Among other measures, this involved readjusting Germany’s borders. Alsace-Lorraine was duly returned to France and Eupen-Malmédy to Belgium, while Germany also lost territory to the east. But the Versailles and associated settlements went further still in dealing with central Europe. They broke up the Austro-Hungarian Empire, they created or re-created sovereign states, and they sought to make frontiers coincide with the boundaries between ethnic, linguistic, and cultural groups. This consecration of nationalism proved a highly equivocal legacy; for example, in Northern Ireland or in the German-speaking Sudetenland of Bohemia.
In succession to the Habsburg empire, Austria and Hungary became small, separate, landlocked states. Poland was restored and acquired new territory; so did Greece, Italy, and Romania, which doubled its former size. Czechoslovakia and Yugoslavia came into existence as composite states. Estonia, Latvia, and Lithuania won independence from Russia.
Parallel to the dismemberment of the Austro-Hungarian Empire, a further result of the war was the collapse of the Ottoman Empire. Most of its eastern Mediterranean territory, together with Iraq, was placed under mandate to France and to Britain, which backed a ring of Arab sheikdoms around the Persian Gulf, the Red Sea, and the Indian Ocean. Turkey was reduced to a mere 300,000 square miles. The peace terms initially agreed upon by the Treaty of Sèvres were rejected by the sultan until British troops occupied Istanbul, and even then the National Assembly in Ankara organized resistance. A war with Greece in 1921–22 ended in the Peace of Lausanne, giving Turkey better terms than those decided at Sèvres. Soon, however, the secular sultanate and the religious caliphate were abolished, and Kemal Atatürk became president of a new, secular republic, which, among other Westernizing measures, adopted the Latin alphabet in place of Arabic script.
The drawing of new frontiers could never definitively satisfy those who lived on either side of them, and the problem of minorities became an important factor in the instability that marked Europe after World War I. The new composite state of Czechoslovakia, for instance, included not only industrialized Bohemia, formerly Austrian, but also rustic Slovakia and Ruthenia, formerly Hungarian. Romania similarly comprised both Transylvania, formerly Hungarian, and Bessarabia, formerly Russian. Reconstituted Poland was equally an amalgam, and in 1921, after Józef Piłsudski’s campaign against the U.S.S.R., it moved its eastern frontier more than 100 miles beyond the so-called Curzon Line established in 1920. Yugoslavia, finally, was based mainly on Serbia; but it also included Westernized Croatia, formerly Austro-Hungarian, and part of Easternized Macedonia, formerly Turkish, as well as other territories. The rest of Macedonia was now Greek; but an exchange of minorities between Greece and Bulgaria put many Macedonians under Bulgarian rule, sparking off an armed rebellion. Similar turbulence agitated Albania. Altogether, the Balkans became a synonym for violent nationalistic unrest.
Two global developments, moreover, formed an ominous backdrop to Europe’s territorial disputes. One was the Russian Revolution of 1917, which inspired a few idealists but mainly aroused fear throughout the rest of Europe lest bolshevism spread westward. The other was the active intervention of the United States, which had entered the war—decisively—in 1917 and played a determinant role in shaping the peace.
The interwar years
Hopes in Geneva
Woodrow Wilson’s vision of a general association of nations took shape in the League of Nations, founded in 1920. Its basic constitution was the Covenant—Wilson’s word, chosen, as he said, “because I am an old Presbyterian.” The Covenant was embodied in the Versailles and other peace treaties. The League’s institutions, established in Geneva, consisted of an Assembly, in which each member country had a veto and an equal vote, and a smaller Council of four permanent members and four (later six, then nine) temporary members chosen by the Assembly.
Europe, 1920–38.Encyclopædia Britannica, Inc.
The basic principle of the League was collective security, whereby its signatories were pledged both to seek peaceful solutions to disputes and to assist each other against aggression. As such, it was novel and potentially far-reaching; it could have developed into a powerful instrument for peace. It did indeed settle a number of practical disputes—between Finland and Sweden, Albania and Yugoslavia, Poland and Germany, Hungary and Czechoslovakia. It also set up subordinate bodies to deal with particular problems, among them the status of Danzig and the Saar, narcotics, refugees, and leprosy. It was complemented by a Permanent Court of International Justice in The Hague and by the International Labor Organization.
Yet the League of Nations disappointed its founders’ hopes. From the start it lacked teeth, and most of its members were unwilling to see it develop. It thus became little more than a permanent version of the congresses (of Vienna, etc.) that had founded the old-style Concert of Europe.
Its first weakness was the veto: all its decisions had to be unanimous, or at least unopposed. Secondly, when in March 1920 the U.S. Congress failed to ratify the Versailles treaty by the necessary two-thirds majority, the United States was debarred from joining the League. Nor, at that time, were Germany and Russia among its members. Germany belonged from 1926 to 1933, and the U.S.S.R. from 1934 to 1939. Turkey joined in 1932, but Brazil withdrew in 1926, Japan in 1933, and Italy in 1937.
American suspicion of the League, reflecting general isolationism, centred on Article 10 of the Covenant. This called on member states
to respect and preserve as against external aggression the territorial integrity and existing political independence of all the Members of the League. In case of any such aggression or in case of any threat or danger of such aggression the Council shall advise upon the means by which this obligation shall be fulfilled.
The means envisaged were known as sanctions—an economic boycott authorized under Article 16 of the Covenant and invoked in October 1935 against Italy for invading Abyssinia. However, as a conciliatory gesture, the League excluded oil, iron, and steel from the boycott, making the sanctions ineffective. Within less than a year they were lifted, and they were not applied at all when Germany sent troops into the Rhineland in 1936.
Nevertheless, the League did witness one effort to go beyond mere cooperation between governments. It proved abortive, but in retrospect it was highly significant. This was the proposal for European unity made by the French statesman Aristide Briand.
When taking office as foreign minister in 1925 he had declared his ambition to establish “a United States of Europe,” and on Sept. 9, 1929, he made a speech to the then 27 European members of the League in which he proposed a federal union. Seven months later, on May 1, 1930, he laid before them a closely and cogently argued “Memorandum from the French Government on the Organization of a Regime of European Federal Union.” The text was elegantly worded; its actual author was the secretary-general of the French Foreign Ministry, Alexis Léger—better known to readers of poetry under his pen name Saint-John Perse and later a winner of the Nobel Prize for Literature.
Briand’s proposal evoked “the very real feeling of collective responsibility in the face of the danger that threatens the peace of Europe,” and the need to counter Europe’s “territorial fragmentation” by a “bond of solidarity which would enable European nations at last to take account of Europe’s geographical unity.” To this end, Briand proposed a pact establishing a European Conference within the League of Nations, with a permanent political committee and a small secretariat, putting politics before economics in this European community, but nevertheless working toward a “common market” in which “the movement of goods, capital, and people” would be gradually liberalized and simplified. The practical details, Briand suggested, should be worked out by the governments concerned.