Contemporary Period: Foreign Affairs
Up to 1866 Rumanian foreign politics may be said to have been
non-existent. The offensive or defensive alliances against the Turks
concluded by the Rumanian rulers with neighbouring princes during the
Middle Ages were not made in pursuance of any definite policy, but merely
to meet the moment's need. With the establishment of Turkish suzerainty
Rumania became a pawn in the foreign politics of the neighbouring empires,
nd we find her repeatedly included in their projects of acquisition,
partition, or compensation (as, for instance, when she was put forward as
eventual compensation to Poland for the territories lost by that country
in the first partition).[1] Rumania may be considered fortunate in not
having lost more than Bucovina to Austria (1775), Bessarabia to Russia
(1812), and, temporarily, to Austria the region between the Danube and the
Aluta, called Oltenia (lost by the Treaty of Passarowitz, 1718; recovered
by the Treaty of Belgrade, 1739).
[Footnote 1: See Albert Sorel, The Eastern Question in the Eighteenth
Century (Engl. ed.), 1898, pp. 141, 147 &c.]
While her geographical position made of Rumania the cynosure of many
covetous eyes, it at the same time saved her from individual attack by
exciting countervailing jealousies. Moreover, the powers came at last to
consider her a necessary rampart to the Ottoman Empire, whose dissolution
all desired but none dared attempt. Austria and Russia, looking to the
future, were continually competing for paramount influence in Rumania,
though it is not possible to determine where their policy of acquisition
ended and that of influence began.
The position of the principalities became more secure after the Paris
Congress of 1858, which placed them under the collective guarantee of the
great powers; but this fact, and the maintenance of Turkish suzerainty,
coupled with their own weakness, debarred them from any independence in
their foreign relations.
A sudden change took place with the accession of Prince Carol; a
Hohenzollern prince related to the King of Prussia and to Napoleon III
could not be treated like one of the native boyards. The situation called
for the more delicacy of treatment by the powers in view of the
possibility of his being able to better those internal conditions which
made Rumania 'uninteresting' as a factor in international politics. In
fact, the prince's personality assured for Rumania a status which she
could otherwise have attained only with time, by a political, economic,
and military consolidation of her home affairs; and the prince does not
fail to remark in his notes that the attentions lavished upon him by other
sovereigns were meant rather for the Hohenzollern prince than for the
Prince of Rumania. Many years later even, after the war of 1878, while the
Russians were still south of the Danube with their lines of communication
running through Rumania, Bratianu begged of the prince to give up a
projected journey on account of the difficulties which might at any moment
arise, and said: 'Only the presence of your Royal Highness keeps them [the
Russians] at a respectful distance.' It was but natural under these
circumstances that the conduct of foreign affairs should have devolved
almost exclusively on the prince. The ascendancy which his high personal
character, his political and diplomatic skill, his military capacity
procured for him over the Rumanian statesmen made this situation a lasting
one; indeed it became almost a tradition. Rumania's foreign policy since
1866 may be said, therefore, to have been King Carol's policy. Whether one
agrees with it or not, no one can deny with any sincerity that it was
inspired by the interests of the country, as the monarch saw them.
Rebuking Bismarck's unfair attitude towards Rumania in a question
concerning German investors, Prince Carol writes to his father in 1875: 'I
have to put Rumania's interests above those of Germany. My path is plainly
mapped out, and I must follow It unflinchingly, whatever the weather.'
Prince Carol was a thorough German, and as such naturally favoured the
expansion of German influence among his new subjects. But if he desired
Rumania to follow in the wake of German foreign policy, it was because of
his unshaken faith in the future of his native country, because he
considered that Rumania had nothing to fear from Germany, whilst it was
all in the interest of that country to see Rumania strong and firmly
established. At the same time, acting on the advice of Bismarck, he did
not fail to work toward a better understanding with Russia, 'who might
become as well a reliable friend as a dangerous enemy to the Rumanian
state'. The sympathy shown him by Napoleon III was not always shared by
the French statesmen,[1] and the unfriendly attitude of the French
ambassador in Constantinople caused Prince Carol to remark that 'M. de
Moustier is considered a better Turk than the Grand Turk himself'. Under
the circumstances a possible alliance between France and Russia, giving
the latter a free hand in the Near East, would have proved a grave danger
to Rumania; 'it was, consequently, a skilful, if imperious act, to enter
voluntarily, and without detriment to the existing friendly relations with
France, within the Russian sphere of influence, and not to wait till
compelled to do so.'
