Imperialism is a subject John often returned to, but his interest in the subject was quite different from most others. For John, what mattered were not mere national empires like the British Empire, but the Empire, the universal state into which all political and economic systems seem to eventually collapse.
Even though the process can be justly described as a collapse, it is not primarily negative. For example, one of the reasons the political order collapses into an empire is that the stakes and pressures of governance have become too high for society to bear. The empire is seen as an improvement by most of its subjects; it is genuinely popular.
Despite the differences between an empire and the Empire, you can still find some interesting features of the British Empire that may be reproduced in the coming universal state. For example, the British Empire was cheap, in terms of both money and men. It was also relatively tolerant, and preferred local control whenever possible.
There are also some features that probably wouldn't work well. The British Empire was an extension of national ambition. The universal state is the oecumene, the abode of man. As such, purely national ambition no longer has a way to even be expressed. There are no separate countries, although there might be rebellious provinces. The universal state is also usually not very dynamic. All of the civilizational energy has already been expended creating the universal state, everything you have is everything you'll get. The British Empire at its best was exceptionally dynamic.
At this point, the real question would be how Western will the universal state be? John wrote some interesting speculations about this. We shall get to them in time.
The Rise and Demise of the British World Order and the Lessons for Global Power
By Niall Ferguson
Basic Books, 2002
392 Pages, US$35.00
You might think this book was just an essay about the 18th-century Caribbean sugar-island economy that morphed into a profusely illustrated anthology of The Boy's Own Paper, but you would be wrong. What we have here is part of a concerted campaign (the book is a companion to a television series) to rehabilitate the idea of “empire” in general, and of the British Empire in particular. The author is the oddly ubiquitous Niall Ferguson, the Scottish economic historian. He does not suppress his famous interest in alternative history in this volume: one of the questions he sets out to answer is: “Was there a less bloody route to modernity?” The answer to that may be the key to a larger question, one with implications for the future as well as the past: “Can there be globalization without gunboats?”
The British Empire had a solid genesis in government-licensed piracy. The Spanish in the 16th century beat the British to the plunder of the major civilizations of the New World, leaving the British no recourse but to rob the Spanish. Still, even at that point the British displayed some hidden advantages. The English government was not centralized enough to simply expropriate the funds from its citizens to do its own empire building. By preference, it privatized British activity abroad, both commercial and military. As time went on, England outgrew piracy and turned to the licensing of the great trading companies. The greatest of these, the East India Company, was running India by the end of the 18th century. Strangely, the Honorable Company got India as a booby prize; the Dutch East India Company got the originally far more profitable East Indies. Even so, all that the Company's charter conveyed was a monopoly right to British business with India, provided the Company could do any. They wound up governing the place only because the Mughal empire unraveled in the 18th century; if the Company was going to enjoy any security, the Company would have to provide its own government.
In addition to piracy, there were drugs and slavery. Ferguson gives us a judicious helping of statistics about the “sweet tooth” economy of the 18th century Atlantic. Britain's possessions produced sugar. They also produced coffee, tea, and tobacco. All these things are mildly addictive stimulants. The market for them was bottomless, and the labor for them was largely unfree. Readers may be surprised to learn quite how lethal this labor system was. It is well-known that one out of seven of the prisoners on slave ships died in passage, but the death rate for the crews was even higher. The islands of the Caribbean were immensely profitable; the exports from Jamaica alone were worth more to England than the whole of the exports of America at the time of the Revolution. That was one of the reasons the British decided to let the colonies go. However, the populations of these tropical colonies, slave and free, did not reproduce themselves. Most immigrants from the British isles died soon after arriving, and it was to the Caribbean that most of them went in the 17th century.
Nonetheless, even at its most amoral, the “First British Empire” of pre-Victorian times was a “liberal” empire, if not quite an empire of liberty. It was very keen on the rule of law, particularly law as it related to property rights. American colonial complaints against London really came down to the argument that one's property is not really secure without some say in how much it is taxed. The empire was also tolerant, sometimes shockingly so. The government in London and the trading companies had no interest in spreading Christianity; they also no objection to customs like widow-burning, provided the subjects of the empire kept it to themselves. Imperial libertarianism sometimes extended to disinterest in famines in the areas the empire controlled. On the positive side, the people who administered the empire were sympathetically curious about the cultures where they worked. They adapted to them, cultivating their arts and literature. As a rule, the British co-opted local elites: there was no color bar to social interaction, or even marriage.
