Fighting Churchill, Appeasing Hitler

FIGHTING CHURCHILL, APPEASING HITLER

NEVILLE CHAMBERLAIN, SIR HORACE WILSON, & BRITAIN’S PLIGHT OF APPEASEMENT: 1937–1939

ADRIAN PHILLIPS

For Sheila

CONTENTS

Preface

Dramatis Personae and Explanatory Notes

Endnotes

Select Bibliography

Acknowledgements

Index

PREFACE

‘Appeasement’, now a ‘dirty’ word, was once quite respectable.

– LORD STRANG, BRITAIN IN WORLD AFFAIRS

In 1941, as his time in office drew to a close, the head of the British Civil Service, Sir Horace Wilson, sat down to write an account of the government policy with which he had been most closely associated. It was also the defining policy of Neville Chamberlain, the Prime Minister whom Wilson had served as his closest adviser throughout his time in office. It had brought Chamberlain immense prestige, but this had been followed very shortly afterwards by near-universal criticism. Under the title ‘Munich, 1938’, Wilson gave his version of the events leading up to the Munich conference of 30 September 1938, which had prevented – or, as proved to be the case, delayed – the outbreak of another world war at the cost of the dismemberment of Czechoslovakia. By then the word ‘appeasement’ had acquired a thoroughly derogatory meaning. Chamberlain had died in 1940, leaving Wilson to defend their joint reputation. Both men had been driven by the highest of motivations: the desire to prevent war. Both had been completely convinced that their policy was the correct one at the time and neither ever admitted afterwards that they might have been wrong.

After he had completed his draft, Wilson spotted that he could lay the blame for appeasement on someone else’s shoulders. Better still, it was someone who now passed as an opponent of appeasement. In an amendment to the typescript, he pointed out that in 1936, well before Chamberlain became Prime Minister, Anthony Eden, the then Foreign Secretary, had stated publicly that appeasement was the government’s policy. The point seemed all the more telling as Eden had been edged out of government by Chamberlain and Wilson in early 1938 after a disagreement over foreign policy. Eden had gone on to become a poster-boy for the opponents of appeasement, reaping his reward in 1940 when Chamberlain fell. Chamberlain’s successor, Winston Churchill, had appointed Eden once again as Foreign Secretary. Wilson was so pleased to have found reason to blame appeasement on Eden that he pointed it out a few years later to the first of Chamberlain’s Cabinet colleagues to write his memoirs.¹

Wilson’s statement was perfectly accurate, but it entirely distorted the truth, because it ignored how rapidly and completely the meaning of the word ‘appeasement’ had changed. When Eden first used the word, it had no hostile sense. It meant simply bringing peace and was in common use this way. ‘Appease’ also meant to calm someone who was angry, again as a positive act, but Eden never said that Britain’s policy was to ‘appease’ Hitler, Nazi Germany, Mussolini or Fascist Italy. Nor, for that matter, did Chamberlain use the word in that way. The hostile sense of the word only developed in late 1938 or 1939, blending these two uses of the word to create the modern sense of making shameful concessions to someone who is behaving unacceptably. The word ‘appeasement’ has also become a shorthand for any aspect of British foreign policy of the 1930s that did not amount to resistance to the dictator states. This is a very broad definition, and it should not mask the fact that the word is being used here in its modern and not its contemporary sense. The foreign policy that gave the term a bad name was a distinct and clearly identifiable strategy that was consciously pursued by Chamberlain and Wilson.

When Chamberlain became Prime Minister in May 1937, he was confronted by a dilemma. The peace of Europe was threatened by the ambitions of the two aggressive fascist dictators, Hitler in Germany and Mussolini in Italy. Britain did not have the military strength to face Germany down; it had only just begun to rearm after cutting its armed forces to the bone in the wake of the First World War and was at the last gasp of strategic over-reach with its vast global empire. Chamberlain chose to solve the problem by setting out to develop a constructive dialogue with Hitler and Mussolini. He hoped to build a relationship of trust which would allow the grievances of the dictator states to be settled by negotiation and to avoid the nightmare of another war. In other words, Chamberlain sought to appease Europe through discussion and engagement. In Chamberlain’s eyes this was a positive policy and quite distinct from what he castigated as the policy of ‘drift’ that his predecessors in office, Ramsay MacDonald and Stanley Baldwin, had pursued. Under their control, progressive stages in aggression by the dictators had been met with nothing more than ineffectual protests, which had antagonised them without deterring them.

Chamberlain’s positive approach to policy was the hallmark of his diplomacy. He wanted to take the initiative at every turn, most famously in his decision to fly to see Hitler at the height of the Sudeten crisis. Often his initiatives rested on quite false analyses; quite often the dictators pre-empted him. But Chamberlain was determined that no opportunity for him to do good should be allowed to escape. The gravest sin possible was the sin of omission. At first his moves were overwhelmingly aimed at satisfying the dictators. Only after Hitler’s seizure of Prague in March 1939 did deterring them from further aggression become a major policy goal. Here, external pressures drove him to make moves that ran counter to his instincts, but they were still usually his active choices. Moreover, the deterrent moves were balanced in a dual policy in which Hitler was repeatedly given fresh opportunities to negotiate a settlement of his claims, implicitly on generous terms.

Appeasement reached its apogee in the seizure of Prague in 1939. Chamberlain was the driving force behind the peaceful settlement of German claims on the Sudetenland. He was rewarded with great, albeit short-lived, kudos for having prevented a war that had seemed almost inevitable. He also secured an entirely illusory reward, when he tried to transform the pragmatic and unattractive diplomatic achievement of buying peace with the independence of the Sudetenland into something far more idealistic. Chamberlain bounced Hitler into signing a bilateral Anglo-German declaration that the two countries would never go to war. Chamberlain saw this as the first building block in creating a lasting relationship of trust between the two countries. It was this declaration, rather than the dismemberment of Czechoslovakia under the four-power treaty signed by Britain, France, Germany and Italy, that Chamberlain believed would bring ‘peace for our time’, the true appeasement of Europe. At the start of his premiership, Chamberlain had yearned to get ‘on terms with the Germans’; he thought that he had done just that.

