III: The Imperialist Character
OF THE TWO main political devices of imperialist rule, race was discovered in South Africa and bureaucracy in Algeria, Egypt, and India; the former was originally the barely conscious reaction to tribes of whose humanity European man was ashamed and frightened, whereas the latter was a consequence of that administration by which Europeans had tried to rule foreign peoples whom they felt to be hopelessly their inferiors and at the same time in need of their special protection. Race, in other words, was an escape into an irresponsibility where nothing human could any longer exist, and bureaucracy was the result of a responsibility that no man can bear for his fellowman and no people for another people.
The exaggerated sense of responsibility in the British administrators of India who succeeded Burke’s “breakers of law” had its material basis in the fact that the British Empire had actually been acquired in a “fit of absent-mindedness.” Those, therefore, who were confronted with the accomplished fact and the job of keeping what had become theirs through an accident, had to find an interpretation that could change the accident into a kind of willed act. Such historical changes of fact have been carried through by legends since ancient times, and legends dreamed up by the British intelligentsia have played a decisive role in the formation of the bureaucrat and the secret agent of the British services.
Legends have always played a powerful role in the making of history. Man, who has not been granted the gift of undoing, who is always an un-consulted heir of other men’s deeds, and who is always burdened with a responsibility that appears to be the consequence of an unending chain of events rather than conscious acts, demands an explanation and interpretation of the past in which the mysterious key to his future destiny seems to be concealed. Legends were the spiritual foundations of every ancient city, empire, people, promising safe guidance through the limitless spaces of the future. Without ever relating facts reliably, yet always expressing their true significance, they offered a truth beyond realities, a remembrance beyond memories.
Legendary explanations of history always served as belated corrections of facts and real events, which were needed precisely because history itself would hold man responsible for deeds he had not done and for consequences he had never foreseen. The truth of the ancient legends—what gives them their fascinating actuality many centuries after the cities and empires and peoples they served have crumbled to dust—was nothing but the form in which past events were made to fit the human condition in general and political aspirations in particular. Only in the frankly invented tale about events did man consent to assume his responsibility for them, and to consider past events his past. Legends made him master of what he had not done, and capable of dealing with what he could not undo. In this sense, legends are not only among the first memories of mankind, but actually the true beginning of human history.
The flourishing of historical and political legends came to a rather abrupt end with the birth of Christianity. Its interpretation of history, from the days of Adam to the Last Judgment, as one single road to redemption and salvation, offered the most powerful and all-inclusive legendary explanation of human destiny. Only after the spiritual unity of Christian peoples gave way to the plurality of nations, when the road to salvation became an uncertain article of individual faith rather than a universal theory applicable to all happenings, did new kinds of historical explanations emerge. The nineteenth century has offered us the curious spectacle of an almost simultaneous birth of the most varying and contradictory ideologies, each of which claimed to know the hidden truth about otherwise incomprehensible facts. Legends, however, are not ideologies; they do not aim at universal explanation but are always concerned with concrete facts. It seems rather significant that the growth of national bodies was nowhere accompanied by a foundation legend, and that a first unique attempt in modern times was made precisely when the decline of the national body had become obvious and imperialism seemed to take the place of old-fashioned nationalism.
The author of the imperialist legend is Rudyard Kipling, its topic is the British Empire, its result the imperialist character (imperialism was the only school of character in modern politics). And while the legend of the British Empire has little to do with the realities of British imperialism, it forced or deluded into its services the best sons of England. For legends attract the very best in our times, just as ideologies attract the average, and the whispered tales of gruesome secret powers behind the scenes attract the very worst. No doubt, no political structure could have been more evocative of legendary tales and justifications than the British Empire, than the British people’s drifting from the conscious founding of colonies into ruling and dominating foreign peoples all over the world.
The foundation legend, as Kipling tells it, starts from the fundamental reality of the people of the British Isles.61 Surrounded by the sea, they need and win the help of the three elements of Water, Wind, and Sun through the invention of the Ship. The ship made the always dangerous alliance with the elements possible and made the Englishman master of the world. “You’ll win the world,” says Kipling, “without anyone caring how you did it: you’ll keep the world without anyone knowing how you did it: and you’ll carry the world on your backs without anyone seeing how you did it. But neither you nor your sons will get anything out of that little job except Four Gifts—one for the Sea, one for the Wind, one for the Sun and one for the Ship that carries you.... For, winning the world, and keeping the world, and carrying the world on their backs—on land, or on sea, or in the air—your sons will always have the Four Gifts. Long-headed and slow-spoken and heavy—damned heavy—in the hand, will they be; and always a little bit to windward of every enemy—that they may be a safeguard to all who pass on the seas on their lawful occasions.”