[Footnote 1: See Revue des Deux Mondes, June 15, 1866, article by Eugene
Forcade.]
The campaigns of 1866 and 1870 having finally established Prussia's
supremacy in the German world, Bismarck modified his attitude towards
Austria. In an interview with the Austrian Foreign Secretary, Count Beust
(Gastein, October 1871), he broached for the first time the question of an
alliance and, touching upon the eventual dissolution of the Ottoman
Empire, 'obligingly remarked that one could not conceive of a great power
not making of its faculty for expansion a vital question'.[2] Quite in
keeping with that change were the counsels henceforth tendered to Prince
Carol. Early that year Bismarck wrote of his sorrow at having been forced
to the conclusion that Rumania had nothing to expect from Russia, while
Prince Anthony, Prince Carol's father and faithful adviser, wrote soon
after the above interview (November 1871), that 'under certain
circumstances it would seem a sound policy for Rumania to rely upon the
support of Austria'. Persevering in this crescendo of suggestion,
Austria's new foreign secretary, Count Andrassy, drifted at length to the
point by plainly declaring not long afterwards that 'Rumania is not so
unimportant that one should deprecate an alliance with her'.
[Footnote 2: Gabriel Hanotaux, La Guerre des Balkans et l'Europe (Beust,
Memoires), Paris, 1914, p. 297.]
Prince Carol had accepted the throne with the firm intention of shaking
off the Turkish suzerainty at the first opportunity, and not unnaturally
he counted upon Germany's support to that end. He and his country were
bitterly disappointed, therefore, when Bismarck appealed directly to the
Porte for the settlement of a difference between the Rumanian Government
and a German company entrusted with the construction of the Rumanian
railways; the more so as the Paris Convention had expressly forbidden any
Turkish interference in Rumania's internal affairs. It thus became
increasingly evident that Rumania could not break away from Russia, the
coming power in the East. The eyes of Russia were steadfastly fixed on
Constantinople: by joining her, Rumania had the best chance of gaining her
independence; by not doing so, she ran the risk of being trodden upon by
Russia on her way to Byzantium. But though resolved to co-operate with
Russia in any eventual action in the Balkans, Prince Carol skilfully
avoided delivering himself blindfold into her hands by deliberately
cutting himself away from the other guaranteeing powers. To the conference
which met in Constantinople at the end of 1876 to settle Balkan affairs he
addressed the demand that 'should war break out between one of the
guaranteeing powers and Turkey, Rumania's line of conduct should be
dictated, and her neutrality and rights guaranteed, by the other powers'.
This demarche failed. The powers had accepted the invitation to the
conference as one accepts an invitation to visit a dying man. Nobody had
any illusions on the possibility of averting war, least of all the two
powers principally interested. In November 1876 Ali Bey and M. de Nelidov
arrived simultaneously and secretly in Bucarest to sound Rumania as to an
arrangement with their respective countries, Turkey and Russia. In
opposition to his father and Count Andrassy, who counselled neutrality and
the withdrawal of the Rumanian army into the mountains, and in sympathy
with Bismarck's advice, Prince Carol concluded a Convention with Russia on
April 16, 1877. Rumania promised to the Russian army 'free passage through
Rumanian territory and the treatment due to a friendly army'; whilst
Russia undertook to respect Rumania's political rights, as well as 'to
maintain and defend her actual integrity'. 'It is pretty certain', wrote
Prince Carol to his father, 'that this will not be to the liking of most
of the great powers; but as they neither can nor will offer us anything,
we cannot do otherwise than pass them by. A successful Russian campaign
will free us from the nominal dependency upon Turkey, and Europe will
never allow Russia to take her place.'