Appeasing Europe through friendship with the dictators also required the rejection of anything that threatened this friendship. One of the most conspicuous threats was a single individual: Winston Churchill. Almost from the beginning of Hitler’s dictatorship Churchill had argued that it was vital to Britain’s interests to oppose Nazi Germany by force, chiefly by rearming. Unlike most other British statesmen, Churchill recognised in Hitler an implacable enemy and he deployed the formidable power of his rhetoric to bring this home in Parliament and in the press. But Churchill was a lone voice. When he had opposed granting India a small measure of autonomy in the early 1930s, he had moved into internal opposition to the Conservative Party. Only a handful of MPs remained loyal to him. Churchill was also handicapped by a widespread bad reputation that sprang from numerous examples of his poor judgement and political opportunism.

Chamberlain was determined on a policy utterly opposed to Churchill’s view of the world. He enjoyed a very large majority in Parliament and faced no serious challenge in his own Cabinet. Chamberlain and Wilson were so convinced that their policy was correct that they saw opposition as dangerously irresponsible and had no hesitation in using the full powers at their disposal to crush it. Churchill never had a real chance of altering this policy. It would have sent a signal of resolve to Hitler to bring him back into the Cabinet, but this was precisely the kind of gesture that Chamberlain was desperate to avoid. Moreover, Chamberlain and Wilson each had personal reasons to be suspicious of Churchill as well as sharing the prevalent hostile view of him that dominated the political classes. Wilson and Churchill had clashed at a very early stage in their careers and Chamberlain had had a miserable time as Churchill’s Cabinet colleague under Prime Minister Stanley Baldwin. Chamberlain and Wilson had worked closely to fight a – largely imaginary and wildly exaggerated – threat from Churchill’s support for Edward VIII in the abdication crisis of 1936.

Churchill was right about Hitler and Chamberlain was wrong. The history of appeasement is intertwined with the history of Churchill. According to legend Churchill said, ‘Alas, poor Chamberlain. History will not be kind to him. And I shall make sure of that, for I shall write that history.’ Whatever Churchill might actually have said on the point barely matters; the witticism expresses a mindset that some subsequent historians have striven to reverse. The low opinion of Chamberlain is the mirror image of the near idolatry of Churchill. In some cases, historians appear to have been motivated as much by dislike of Churchill – and he had many flaws – as by positive enthusiasm for Chamberlain. Steering the historical debate away from contemporary polemic and later hagiography has sometimes had the perverse effect of polarising the discussion rather than shifting it onto emotionally neutral territory. Defending appeasement provides perfect material for the ebb and flow of academic debate, often focused on narrow aspects of the question. At the last count, the school of ‘counter-revisionism’ was being challenged by a more sympathetic view of Chamberlain.

Chamberlain’s policy failed from the start. The dictators were happy to take what was on offer, but gave as good as nothing in return. Chamberlain entirely failed to build worthwhile relationships. Chamberlain’s advocates face the challenge that his policy failed entirely. Chamberlain’s defenders advance variants of the thesis that Wilson embodied in ‘Munich, 1938’: that there was no realistic alternative to appeasement given British military weakness. This argument masks the fact that it is practically impossible to imagine a worse situation than the one that confronted Churchill, when he succeeded Chamberlain as Prime Minister in May 1940. The German land attack in the west was poised to destroy France, exposing Britain to a German invasion. It also ducks the fact that securing peace by seeking friendship with the dictators was an active policy, pursued as a conscious choice and not imposed by circumstances.

Chamberlain’s foreign policy is by far the most important aspect of his premiership and the attention that it demands has rather crowded out the examination of other aspects of his time at Downing Street. Discussion of his style of government has focused on the accusation that he imposed his view of appeasement on a reluctant Cabinet, which has been debated with nearly the same vigour as the merits or otherwise of the policy itself. In the midst of this, little attention has been paid to Wilson, even though Chamberlain’s latest major biographer – who is broadly favourable to his subject – concedes he was ‘the éminence grise of the Chamberlain regime … gatekeeper, fixer and trusted sounding board’.² Martin Gilbert, one of Chamberlain’s most trenchant critics, made a start on uncovering Wilson’s full role in 1982 with an article in History Today, but few have followed him. There has been an academic examination of his Civil Service career and an academic defence of his involvement in appeasement.³ Otherwise, writers across the spectrum of opinions on appeasement have contented themselves with the unsupported assertion that Wilson was no more than a civil servant.⁴ Wilson does, though, appear as a prominent villain along with Chamberlain’s shadowy political adviser, Sir Joseph Ball, in Michael Dobbs’s novel about appeasement, Winston’s War.

Dismissing Wilson as merely a civil servant begs a number of questions. The British Civil Service has a proud tradition and ethos of political neutrality, but it strains credulity to expect that this has invariably been fully respected. Moreover, at the period when Wilson was active, the top level of the Civil Service was still evolving, with many of its tasks and responsibilities being fixed by accident of personality or initiative from the Civil Service side. Wilson’s own position as adviser to the Prime Minister with no formal job title or remit was unprecedented and has never been repeated. Chamberlain valued his political sense highly and Wilson did not believe that his position as a civil servant should restrict what he advised on political tactics or appointments. Even leaving the debate over appeasement aside, Wilson deserves attention.