What brings the little tale of the “First Sailor” so close to ancient foundation legends is that it presents the British as the only politically mature people, caring for law and burdened with the welfare of the world, in the midst of barbarian tribes who neither care nor know what keeps the world together. Unfortunately this presentation lacked the innate truth of ancient legends; the world cared and knew and saw how they did it and no such tale could ever have convinced the world that they did not “get anything out of that little job.” Yet there was a certain reality in England herself which corresponded to Kipling’s legend and made it at all possible, and that was the existence of such virtues as chivalry, nobility, bravery, even though they were utterly out of place in a political reality ruled by Cecil Rhodes or Lord Curzon.
The fact that the “white man’s burden” is either hypocrisy or racism has not prevented a few of the best Englishmen from shouldering the burden in earnest and making themselves the tragic and quixotic fools of imperialism. As real in England as the tradition of hypocrisy is another less obvious one which one is tempted to call a tradition of dragon-slayers who went enthusiastically into far and curious lands to strange and naive peoples to slay the numerous dragons that had plagued them for centuries. There is more than a grain of truth in Kipling’s other tale, “The Tomb of His Ancestor,”62 in which the Chinn family “serve India generation after generation, as dolphins follow in line across the open sea.” They shoot the deer that steals the poor man’s crop, teach him the mysteries of better agricultural methods, free him from some of his more harmful superstitions and kill lions and tigers in grand style. Their only reward is indeed a “tomb of ancestors” and a family legend, believed by the whole Indian tribe, according to which “the revered ancestor ...has a tiger of his own—a saddle tiger that he rides round the country whenever he feels inclined.” Unfortunately, this riding around the countryside is “a sure sign of war or pestilence or—or something,” and in this particular case it is a sign of vaccination. So that Chinn the Youngest, a not very important underling in the hierarchy of the Army Services, but all-important as far as the Indian tribe is concerned, has to shoot the beast of his ancestor so that people can be vaccinated without
fear of “war or pestilence or something.”
As modern life goes, the Chinns indeed “are luckier than most folks.” Their chance is that they were born into a career that gently and naturally leads them to the realization of the best dreams of youth. When other, boys have to forget “noble dreams,” they happen to be just old enough to translate them into action. And when after thirty years of service they retire, their steamer will pass “the outward bound troopship, carrying his son eastward to the family duty,” so that the power of old Mr. Chinn’s existence as a government-appointed and army-paid dragon-slayer can be imparted to the next generation. No doubt, the British government pays them for their services, but it is not at all clear in whose service they eventually land. There is a strong possibility that they really serve this particular Indian tribe, generation after generation, and it is consoling all around that at least the tribe itself is convinced of this. The fact that the higher services know hardly anything of little Lieutenant Chinn’s strange duties and adventures, that they are hardly aware of his being a successful reincarnation of his grandfather, gives his dreamlike double existence an undisturbed basis in reality. He is simply at home in two worlds, separated by water- and gossip-tight walls. Born in “the heart of the scrubby tigerish country” and educated among his own people in peaceful, well-balanced, ill-informed England, he is ready to live permanently with two peoples and is rooted in and well acquainted with the tradition, language, superstition, and prejudices of both. At a moment’s notice he can change from the obedient underling of one of His Majesty’s soldiers into an exciting and noble figure in the natives’ world, a well-beloved protector of the weak, the dragon-slayer of old tales.
The point is that these queer quixotic protectors of the weak who played their role behind the scenes of official British rule were not so much the product of a primitive people’s naive imagination as of dreams which contained the best of European and Christian traditions, even when they had already deteriorated into the futility of boyhood ideals. It was neither His Majesty’s soldier nor the British higher official who could teach the natives something of the greatness of the Western world. Only those who had never been able to outgrow their boyhood ideals and therefore had enlisted in the colonial services were fit for the task. Imperialism to them was nothing but an accidental opportunity to escape a society in which a man had to forget his youth if he wanted to grow up. English society was only too glad to see them depart to faraway countries, a circumstance which permitted the toleration and even the furtherance of boyhood ideals in the public school system; the colonial services took them away from England and prevented, so to speak, their converting the ideals of their boyhood into the mature ideas of men. Strange and curious lands attracted the best of England’s youth since the end of the nineteenth century, deprived her society of the most honest and the most dangerous elements, and guaranteed, in addition to this bliss, a certain conservation, or perhaps petrification, of boyhood noblesse which preserved and infantilized Western moral standards.