On April 23 the Russian armies passed the Pruth. An offer of active
participation by the Rumanian forces in the forthcoming campaign was
rejected by the Tsar, who haughtily declared that 'Russia had no need for
the cooperation of the Rumanian army', and that 'it was only under the
auspices of the Russian forces that the foundation of Rumania's future
destinies could be laid'. Rumania was to keep quiet and accept in the end
what Russia would deign to give her, or, to be more correct, take from
her. After a few successful encounters, however, the Tsar's soldiers met
with serious defeats before Plevna, and persistent appeals were now urged
for the participation of the Rumanian army in the military operations. The
moment had come for Rumania to bargain for her interests. But Prince Carol
refused to make capital out of the serious position of the Russians; he
led his army across the Danube and, at the express desire of the Tsar,
took over the supreme command of the united forces before Plevna. After a
glorious but terrible struggle Plevna, followed at short intervals by
other strongholds, fell, the peace preliminaries were signed, and Prince
Carol returned to Bucarest at the head of his victorious army.
Notwithstanding the flattering words in which the Tsar spoke of the
Rumanian share in the success of the campaign, Russia did not admit
Rumania to the Peace Conference. By the Treaty of San Stefano (March
3,1878) Rumania's independence was recognized; Russia obtained from Turkey
the Dobrudja and the delta of the Danube, reserving for herself the right
to exchange these territories against the three southern districts of
Bessarabia, restored to Rumania by the Treaty of Paris, 1856. This
stipulation was by no means a surprise to Rumania, Russia's intention to
recover Bessarabia was well known to the Government, who hoped, however,
that the demand would not be pressed after the effective assistance
rendered by the Rumanian army. 'If this be not a ground for the extension
of our territory, it is surely none for its diminution,' remarked
Cogalniceanu at the Berlin Congress. Moreover, besides the promises of the
Tsar, there was the Convention of the previous year, which, in exchange
for nothing more than free passage for the Russian armies, guaranteed
Rumania's integrity. But upon this stipulation Gorchakov put the
jesuitical construction that, the Convention being concluded in view of a
war to be waged against Turkey, it was only against Turkey that Russia
undertook to guarantee Rumania's integrity; as to herself, she was not in
the least bound by that arrangement. And should Rumania dare to protest
against, or oppose the action of the Russian Government, 'the Tsar will
order that Rumania be occupied and the Rumanian army disarmed'. 'The army
which fought at Plevna', replied Prince Carol through his minister, 'may
well be destroyed, but never disarmed.'
There was one last hope left to Rumania: that the Congress which met in
Berlin in June 1878 for the purpose of revising the Treaty of San Stefano,
would prevent such an injustice. But Bismarck was anxious that no
'sentiment de dignite blessee' should rankle in Russia's future policy;
the French representative, Waddington, was 'above all a practical man';
Corti, the Italian delegate, was 'nearly rude' to the Rumanian delegates;
while Lord Beaconsfield, England's envoy, receiving the Rumanian delegates
privately, had nothing to say but that 'in politics the best services are
often rewarded with ingratitude'. Russia strongly opposed even the idea
that the Rumanian delegates should be allowed to put their case before the
Congress, and consent was obtained only with difficulty after Lord
Salisbury had ironically remarked that 'having heard the representatives
of Greece, which was claiming foreign provinces, it would be but fair to
listen also to the representatives of a country which was only seeking to
retain what was its own'. Shortly before, Lord Salisbury, speaking in
London to the Rumanian special envoy, Callimaki Catargiu, had assured him
of England's sympathy and of her effective assistance in case either of
war or of a Congress. 'But to be quite candid he must add that there are
questions of more concern to England, and should she be able to come to an
understanding with Russia with regard to them, she would not wage war for
the sake of Rumania.' Indeed, an understanding came about, and an
indiscretion enabled the Globe to make its tenor public early in June
1878. 'The Government of her Britannic Majesty', it said, 'considers that
it will feel itself bound to express its deep regret should Russia persist
in demanding the retrocession of Bessarabia.... England's interest in this
question is not such, however, as to justify her taking upon herself alone
the responsibility of opposing the intended exchange.' So Bessarabia was
lost, Rumania receiving instead Dobrudja with the delta of the Danube. But
as the newly created state of Bulgaria was at the time little else than a
detached Russian province, Russia, alone amongst the powers, opposed and
succeeded in preventing the demarcation to the new Rumanian province of a
strategically sound frontier. Finally, to the exasperation of the
Rumanians, the Congress made the recognition of Rumania's independence
contingent upon the abolition of Article 7 of the Constitution--which
denied to non-Christians the right of becoming Rumanian citizens--and the
emancipation of the Rumanian Jews.[1]
[Footnote 1: Rumania only partially gave way to this intrusion of the
powers into her internal affairs. The prohibition was abolished; but only
individual naturalization was made possible, and that by special Act of
Parliament. Only a very small proportion of the Jewish population has
since been naturalized. The Jewish question in Rumania is undoubtedly a
very serious one; but the matter is too controversial to be dealt with in
a few lines without risking misrepresentation or doing an injustice to one
or other of the parties. For which reason it has not been included in this
essay.]