This book attempts to fill this gap. Wilson was so close to Chamberlain that it is impossible to understand Chamberlain’s premiership fully without looking at what Wilson did. The two men functioned as a partnership, practically as a unit. Even under the extreme analysis of the ‘mere civil servant’ school whereby Wilson was never more than an obedient, unreflecting executor of Chamberlain’s wishes, his acts should be treated as Chamberlain’s own acts and thus as part of the story of his premiership. It is practically impossible to measure Wilson’s own autonomous and distinctive input compared to Chamberlain’s, but there can be no argument that he represented the topmost level of government.

Wilson’s hand is visible in every major aspect of Chamberlain’s premiership and examining what he did throws new light almost everywhere. Wilson’s influence on preparations for war – in rearming the Royal Air Force and developing a propaganda machine – makes plain that neither he nor Chamberlain truly expected war to break out. One of the most shameful aspects of appeasement was the measures willingly undertaken to avoid offending the dictators, either by government action or by comment in the media; Wilson carries a heavy responsibility here.

Above all it was Wilson’s role in foreign policy that defined his partnership with Chamberlain and the Chamberlain premiership as a whole. He was also the key figure in the back-channel diplomacy pursued with Germany that showed the true face of appeasement. Wilson carries much of the responsibility for the estrangement between Chamberlain and the Foreign Office, which was only temporarily checked when its political and professional leaderships were changed. Chamberlain and Wilson shared almost to the end a golden vision of an appeased Europe, anchored on friendship between Britain and Germany, which was increasingly at odds with the brutal reality of conducting diplomacy with Hitler. The shift to a two-man foreign policy machine culminated in the back-channel attempts in the summer of 1939 intended to keep the door open to a negotiated settlement of the Polish crisis with Hitler, but which served merely to convince him that the British feared war so much that they would not stand by Poland. Chamberlain and Wilson had aimed to prevent war entirely; instead they made it almost inevitable. This book is the story of that failure.

DRAMATIS PERSONAE AND EXPLANATORY NOTES

The names, titles, descriptions and positions of the individuals are shown as they were at the time they feature in the narrative. No attempt is made to provide other biographical information.

AMERY, LEOPOLD

Conservative MP and passionate imperialist

ANDERSON, SIR JOHN

Civil servant turned MP and minister responsible for air raid precautions

ASHTON-GWATKIN, FRANK

Head of economics section, Foreign Office; number two on Lord Runciman’s mission to Czechoslovakia; extensive contacts in Germany. Supported German ambitions in Balkans

ATHOLL, DUCHESS OF

Conservative MP

ATTLEE, CLEMENT

Labour leader 1935–55; War Cabinet 1940 onwards; Prime Minister 1945–51

BALDWIN, STANLEY

British Prime Minister 1923–24, 1924–29, 1935–37

BALL, SIR JOSEPH

Conservative Party propagandist; former MI5 officer; friend of Chamberlain

BASTIANINI, GIUSEPPE

Italian ambassador to London 1939–40

BEAVERBROOK, LORD

Press baron; personal friend of Churchill but favoured appeasement

BECK, JÓZEF

Foreign minister of Poland 1932–39

BENEŠ, EDVARD

President of Czechoslovakia 1935–38

BOCCHINI, ARTURO

Mussolini’s chief of police

BONNET, GEORGES

Foreign minister of France 1938–39

BOOTHBY, BOB

MP; one of Churchill’s few loyal supporters; heavy and unsuccessful stock market speculator; involved in second-tier financial market businesses; junior food minister 1940

BRACKEN, BRENDAN

Conservative MP; newspaper executive; ally of Churchill

BRIDGES, EDWARD

Cabinet Secretary 1938–46; Treasury representation on Air Ministry Supply Committee 1938–39; permanent secretary to Treasury and head of Civil Service 1945–56

BROCKET, LORD

Chairman of Anglo-German Fellowship; Nazi supporter; social ties to Chamberlain

BRUCE-GARDNER, SIR CHARLES

Industrialist; close associate of Montagu Norman; appointed chairman of Society of British Aircraft Contractors in January 1938 to act as link between Downing Street and aircraft industry at a point when rearming RAF was in trouble

BRYANT, ARTHUR

Successful British popular historian

BUCCLEUCH, DUKE OF

Lord Steward of Britain; close to Hitler’s deputy Rudolf Hess; pro-appeasement

BURGIN, LESLIE

Minister of Supply 1939–40

BUTLER, RICHARD ‘RAB’

Junior Foreign Office minister but had responsibility of presenting policy in House of Commons; pro-appeasement

CADOGAN, SIR ALEXANDER ‘ALEC’

Permanent secretary to Foreign Office 1938–46

CAMROSE, LORD

Proprietor of Daily Telegraph; brother of Lord Kemsley

CHAMBERLAIN, AUSTEN

Half-brother of Neville Chamberlain; died in 1937

CHAMBERLAIN, NEVILLE

Chancellor of Exchequer 1931–37; Prime Minister 1937–40; Lord President of the Council 1940

CHANNON, HENRY (‘CHIPS’)

Conservative MP; PPS to Rab Butler; strong supporter of appeasement. Socialite and diarist

CHATFIELD, ADMIRAL LORD

First Sea Lord 1933–38; Minister of Defence Coordination 1939–40

CHURCHILL, WINSTON

President of Board of Trade 1908–10; Home Secretary 1910–11; First Lord of the Admiralty 1911–15; combat service on the Western Front 1915–16; Minister of Munitions 1917–19; Secretary of State for War and Secretary of State for Air 1919–21; Secretary of State for the Colonies 1921–22; Chancellor of Exchequer 1924–29; backbench MP 1929–39; First Lord of the Admiralty 1939–40; Prime Minister 1940–45, 1951–55