Lord Cromer, secretary to the Viceroy and financial member in the pre-imperialist government of India, still belonged in the category of British dragon-slayers. Led solely by “the sense of sacrifice” for backward populations and “the sense of duty”63 to the glory of Great Britain that “has given birth to a class of officials who have both the desire and the capacity to govern,”64 he declined in 1894 the post of Viceroy and refused ten years later the position of Secretary of State for Foreign Affairs. Instead of such honors, which would have satisfied a lesser man, he became the little-publicized and all-powerful British Consul General in Egypt from 1883 to 1907. There he became the first imperialist administrator, certainly “second to none among those who by their services have glorified the British race”;65 perhaps the last to die in undisturbed pride: “Let these suffice for Britain’s meed—/ No nobler price was ever won, / The blessings of a people freed / The consciousness of duty done.”66
Cromer went to Egypt because he realized that “the Englishman straining far over to hold his loved India [has to] plant a firm foot on the banks of the Nile.”67 Egypt was to him only a means to an end, a necessary expansion for the sake of security for India. At almost the same moment it happened that another Englishman set foot on the African continent, though at its opposite end and for opposite reasons: Cecil Rhodes went to South Africa and saved the Cape colony after it had lost all importance for the Englishman’s “loved India.” Rhodes’s ideas on expansion were far more advanced than those of his more respectable colleague in the north; to him expansion did not need to be justified by such sensible motives as the holding of what one already possessed. “Expansion was everything” and India, South Africa, and Egypt were equally important or unimportant as stepping-stones in an expansion limited only by the size of the earth. There certainly was an abyss between the vulgar megalomaniac and the educated man of sacrifice and duty; yet they arrived at roughly identical results and were equally responsible for the “Great Game” of secrecy, which was no less insane and no less detrimental to politics than the phantom world of race.
The outstanding similarity between Rhodes’s rule in South Africa and Cromer’s domination of Egypt was that both regarded the countries not as desirable ends in themselves but merely as means for some supposedly higher purpose. They were similar therefore in their indifference and aloofness, in their genuine lack of interest in their subjects, an attitude which differed as much from the cruelty and arbitrariness of native despots in Asia as from the exploiting carelessness of conquerors, or the insane and anarchic oppression of one race tribe through another. As soon as Cromer started to rule Egypt for the sake of India, he lost his role of protector of “backward peoples” and could no longer sincerely believe that “the self-interest of the subject-races is the principal basis of the whole Imperial fabric.”68
Aloofness became the new attitude of all members of the British services; it was a more dangerous form of governing than despotism and arbitrariness because it did not even tolerate that last link between the despot and his subjects, which is formed by bribery and gifts. The very integrity of the British administration made despotic government more inhuman and inaccessible to its subjects than Asiatic rulers or reckless conquerors had ever been.69 Integrity and aloofness were symbols for an absolute division of interests to the point where they are not even permitted to conflict. In comparison, exploitation, oppression, or corruption look like safeguards of human dignity, because exploiter and exploited, oppressor and oppressed, corrupter and corrupted still live in the same world, still share the same goals, fight each other for the possession of the same things; and it is this tertium comparationis which aloofness destroyed. Worst of all was the fact that the aloof administrator was hardly aware that he had invented a new form of government but actually believed that his attitude was conditioned by “the forcible contact with a people living on a lower plane.” So, instead of believing in his individual superiority with some degree of essentially harmless vanity, he felt that he belonged to “a nation which had reached a comparatively high plane of civilization”70 and therefore held his position by right of birth, regardless of personal achievements.
Lord Cromer’s career is fascinating because it embodies the very turning point from the older colonial to imperialist services. His first reaction to his duties in Egypt was a marked uneasiness and concern about a state of affairs which was not “annexation” but a “hybrid form of government to which no name can be given and for which there is no precedent.”71 In 1885, after two years of service, he still harbored serious doubts about a system in which he was the nominal British Consul General and the actual ruler of Egypt and wrote that a “highly delicate mechanism [whose] efficient working depends very greatly on the judgment and ability of a few individuals ...can ...be justified [only] if we are able to keep before our eyes the possibility of evacuation....If that possibility becomes so remote as to be of no practical account ...it would be better for us ...to arrange .
..with the other Powers that we should take over the government of the country, guarantee its debt, etc.”72 No doubt Cromer was right, and either, occupation or evacuation, would have normalized matters. But that “hybrid form of government” without precedent was to become characteristic of all imperialist enterprise, with the result that a few decades afterwards everybody had lost Cromer’s early sound judgment about possible and impossible forms of government, just as there was lost Lord Selbourne’s early insight that a race society as a way of life was unprecedented. Nothing could better characterize the initial stage of imperialism than the combination of these two judgments on conditions in Africa: a way of life without precedent in the south, a government without precedent in the north.
In the following years, Cromer reconciled himself to the “hybrid form of government”; in his letters he began to justify it and to expound the need for the government without name and precedent. At the end of his life, he laid down (in his essay on “The Government of Subject Races”) the main lines of what one may well call a philosophy of the bureaucrat.
Cromer started by recognizing that “personal influence” without a legal or written political treaty could be enough for “sufficiently effective supervision over public affairs”73 in foreign countries. This kind of informal influence was preferable to a well-defined policy because it could be altered at a moment’s notice and did not necessarily involve the home government in case cf difficulties. It required a highly trained, highly reliable staff whose loyalty and patriotism were not connected with personal ambition or vanity and who would even be required to renounce the human aspiration of having their names connected with their achievements. Their greatest passion would have to be for secrecy (“the less British officials are talked about the better”),74 for a role behind the scenes; their greatest contempt would be directed at publicity and people who love it.