foch, and the parliament for “giving up the Rhine,” dared not compromise further. On April 22, Wilson and Lloyd George accepted his material guarantees of security in addition to the Anglo-American pacts. These included the limitation of the German army to 100,000 men with no offensive weapons; demilitarization of a zone extending 50 kilometers east of the Rhine; and an Allied occupation of the left bank of the Rhine, with bridgeheads at Cologne, Koblenz, Mainz, and Kehl. The occupation would be divided into three zones, to be evacuated serially at five-year intervals.