CIANO, COUNT GALEAZZO

Foreign minister of Italy 1936–43; married to Mussolini’s daughter Edda

COLVILLE, JOHN ‘JOCK’

Junior personal secretary to Chamberlain (1939–40) then to Churchill (1940–41, 1943–45)

CONWELL-EVANS, PHILIP

Secretary of the Anglo-German Fellowship; former professor at Königsberg University; close ties to Ribbentrop and active in unofficial contacts between Britain and Germany; began as supporter of appeasement but turned against it after Munich

COOPER, ALFRED DUFF

Conservative MP; First Lord of the Admiralty 1937–38. Resigned in protest at Munich agreement

DALADIER, ÉDOUARD

Prime Minister of France 1933, 1934, 1938–40

DALTON, HUGH

Labour MP; chairman of Labour Party 1936–37

DAVIDSON, J. C. C.

Chairman of Conservative Party 1926–30

DAWSON, GEOFFREY

Editor of The Times 1912–19, 1923–41

DIETRICH, OTTO

Hitler’s press secretary

DINGLI, ADRIAN

Legal adviser to Italian embassy, London

DIRKSEN, HERBERT VON

German ambassador to London 1938–39

DRUMMOND WOLFF, HENRY

Former far-right Conservative MP; associate of Sir Joseph Ball and Duke of Westminster

DUGDALE, TOMMY

Conservative MP; PPS to Stanley Baldwin 1935–37; friend of Wilson

DUNCAN, ANDREW

President of Board of Trade 1940, 1941–42; associate of Montagu Norman

DUNGLASS, LORD (ALEC)

Conservative MP; parliamentary private secretary to Chamberlain 1936–40; Prime Minister 1963–64 (as Sir Alec Douglas-Home)

EDEN, ANTHONY

Foreign Secretary 1935–38, 1940–45; Prime Minister 1955–57

FASS, SIR ERNEST

Public Trustee; director general designate, Ministry of Information

FISHER, SIR WARREN

Permanent secretary to Treasury and head of Civil Service 1919–39

FREEMAN, SIR WILFRID

Air marshal 1937; air chief marshal 1940

GEYR VON SCHWEPPENBURG, LEO

German military attaché in London 1933–37, then on Ribbentrop’s personal staff in Berlin

GOEBBELS, JOSEPH

German minister for propaganda and public enlightenment 1933–45

GOERING, HERMANN

Senior Nazi politician; no formal role in foreign policy but had ambitions in this direction

GRANDI, COUNT DINO

Italian Fascist politician; ambassador to London 1932–39

GREENWOOD, ARTHUR

Deputy leader of Labour Party 1935–45

HALIFAX, LORD

Foreign Secretary 1938–40

HANKEY, SIR MAURICE

Cabinet Secretary 1916–38; director of Suez Canal Company 1938–39; War Cabinet 1939–41

HARVEY, OLIVER

Foreign Office official; private secretary to Eden then Halifax; personally close to Eden

HENDERSON, SIR NEVILE

British ambassador to Berlin 1937–39

HENLEIN, KONRAD

Leader of the Sudetendeutsche Partei, representing German speakers in Czechoslovakia

HESSE, FRITZ

Press adviser to German embassy in London; worked closely with Ribbentrop when he was ambassador to London and when he became foreign minister

HEWEL, WALTHER

Friend of Hitler; tasked with liaison between Hitler and Ribbentrop

HITLER, ADOLF

German dictator

HOARE, SIR SAMUEL

Home Secretary 1937–39; Lord Privy Seal 1939–40

HORE-BELISHA, LESLIE

National Liberal MP; War Secretary 1937–40

HUDSON, ROB

Conservative junior trade minister 1937–40

INFIELD, LOUIS

Junior civil servant, Ministry of Health

INSKIP, SIR THOMAS

Minister for Defence Coordination 1936–39, Dominions Secretary 1939, 1940

JEBB, GLADWYN

British diplomat, private secretary to Sir Alexander Cadogan

JONES, SIR RODERICK

Chairman of Reuters news agency; supporter of appeasement

KEARLEY, HUDSON

Parliamentary Secretary of Board of Trade 1905–09

KEMSLEY, LORD

Press baron, owner of Sunday Times and Daily Sketch; consistent supporter of Chamberlain and appeasement

KENNEDY, JOSEPH

US ambassador to London 1938–40

KIRKPATRICK, IVONE

Official, British embassy, Berlin; member of British delegation to Bad Godesberg and Munich conferences; accompanied Wilson on his solo visits to Hitler during the Sudeten crisis

KORDT, ERICH

German diplomat; counsellor (number two) at German embassy in London until March 1938 when he returned to Berlin as head of Ribbentrop’s private office; close to Ernst von Weizsäcker

KORDT, THEODOR

German diplomat; joined embassy in London when his brother returned to Berlin; chargé d’affaires there during Sudetenland crisis

LEEPER, REX

Foreign Office official; head of press department until 1939; opponent of appeasement

LINDEMANN, PROFESSOR FREDERICK

Churchill’s science and aviation adviser

LLOYD GEORGE, DAVID

Former Prime Minister (1916–22); still held great ambitions; persistent critic of successive governments

LONDONDERRY, LORD

Air Secretary 1931–35

MACDONALD, JAMES RAMSAY

Prime Minister 1924, 1929–35

MACMILLAN, LORD

Minister of Information 1939–40

MAISKY, IVAN

Soviet ambassador to London 1932–43

MANENTI, MARIO

Italian sculptor and property developer, supposedly linked to Arturo Bocchini

MARGESSON, CAPTAIN DAVID

Conservative MP and chief whip 1931–40

MASARYK, JAN

Czech ambassador to London 1925–38

MILCH, ERHARD

Luftwaffe field marshal

MOLOTOV, VYACHESLAV

Soviet foreign minister 1939–49

MORRISON, WILLIAM ‘SHAKES’