It was only after innumerable difficulties and hardships that, at the
beginning of 1880, Rumania secured recognition of an independence which
she owed to nobody but herself. Whilst Russia was opposing Rumania at
every opportunity in the European conferences and commissions, she was at
pains to show herself more amenable in tete-a-tete, and approached
Rumania with favourable proposals. 'Rather Russia as foe than guardian,'
wrote Prince Carol to his father; and these words indicate an important
turning-point in Rumania's foreign policy.
In wresting Bessarabia from Rumania merely as a sop to her own pride, and
to make an end of all that was enacted by the Treaty of Paris, 1856,
Russia made a serious political blunder. By insisting that Austria should
share in the partition of Poland, Frederick the Great had skilfully
prevented her from remaining the one country towards which the Poles would
naturally have turned for deliverance. Such an opportunity was lost by
Russia through her short-sighted policy in Bessarabia--that of remaining
the natural ally of Rumania against Rumania's natural foe,
Austria-Hungary.
Rumania had neither historical, geographical, nor any important
ethnographical points of contact with the region south of the Danube; the
aims of a future policy could only have embraced neighbouring tracts of
foreign territory inhabited by Rumanians. Whereas up to the date of the
Berlin Congress such tracts were confined to Austria-Hungary, by that
Congress a similar sphere of attraction for Rumanian aspirations was
created in Russia.[1] The interests of a peaceful development demanded
that Rumania should maintain friendly relations with both the powers
striving for domination in the Near East; it was a vital necessity for
her, however, to be able to rely upon the effective support of at least
one of them in a case of emergency. Russia's conduct had aroused a deep
feeling of bitterness and mistrust in Rumania, and every lessening of her
influence was a step in Austria's favour. Secondary considerations tended
to intensify this: on the one hand lay the fact that through Russia's
interposition Rumania had no defendable frontier against Bulgaria; on the
other hand was the greatly strengthened position created for Austria by
her alliance with Germany, in whose future Prince Carol had the utmost
confidence.
[Footnote 1: It is probable that this confederation had much to do with
the readiness with which Bismarck supported the demands of his good
friend, Gorchakov.]
Germany's attitude towards Rumania had been curiously hostile during these
events; but when Prince Carol's father spoke of this to the German
Emperor, the latter showed genuine astonishment: Bismarck had obviously
not taken the emperor completely into his confidence. When, a few days
later, Sturdza had an interview with Bismarck at the latter's invitation,
the German Chancellor discovered once more that Rumania had nothing to
expect from Russia. Indeed, Rumania's position between Russia and the new
Slav state south of the Danube might prove dangerous, were she not to seek
protection and assistance from her two 'natural friends', France and
Germany. And, with his usual liberality when baiting his policy with false
hopes, Bismarck went on to say that 'Turkey is falling to pieces; nobody
can resuscitate her; Rumania has an important role to fulfil, but for this
she must be wise, cautious, and strong'. This new attitude was the natural
counterpart of the change which was at that time making itself felt in
Russo-German relations. While a Franco-Russian alliance was propounded by
Gorchakov in an interview with a French journalist, Bismarck and Andrassy
signed in Gastein the treaty which allied Austria to Germany (September
1879). As Rumania's interests were identical with those of Austria--wrote
Count Andrassy privately to Prince Carol a few months later--namely, to
prevent the fusion of the northern and the southern Slavs, she had only to
express her willingness to become at a given moment the third party in the
compact. In 1883 King Carol accepted a secret treaty of defensive alliance
from Austria. In return for promises relating to future political
partitions in the Balkans, the monarch pledged himself to oppose all
developments likely to speed the democratic evolution, of Rumania. Though
the treaty was never submitted to parliament for ratification, and
notwithstanding a tariff war and a serious difference with Austria on the
question of control of the Danube navigation, Rumania was, till the Balkan
wars, a faithful 'sleeping partner' of the Triple Alliance.