Some of this changed with the transition to the “Second Empire” of Queen Victoria's time. The empire became more humane as it became less tolerant. Much of this occurred under the influence of the evangelical revival of the late 18th and early 19th centuries. The evangelicals on both sides of the Atlantic fought slavery, with greater and much earlier success in the empire. (In America, the effort was stymied after abolition in the northern states; Ferguson suggests that the success of the American Revolution delayed the end of slavery in America by at least a generation.) Despite the protestations of old India hands, the East India Company did begin to make a fuss about widow-burning and female infanticide. The rule of the Company itself was replaced by paternalistic political control from London after the Mutiny of 1857. The imperial government promoted education, public works, and public order. The settlement of Australia was a Monty Python parody of a whole society organized as a Victorian reform school. It was also a rousing success. The British role in the “scramble for Africa” in the last quarter of the 19th century began at the behest of evangelicals, to suppress the Indian Ocean slave trade to the Middle East.
In the 1890s, the last decade of Queen Victoria's reign, the empire was at the height of its power and self-confidence, though not yet of its territory. It controlled a quarter of the world's land surface and roughly the same proportion of its population. Its control of the oceans was uncontested. In Ferguson's estimate, it was the closest thing the world has ever seen to a world government. The empire was characterized by a high degree of local autonomy. Even India, ruled by an autocrat appointed by London, pretty much ran itself. As for the white dominions, they got almost anything they wanted in terms of “responsible self-government” after the 1830s. The imperial center made a point of protecting the rights of aborigines throughout the empire; the chief audience for Darwinian racism was among the colonists on the periphery.
The empire supported free trade: sometimes at gunpoint, and not always with happy results, as the Opium Wars illustrate. Be that as it may, in this laissez-faire empire, the imperial bureaucracy and military were fantastically small. There were fewer than half-a-million members of the armed forces at the empire's height, including the Indian Army. With few exceptions, colonial wars were small, quick, and resulted in few British casualties. There were no more than a thousand members of the “covenanted” India Civil Service, the people who actually ran India. That number is a bit misleading: Imperial India had a fairly large public sector. It was staffed largely by Indians, including some who passed the exam to enter the covenanted Service, just as the bulk of the military in India was Indian. Because the regions of the empire were normally self-sufficient, the structure was cheap for Britain: military expenditures late in Victoria's reign came to 2.5% or 3.0% of net domestic product: not so different from British defense expenditures in the early 21st century.
Imperial mysticism and liberal disgust with the empire arose at about the same time. Kipling and Ruskin and Baden-Powell (founder of the Boy Scouts) saw the empire as a chivalric enterprise, the chief pillar of a civilization that made the world better for everyone, everywhere. This was also the view of Cecil Rhodes, the imperial entrepreneur. Ferguson does not dwell on the historical significance of the Anglophile network that Rhodes promoted, though he does note that Rhodes hoped his scholarships would create something like the Jesuit order, with the empire substituted for the Catholic religion. The problem was that the Boer War he provoked was nakedly commercial and not at all cheap, in British lives or in any other way. That event began the turn of enlightened sentiment away from empire. It would accelerate in the 20th century, until the very word “imperial” became a term of opprobrium.
The key to Ferguson's assessment of the empire is his analysis of the circumstances under which it ended. In the first half of the 20th century, the real alternatives to the British Empire were the Third Reich, or the Japanese East Asian Co-Prosperity Sphere, or the Italian Empire, or even the Soviet Union. Fighting off these alternative and far worse empires justified the British Empire's existence. Similar arguments could be made for earlier periods in the empire's history. The alternative to British India would have been a morbid extension of Mughal India, which would have been no more successful than Manchu China during the same period.
And what about the other colonial empires? The French were serious rivals in India and North America until the Seven Year's War (1756-1763). The Dutch actually got the better of the British during several conflicts in the 17th century; the competition was ended only when the Dutch and British executives merged in the Glorious Revolution (1688). It is possible to imagine a history dominated by a far greater French Empire, with its whitewashed architecture and frigid bureaucratic routine. One could imagine the same of the Dutch Empire, with its single-minded devotion to business. In either case, the British idea of liberty would have been largely absent from the modern world. Ferguson tells us that all the post-colonial states with populations over a million that became democracies are former British colonies. The qualifications in that statement are intriguing, but Ferguson may be onto something. Certainly the regime of free trade that Britain promoted in the decades before the First World War made the world a more economically dynamic place.