Conservative MP; Minister of Agriculture 1936–39; Minister of Food 1939–1940

MUSSOLINI, BENITO

Italian dictator

NEURATH, KONSTANTIN VON

German foreign minister 1932–38

NICOLSON, HAROLD

National Labour MP so theoretically a government supporter but opposed to appeasement

NICOLSON, NIGEL

Conservative MP; son of Harold

NORMAN, MONTAGU

Governor of the Bank of England 1920–44; close associate of Wilson

NUFFIELD, LORD

Industrialist, car-maker

PETSCHEK, PAUL

Émigré Czech businessman

PHIPPS, SIR ERIC

British ambassador to Berlin 1933–37; British ambassador to Paris 1937–39

REITH, SIR JOHN

Director general of BBC 1927–38; chairman of Imperial Airways 1938–39; Minister of Information 1940

RIBBENTROP, JOACHIM VON

Negotiated Anglo-German Naval Agreement 1935; German ambassador to London 1936–38; foreign minister 1938–45

ROOSEVELT, FRANKLIN D.

US President 1933–45

ROOTHAM, JASPER

Junior private secretary to Chamberlain

ROTHERMERE, LORD

Press baron

RUNCIMAN, LORD

British politician; headed British mission to Czechoslovakia July–September 1938

SANDYS, DUNCAN

Conservative MP; married to Churchill’s daughter Diana

SCHACHT, HJALMAR HORACE GREELY

President of Reichsbank, German central bank; close associate of Montagu Norman

SCHMIDT, PAUL

Auswärtiges Amt interpreter

SIMON, SIR JOHN

National Liberal MP; Foreign Secretary 1931–35; Home Secretary 1935–37; Chancellor of Exchequer 1937–40

SINCLAIR, SIR ARCHIBALD

Leader of the opposition Liberal Party 1935–45; close to Churchill, whose adjutant he had been during the First World War when Churchill commanded a battalion in combat on Western Front

SPEARS, EDWARD

Conservative MP and businessman

STALIN, JOSEF

Soviet dictator

STAMP, LORD

Statistician and senior railway company executive; close associate of Montagu Norman

STANLEY, OLIVER

Conservative MP; President of the Board of Trade 1937–40

STEWARD, GEORGE

Press officer at 10 Downing Street

STRANG, WILLIAM

Foreign Office official; accompanied Chamberlain on all his visits to Germany

STUART, SIR CAMPBELL

Chairman of Cable & Wireless; head of Department of Enemy Propaganda 1938–40

STUART, JAMES

Conservative MP; deputy chief whip

SWINTON, LORD

(formerly Sir Philip Cunliffe-Lister) Air Secretary 1935–38

TALLENTS, SIR STEPHEN

Director general designate of Ministry of Information 1936–39

TENNANT, ERNEST

Founder of Anglo-German Fellowship; wealthy City businessman; constituent of Butler; close friend of Ribbentrop when he was ambassador to Britain

THOMAS, J. P. L.

Conservative MP; parliamentary private secretary to Jimmy Thomas 1932–35; parliamentary private secretary to Eden 1937–38

THOMAS, JIMMY

Labour politician; given task of finding solutions to unemployment with Wilson as his civil servant 1929–31

THORNTON-KEMSLEY, COLIN

Conservative Party activist in Churchill’s Epping constituency; organised attempts to undermine Churchill

VANSITTART, SIR ROBERT

Permanent secretary to Foreign Office 1930–38; chief diplomatic adviser 1938–41

WEININGER, RICHARD

Émigré Czech businessman; business partner and friend of Bob Boothby

WEIR, LORD

Industrialist; unofficial adviser to Lord Swinton; associate of Wilson

WEIZSÄCKER, ERNST VON

Professional head of the Auswärtiges Amt 1938–43

WESTMINSTER, DUKE OF, ‘BENDOR’

Aristocrat; friend of Churchill but pro-German

WILSON, SIR HORACE

British civil servant; chief industrial adviser 1932–35, seconded for service to Downing Street 1935–39, permanent secretary to Treasury and head of Civil Service 1939–42

WINTERTON, LORD

Conservative MP 1904–51; Commons spokesman for Air Secretary 1938

WOHLTHAT, HELMUT

Businessman and economic adviser to Goering

WOOD, SIR KINGSLEY

Conservative MP; Minister of Health 1935–38; Air Secretary 1938–40

WOOLTON, LORD

Businessman; friend of Wilson; Minister of Food 1940–43

YOUNG, GORDON

Associate editor, Reuters

EXPLANATORY NOTES

Between 1924 and 1929 Stanley Baldwin was Prime Minister in a purely Conservative government. Baldwin lost the 1929 election and was replaced by Ramsay MacDonald in a purely Labour minority government. In 1931 the Labour government split over MacDonald’s austerity proposals and was replaced by a ‘National Government’ coalition of Conservatives, Liberals and a small number of Labour MPs. The general election of 1931 gave the Conservatives a large parliamentary majority in their own right but they continued to support the National Government, with MacDonald remaining as Prime Minister. The Liberals split, with some MPs joining Labour in opposition. MacDonald stepped down as Prime Minister in June 1935 to be replaced by Baldwin. The Conservative majority was reduced in the general election of November 1935. Baldwin’s was still a National Government, although the Liberal and Labour components were small and lacked influence. Baldwin voluntarily stepped down in Chamberlain’s favour in May 1937. Chamberlain maintained the façade of National Government and invited Labour to enter government when war broke out in September 1939, but the Labour leaders declined. Chamberlain’s National (de facto Conservative) Government was replaced by a coalition of all main parties under Winston Churchill in May 1940.