All through that externally quiet period a marked discrepancy existed and
developed between that line of policy and the trend of public opinion. The
interest of the Rumanians within the kingdom centred increasingly on their
brethren in Transylvania, the solution of whose hard case inspired most of
the popular national movements. Not on account of the political despotism
of the Magyars, for that of the Russians was in no way behind it. But
whilst the Rumanians of Bessarabia were, with few exceptions, illiterate
peasants, in Transylvania there was a solidly established and spirited
middle class, whose protests kept pace with the oppressive measures. Many
of them--and of necessity the more turbulent--migrated to Rumania, and
there kept alive the 'Transylvanian Question'. That the country's foreign
policy has nevertheless constantly supported the Central Powers is due, to
some extent, to the fact that the generation most deeply impressed by the
events of 1878 came gradually to the leadership of the country; to a
greater extent to the increasing influence of German education,[1] and the
economic and financial supremacy which the benevolent passivity of England
and France enabled Germany to acquire; but above all to the personal
influence of King Carol. Germany, he considered, was at the beginning of
her development and needed, above all, peace; as Rumania was in the same
position the wisest policy was to follow Germany, neglecting impracticable
national ideals. King Carol outlined his views clearly in an interview
which he had in Vienna with the Emperor Franz Joseph in 1883: 'No nation
consents to be bereaved of its political aspirations, and those of the
Rumanians are constantly kept at fever heat by Magyar oppression. But this
was no real obstacle to a friendly understanding between the two
neighbouring states.'
[Footnote 1: Many prominent statesmen like Sturdza, Maiorescu, Carp, &c.
were educated in Germany, whereas the school established by the German
community (Evangelische Knaben und Realschule), and which it under the
direct control of the German Ministry of Education, is attended by more
pupils than any other school in Bucarest.]
Such was the position when the Balkan peoples rose in 1912 to sever the
last ties which bound them to the decadent Turkish Empire. King Carol, who
had, sword in hand, won the independence of his country, could have no
objection to such a desire for emancipation. Nor to the Balkan League
itself, unfortunately so ephemeral; for by the first year of his reign he
had already approached the Greek Government with proposals toward such a
league, and toward freeing the Balkans from the undesirable interference
of the powers.[1] It is true that Rumania, like all the other states, had
not foreseen the radical changes which were to take place, and which
considerably affected her position in the Near East. But she was safe as
long as the situation was one of stable equilibrium and the league
remained in existence. 'Rumania will only be menaced by a real danger when
a Great Bulgaria comes into existence,' remarked Prince Carol to Bismarck
in 1880, and Bulgaria had done nothing since to allay Rumanian suspicions.
On the contrary, the proviso of the Berlin Convention that all
fortifications along the Rumania frontier should be razed to the ground
had not been carried out by the Bulgarian Government. Bulgarian official
publications regarded the Dobrudja as a 'Bulgaria Irredenta', and at the
outset of the first Balkan war a certain section of the Bulgarian press
speculated upon the Bulgarian character of the Dobrudja.