Ferguson makes some interesting comparisons between that “First Age of Globalization” and the Second, which he dates to the last quarter of the 20th century (and which he evidently believes is over). Though he does not argue the case in detail, Ferguson suggests that it would be hard to condemn 19th-century colonialism as merely exploitive. The colonial powers made huge infrastructure investments in their colonies. (The Congo Free State of King Leopold the Wicked may have been the chief exception.) India had a small trade deficit with Britain, for instance, but British India was a capital importer. During the Second Age of Globalization, in contrast, most trade and investment moved between developed countries. The income gap between the developed and undeveloped world widened during the Second Age, whereas it narrowed during the First.
Then there is the phenomenon of political fragmentation. The number of independent states tended to decline during the 19th century; around 1910, there were just 51. At this writing, the number is just short of two hundred. The new polities, fragments of old empires, often have tiny populations and economies that don't make much sense in isolation. Nonetheless, each must support the whole apparatus of national government. In the former Soviet area and in Africa, many of them plainly are not up to it. The implication of Ferguson's description is that what the world really needs is for some power to do in the 21st century what Queen Victoria's empire did in the 19th.
One may note in passing that Ferguson believes Britain itself might still have done at least part of this, in a slightly different history. There was talk well into the 1950s of a “Third British Empire,” under which the Commonwealth would function as a federation. There were several reasons this did not come off. One was that the United States was not particularly helpful during the Sterling crises that punctuated the post-war years, thus encouraging the trade patterns of the old empire to break up. Also, the Commonwealth became so big and diverse that it no longer meant anything. A federation of just the white dominions might have worked, in the unlikely event that its non-British members could have been persuaded a Third Empire was in their interests. As things turned out, the only power left to take up the imperial slack is the United States, about which Ferguson has his doubts.
In some ways, America is better positioned for global empire than Britain ever was. The US economy is about a quarter the size of the global economy; Britain at its height represented about 8%. Even at the empire's height, there were theoretical combinations of navies that might have challenged British naval supremacy, and of course Britain did not purport to be a great land power. In the early 21st century, the US has something close to a monopoly of supremacy in every dimension of conventional force. And the US manages to do this with not much more of a percentage of the national product than Gladstone or Disraeli's governments used. One might also add that Ann Coulter is much better looking than Queen Victoria ever was. The problem is that, in some ways, the US position in the world is the mirror image of a proper empire.
Ferguson does not use this analogy, but he might have likened the “American Empire” to the successful Japanese exporting corporations of the 1970s, those uncanny enterprises whose capital structures consisted almost entirely of debt. Quite aside from chronic federal deficits, the US seems to have given up on ever running a positive trade balance again. The country is an immense importer of foreign capital. It is also an immense importer of foreign people. One of the characteristics of the British Empire at every stage was Britain's huge emigration, which created whole new countries. Americans, in contrast, are reluctant even to go abroad on short business trips. As for military power, the American ability to project it is at least matched by the American eagerness to withdraw it just as soon as possible. In fact, the US tends to withdraw before it is possible, or at least prudent. The Widowed Queen would not have been amused.
To Ferguson's critique, I would say this: I like history as much as the next guy, indeed considerably more than most next guys. Pirates, the Raj, explorers, habeas corpus, the Boy Scouts, the RAF: they are all part of quite a story. Ferguson may well be right that it is the story of one of the better possible worlds, if not necessarily of the best. Still, the story is history, just as the age of empire is history. Empire, in the sense that Ferguson uses it, is a projection of the nationalism of some nation or other. The great national empires, like the great absolute monarchies, were possible during only a limited epoch. The United States in the 21st century could not create such an empire, even if it were foolish enough to try.
What the United States can do is anchor a Universal State or, to use Toynbee's other coinage, “an ecumenical society with Western characteristics.” The story of the better-possible-world that the British Empire created may yet continue. The trick is to avoid the temptation to emulate the noble empire's example too closely.
Copyright © 2003 by John J. Reilly