British Secretaries

The word secretary appears in a number of different British political and Civil Service titles, sometimes confusingly:

Secretary of State: a senior government minister. The foreign and home affairs ministers are always the Foreign Secretary and the Home Secretary.

Under-Secretary of State: a junior minister.

Permanent secretary (or Under-Secretary): a senior civil servant in charge of a ministry.

Parliamentary private secretary (often known as a PPS): an MP who assists a minister who sits as an MP. There was no corresponding support for a minister who sat in the House of Lords.

Private secretary: a civil servant who assists either a minister or a permanent secretary.

Lord Halifax as Secretary of State for Foreign Affairs, or Foreign Secretary, was thus assisted by Oliver Harvey, a civil servant, as his private secretary. Halifax was politically responsible for the Foreign Office, which was run by Sir Alexander Cadogan, a civil servant, its permanent secretary. Cadogan was assisted by Gladwyn Jebb, a civil servant, his private secretary. Halifax was politically senior to Rab Butler, the Under-Secretary of State for Foreign Affairs, who was supported by Henry ‘Chips’ Channon MP as parliamentary private secretary and Peter Loxley, a civil servant, as private secretary. All of these left memoirs or diaries except for Loxley, who was killed in a wartime plane crash.

PROLOGUE

A MAN I CAN DO BUSINESS WITH

If Hitler had been a British nobleman and Chamberlain a British working man with an inferiority complex, the thing could not have been better done.

– HUGH DALTON

When Neville Chamberlain flew to Munich to meet Adolf Hitler on 15 September 1938 he was trying to save Europe from war. This was the mission that had dominated his time as Prime Minister, which had begun in May 1937, when Chamberlain had set out with the broad intention to ‘get on terms with the Germans’. This had narrowed to the specific goal of finding a peaceful resolution to Germany’s claims against Czechoslovakia, which had provoked a crisis that had been growing in intensity through the summer. France was treaty-bound to defend Czechoslovakia and Britain was loosely allied to France so a German attack would trigger a broad European war. A German attack was looking ever likelier and as a last-ditch move to ward one off, Chamberlain had proposed coming to Germany for a personal discussion with Hitler. Chamberlain was driven by a strong sense of personal mission. In an era long before summit diplomacy and international travel by air had become routine, his move was a dramatic intervention in the fullest sense, attracting widespread surprise and admiration.

Such was the amazement that greeted Chamberlain’s decision to fly to Germany that comparatively little attention was paid to the man who accompanied him on his journey, or why he should have been chosen: Sir Horace Wilson, GCB, GCMG, CBE. Wilson was a very senior civil servant, who acted as personal adviser to the Prime Minister. The string of initials after his name meant that not only was he a knight twice over, but he also held the top grade in the two most highly ranked orders of chivalry that someone not born into the aristocracy was ever likely to attain. He was Britain’s most powerful civil servant but, far more important, Wilson was Chamberlain’s closest confidant and one of his few personal friends. Even before Chamberlain became Prime Minister, he and Wilson had been allies in a well-hidden but deep-seated struggle over how to handle the crisis that led to the abdication of Edward VIII, the gravest threat to Britain’s constitutional stability for a generation. The flight to Munich was also, in part, Wilson’s project. He and Chamberlain had thought up the idea of a summit meeting with Hitler in the course of one of the late-night private conversations that characterised their relationship. They had given it the suitably melodramatic codename of ‘Plan Z’.

Wilson fully appreciated the loneliness of Chamberlain’s position, especially as he struggled with questions of war or peace. He saw that part of his job lay in keeping up Chamberlain’s morale when faced with the risks of his work and the criticism inevitable for any politician. As the plane droned on its five-hour flight from Heston aerodrome to Munich through turbulent weather, Wilson read out to Chamberlain a selection of the letters that had poured into Downing Street praising the Prime Minister’s courage and initiative in undertaking the mission to preserve peace.¹ Chamberlain and Wilson had already spent long hours poring over detailed maps showing the boundaries between Czech- and German-speaking areas. Moreover, Chamberlain saw the purpose of the mission as, above all, to establish a personal dialogue with the German leader rather than detailed negotiation.

The third and most junior member of the party was William Strang, the head of the Foreign Office’s Central Department, which handled the London end of relations with Germany, although he was far from an expert on the details of the regime. At Munich they were joined by Sir Nevile Henderson, the strongly pro-appeasement British ambassador to Berlin. Together they travelled to Hitler’s mountain retreat, the Berghof at Berchtesgaden.

There were good reasons to query why Chamberlain had chosen Wilson for the mission. Wilson had very little experience of diplomatic negotiations and no direct knowledge of the Nazi regime, and he spoke no German. Few insiders, however, were surprised that Wilson had been chosen and not a professional diplomat. Relations between Downing Street and the Foreign Office had deteriorated over the previous year. Chamberlain and Wilson had come to lose confidence in both its political master, Lord Halifax, and the professional diplomats. They saw the diplomats’ willingness to take a harder line with Hitler as a risky approach that might provoke him into precipitate action. A number of members of the Foreign Office, most notably Sir Robert Vansittart, its former permanent secretary, were violently opposed to Chamberlain’s policy and behaved as a form of opposition party. Downing Street, in particular Wilson, was aware that it could not count on the normal professional loyalty of every member of the Foreign Office. Strang was a forbidding and disciplined figure whose private reservations about appeasement remained well enough hidden for him still to be acceptable. Wilson shared Chamberlain’s utter confidence that the policy of appeasing Hitler was the only possible way to avert war. He had been deeply involved in the British attempts to find a basis for agreement between Germany and Czechoslovakia over the summer. These had focused on establishing a formula for surrender, which the Czechs could be forced to accept. Wilson had a low opinion of the Czechs and feared they might threaten peace by holding out against the Germans.