[Footnote 1: See Augenzeuge, op. cit., i. 178]
The Balkan League having proclaimed, however, that their action did not
involve any territorial changes, and the maintenance of the status quo
having been insisted upon by the European Concert, Rumania declared that
she would remain neutral. All this jugglery of mutual assurances broke
down with the unexpected rout of the Turks; the formula 'the Balkans to
the Balkan peoples' made its appearance, upon which Bulgaria was at once
notified that Rumania would insist upon the question of the Dobrudja
frontier being included in any fundamental alteration of the Berlin
Convention. The Bulgarian Premier, M. Danev, concurred in this point of
view, but his conduct of the subsequent London negotiations was so
'diplomatic' that their only result was to strain the patience of the
Rumanian Government and public opinion to breaking point. Nevertheless,
the Rumanian Government agreed that the point in dispute should be
submitted to a conference of the representatives of the great powers in
St. Petersburg, and later accepted the decision of that conference, though
the country considered it highly unsatisfactory.
The formation of the Balkan League, and especially the collapse of Turkey,
had meant a serious blow to the Central Powers' policy of peaceful
penetration. Moreover, 'for a century men have been labouring to solve the
Eastern. Question. On the day when it shall be considered solved, Europe
will inevitably witness the propounding of the Austrian Question.'[1] To
prevent this and to keep open a route to the East Austro-German diplomacy
set to work, and having engineered the creation of Albania succeeded in
barring Serbia's way to the Adriatic; Serbia was thus forced to seek an
outlet in the south, where her interests were doomed to clash with
Bulgarian aspirations. The atmosphere grew threatening. In anticipation of
a conflict with Bulgaria, Greece and Serbia sought an alliance with
Rumania. The offer was declined; but, in accordance with the policy which
Bucarest had already made quite clear to Sofia, the Rumanian army was
ordered to enter Bulgaria immediately that country attacked her former
allies. The Rumanians advanced unopposed to within a few miles of Sofia,
and in order to save the capital Bulgaria declared her willingness to
comply with their claims. Rumania having refused, however, to conclude a
separate peace, Bulgaria had to give way, and the Balkan premiers met in
conference at Bucarest to discuss terms. The circumstances were not
auspicious. The way in which Bulgaria had conducted previous negotiations,
and especially the attack upon her former allies, had exasperated the
Rumanians and the Balkan peoples, and the pressure of public opinion
hindered from the outset a fair consideration of the Bulgarian point of
view. Moreover, cholera was making great ravages in the ranks of the
various armies, and, what threatened to be even more destructive, several
great powers were looking for a crack in the door to put their tails
through, as the Rumanian saying runs. So anxious were the Balkan statesmen
to avoid any such interference that they agreed between themselves to a
short time limit: on a certain day, and by a certain hour, peace was to be
concluded, or hostilities were to start afresh. The treaty was signed on
August 10, 1913, Rumania obtaining the line Turtukai-Dobrich-Balchik, this
being the line already demanded by her at the time of the London
negotiations. The demand was put forth originally as a security against
the avowed ambitions of Bulgaria; it was a strategical necessity, but at
the same time a political mistake from the point of view of future
relations. The Treaty of Bucarest, imperfect arrangement as it was, had
nevertheless a great historical significance. 'Without complicating the
discussion of our interests, which we are best in a position to
understand, by the consideration of other foreign, interests,' remarked
the President of the Conference, 'we shall have established for the first
time by ourselves peace and harmony amongst our peoples.' Dynastic
interests and impatient ambitions, however, completely subverted this
momentous step towards a satisfactory solution of the Eastern Question.
[Footnote 1: Albert Sorel, op, cit., p. 266.]
The natural counter-effect of the diplomatic activity of the Central
Powers was a change in Rumanian policy. Rumania considered the maintenance
of the Balkan equilibrium a vital question, and as she had entered upon a
closer union with Germany against a Bulgaria subjected to Russian
influence, so she now turned to Russia as a guard against a Bulgaria under
German influence. This breaking away from the 'traditional' policy of
adjutancy-in-waiting to the Central Powers was indicated by the visit of
Prince Ferdinand--now King of Rumania--to St. Petersburg, and the even
more significant visit which Tsar Nicholas afterwards paid to the late
King Carol at Constanza. Time has been too short, however, for those new
relations so to shape themselves as to exercise a notable influence upon
Rumania's present attitude.