When the British party arrived at the Berghof, the substantial business of the mission began almost immediately: a private conversation between Hitler and Chamberlain. It had been agreed beforehand to exclude Germany’s ferociously anti-British foreign minister, Joachim von Ribbentrop. Ribbentrop had been the German ambassador to London from 1936 to 1938, but had failed to build a good, lasting relationship between the countries, which had embittered him against the British. Chamberlain wanted to have a direct man-to-man conversation with Hitler. The only other person present was Paul Schmidt, the chief interpreter for the Auswärtiges Amt, the German foreign ministry, whom Hitler passed off as a neutral figure. Afterwards there was an unseemly wrangle when the Germans refused to give the British Schmidt’s note of the meeting, because it was a ‘personal’ conversation. This left Chamberlain to reconstruct the conversation from memory. The British choice for the structure of the meeting had already put them at a disadvantage.

The conversation between Hitler and Chamberlain lasted three hours. Hitler was still in the state of exaltation brought on by addressing the faithful at the Nazi Party rally in Nuremberg a few days before, and he began with a tirade against the supposed iniquities of the Czech government and attacked Britain for interfering in an area of purely German interests. Somewhere along the way he brought up the naval agreement signed between Britain and Germany in 1935 and said it proved that he would never be at war with England. Even though in the next breath, Hitler threatened to denounce the agreement, Chamberlain still latched on to this as a hopeful sign. Hitler over-reached himself by stating bluntly that he would settle the Sudeten question ‘one way or another’ (‘so oder so’), implicitly by force. This gave Chamberlain the opening to ask why Hitler had then accepted the offer of talks at all and the conversation ended with Hitler agreeing to negotiate a solution.

The other members of the British party did not play a substantive part in the discussions. Wilson did, though, speak informally to a number of the Germans after Chamberlain’s conversation with Hitler and what he was told greatly influenced how the British – above all Chamberlain – thought that the meeting with Hitler had gone. What Wilson heard gave him the impression that Chamberlain’s initiative had been ‘a bold master-stroke in diplomacy’.² He first spoke to Ernst von Weizsäcker, the professional head of the Auswärtiges Amt. Weizsäcker worked for Ribbentrop but was an old-style professional diplomat, who despised his upstart, incompetent politicised boss and strove for friendly relations between Britain and Germany. He told Wilson that Chamberlain had ‘made just the right impression’ on Hitler. According to Schmidt and Herbert von Dirksen, the German ambassador to London, Hitler had been ‘impressed’ by Chamberlain, appreciating his ‘directness … and the rapidity with which he grasped the essentials of the situation’. Wilson next spoke to Walther Hewel, whom he described simply as Ribbentrop’s personal secretary, thus accidentally letting slip how poorly briefed he was about the German side at the Berghof. Hewel was much more than a foreign ministry official. He was a long-standing friend of Hitler, who had been imprisoned with him following the attempted Beer Hall Putsch of 1923, as well as being one of the very few people in Hitler’s inner circle who could pass as a decent human being. This might explain why he had the unenviable task of liaising between Hitler and Ribbentrop, who was a byword for cravenness and treachery as well as stupidity. Hewel told Wilson that Hitler felt he was dealing with ‘a man

’ … ‘& one with whom I can do business’.³ The only German who did not sing Hitler’s praises of Chamberlain to Wilson was Ribbentrop himself.

Wilson took all these honeyed words at face value and passed them on to Chamberlain and, later, the Cabinet uncritically. He took Ribbentrop’s failure to say anything about Hitler’s ‘favourable view’ of Chamberlain as merely ‘characteristic’. Wilson recognised that different camps of opinion existed on the German side, but did not attempt any deeper analysis of how this might affect what each group said or did. Over the preceding months he had immersed himself in the minutiae of population distribution in the Sudetenland but not in how the Germans’ foreign policy machine worked. The German side presented almost a precise mirror image of the British one: the German professional diplomats were anxious for peace, whilst the political leaders – Hitler and Ribbentrop – were indifferent to the risk of war; the British leaders – Chamberlain with Wilson in support – were desperate for peace, whilst large sections of the Foreign Office were prepared to risk war. Before the talks Weizsäcker had told Wilson, ‘This visit must succeed.’⁴ Wilson missed the logical consequence of this: that Weizsäcker and his colleagues would do whatever was necessary to ensure that the visit did succeed. Keeping up Chamberlain’s commitment to the negotiations with some well-placed encouragement was an obvious starting point. Weizsäcker was aware of the rift within the British camp and knew that Chamberlain and Wilson were much more committed to the search for a peaceful solution than some members of the Foreign Office.

Chamberlain’s most recent biographer describes this blizzard of praise as ‘flattery cynically calculated to exploit Chamberlain’s vanity and it more than succeeded’.⁵ Chamberlain’s vanity was one of his most regrettable features. It was not just a character flaw; it was a professional weakness. He was quite incapable of spotting even the most transparent flattery. Like Wilson he took the Germans’ comments at face value and they deeply influenced him. He was particularly taken with Hewel’s claim that the Führer had been impressed by his manliness. He quoted it to his sister in an infamous letter which also described Hitler as ‘a man who could be relied upon when he had given his word’.⁶ Chamberlain’s grotesque misreading of Hitler and their mutual relationship led him to declare to the Cabinet on his return to London ‘that the Führer had been most favourably impressed [by him]. This was of the utmost importance, since the future conduct of these negotiations depended mainly upon personal contacts.’⁷

Chamberlain’s belief that he had developed a viable rapport with Hitler survived the gruelling negotiations during the fortnight after his first visit to Germany. It held the hope of ultimate success. The detailed discussions promised at the Berghof took place a few days later at Bad Godesberg on the Rhine. Here Hitler began by accepting one deal, then back-tracked and pushed up his demands against the Czechs. Even after this Chamberlain claimed to the Cabinet that ‘he had now established an influence over Herr Hitler, and that the latter trusted him and was willing to work with him’.⁸ A Cabinet revolt was only averted by a solo mission to Berlin by Wilson, ostensibly to present a firm line, but in reality to ram home the fact that he and his master were willing to force the Czechs to accept a deal. Conflict was averted at the last moment, when Hitler blinked and accepted the intervention of Benito Mussolini, the Italian Fascist dictator, who proposed four-power talks to settle Czechoslovakia’s fate. At the ensuing conference in Munich – another long flight for Chamberlain and Wilson followed by a draining late-night session – Britain, France, Germany and Italy duly dismembered Czechoslovakia without reference to that country’s democratic government. The Munich agreement was a piece of brutal realpolitik but it averted war. It did not, though, satisfy Chamberlain’s ambitions to dispel the risk of war entirely and he set out to improve on this harsh piece of diplomatic pragmatism by securing a lasting guarantee of peace that went far beyond the removal of a single potential conflict. Immediately after the agreement had been signed Chamberlain sought a private meeting with Hitler. He wanted him to sign a brief Anglo-German declaration that Strang had drafted for him. The declaration read:

We … are agreed in recognising that the question of Anglo-German relations is of the first importance for the two countries and for Europe.

We regard the agreement signed last night and the Anglo-German Naval Agreement as symbolic of the desire of our two peoples never to go to war again.

We are resolved that the method of consultation shall be the method adopted to deal with any other questions that may concern our two countries, and we are determined to continue our efforts to remove possible sources of difference and thus to contribute to assure the peace of Europe.

Chamberlain had added the reference to the Naval Agreement to the first draft against the objections of Strang, who felt the agreement was actually something to be ashamed of.⁹ Strang was probably right. The most important result of the Naval Agreement was to make the French believe that the British were prepared to cut side-deals with Hitler to protect their own interests. As an exercise in arms limitation it was a near-total failure: the Germans disregarded its restrictions on the expansion of their navy from the start. The only reason to bring it into the declaration was that Chamberlain took at face value Hitler’s claim that the agreement meant there would be no war between Germany and Britain. Chamberlain was trying to mine an illusory seam of goodwill that he thought he had glimpsed at the Berghof.

Chamberlain presented the declaration to Hitler at his modest flat in Munich the morning after the agreement had been signed. Hitler signed it without modification or serious discussion. Almost everyone involved gave a conflicting account of the meeting. Perhaps predictably, Chamberlain believed that Hitler had signed the Anglo-German Declaration with enthusiasm after ‘a very friendly and pleasant talk’.¹⁰ His was the only unequivocally optimistic and positive account of the meeting; the others make plain that the whole proceeding fell well short of the basic requirements of a piece of serious diplomacy. Strang commented in his memoirs, ‘Never was a diplomatic document so summarily agreed upon.’¹¹ Chamberlain’s parliamentary private secretary, Lord Dunglass (later Prime Minister under the name Sir Alec Douglas-Home), who was the only member of the British delegation to accompany Chamberlain to Hitler’s flat, wrote later that Hitler signed ‘almost perfunctorily’.¹² Schmidt, the interpreter, found Hitler ill disposed and absent-minded during the conversation and hesitant over signing the declaration.¹³

To Chamberlain the declaration was his true achievement at Munich. It was the piece of paper that he read and then held up to the crowds at Heston aerodrome on his return to London. It was the declaration that Chamberlain proclaimed in Downing Street brought ‘peace for our time’. It was the document that Chamberlain believed was ‘only a prelude to a larger settlement in which all of Europe may find peace’.¹⁴ The four-power Munich agreement that had dismembered Czechoslovakia was mentioned only in passing. Chamberlain uncritically lapped up the praise lavished on him as the man who saved Europe’s peace; he believed that he had achieved something that would last – a true revolution in the diplomacy of Europe – and not merely that he had resolved one especially dangerous crisis. The Anglo-German Declaration was the result of Chamberlain’s deluded belief that he had established a relationship of trust and respect with Hitler that he could use to pursue his policy of rapprochement.

Chamberlain’s confidence in his relationship with Hitler rested on illusion. There was at least one senior British diplomat who could have given Chamberlain a far more accurate account of what the Führer thought of him and his efforts. Ivone Kirkpatrick, the head of chancery, in effect number two at the British embassy, had been there since 1933. He spoke German fluently and had built up an extensive network of well-informed German contacts. In the First World War he had been an intelligence officer, running agents behind German lines. He was not a promising target for the efforts of the German diplomats. Hewel attempted precisely the same soft soap on Kirkpatrick as he had on Wilson: ‘[Hewel] was at pains to persuade me that Mr Chamberlain’s visit had been worthwhile. It was an excellent thing, he said, that the two men should have become acquainted, and he could tell me that Hitler had acquired a high regard for Mr Chamberlain…’¹⁵ He found, however, that he was dealing with someone far better briefed. Kirkpatrick was already well informed as to Hitler’s true opinion of Chamberlain and that it was entirely different to the story that Hewel was peddling.

I knew this was bunkum and said so to Hewel. My reliable informants in the German camp had already made it clear to me that Hitler regarded the Prime Minister as an impertinent busybody who spoke the outmoded jargon of an out-moded democracy. The umbrella, which to the ordinary German was the symbol of peace, was in Hitler’s view only a subject of derision.

It