Part I
Shifting Globalisation
Europeâs Hegemony Challenged
1 Trade After the Deluge
British Commerce, Armageddon, and the Political Economy of Globalisation, 1914â1918
Andrew Dilley
The new protectionism differs from the old in seeking to superimpose the present war map of the world, with its divisions of belligerents, allies, and neutral upon the protectionism of 1903â5, which sought to combine protection for British industries with a closer business connection between the self-governing dominions and the mother-country.
J. A. Hobson, The New Protectionism
(London: T. Fisher Unwin, 1916), ix.
Globalisation ought not only be approached as a material reality, the increasing and increasingly intense connectedness of various parts of the globe, but also as a cultural phenomenon constituted through sets of ideas about the integration of the globe.1 Such ideas are not only at the heart of the culture of globalisation, hence important in their own right, but also the way in which globalisation is imagined can play an important role in shaping actual exchanges of goods, finance, people, and ideas. Thus, when assessing the impact of the Great War on globalisation, it is necessary not only to consider the warâs impact on patterns of connection and exchange, but also to chart the warâs impact on ideas about economic, and indeed geopolitical, governance. To this end, this chapter considers the impact of the Great War on conceptions of global political economy in Britain and the British Empire. It explores how the war reshaped the ways in which global trade was imagined. Since international businesses lie at the intersection both of the material realities and cultural imaginaries of globalisation, the article focuses on debates on trade and tariff policy after the war amongst businessmen, re-examining the development of what J. A. Hobson called the ânew protectionismâ. It argues that new protection not only signified a significant defeat for British free trade ideology, but also involved a significant re-ordering of spatial understandings of global commerce as the pre-war political economy of tariff reform transformed to accommodate Britain and her empire within a broader global liberal alliance.
Such an examination of the impact of the war on business conceptions of global geopolitical and economic globalisation can be located within, and used to critique, several broader debates about continuity and change prevalent in the literature.2 A first, dominant paradigm emphasises the discontinuities caused by the war.3 Thus, globalisation was on this reading unbalanced by financial exertions, productive dislocations, trade reorientations and, finally, supposedly punitive reparations.4 Similarly, the war is argued to have destroyed or weakened European empires by promoting nationalism and weakening the imperial metropoles.5 Thus, integration was replaced by âfragmentationâ.6 Conversely, a revisionist paradigm stresses continuity, either arguing that the war accentuated developments already apparent prior to the war, or that these developments were less profound than they first appear. Such readings emphasise the continuation of economic integration and the surprising strength of European empires.7 J. Adam Toozeâs After the Deluge offers a third way, emphasising neither straightforward continuity nor disintegration, but rather arguing that the war radically reconfigured global economy and global geopolitics. Thus, he writes that the war delivered an âunprecedented victory for a distinctive vision of world orderâ dominated by the US and the Western Allies, whose dominance was, if anything, reinforced by the weaknesses of the Bolshevik Russia. The British Empire, Tooze argues, was integral to this victory and âsuccessfully reinvented the formula of liberal empire [to] ⊠claim for itself a major place in the twentieth-century world as a self-sustaining and self-legitimating unitâ. However he then goes on to emphasise the failure of this vision in the interwar periodâfollowing the standard account of British imperial decline as opposed to more recent arguments emphasising the continued vitality of British imperialism.8 This geopolitical reconfiguration was in part rooted in, and coexisted with, a similar re-distribution of global economic power, with financial and commercial might transferred across the Atlantic. Globalisation was re-ordered by the war, not reversed.9 Generally, such debates about continuity and change focus on the impact of the war on globalisation qua integration rather than globalisation qua mentalitĂ©. Understanding the warâs impact on conceptions of the political economy of becomes a crucial, and underexplored, aspect of the broader debate about its effect on globalisation.
Businesses, and in particular business associations, played a crucial role in the redevelopment of ideas of political economy in response to âArmageddonâ. As Martin Daunton and Frank Trentmann have persuasively argued, ideas of political economy are formulated in evolving public discussions, rather than emerging from a self-evident economic logic, from the rarefied reflections of academics or in isolated government offices.10 Trentmann has emphasised the crucial role played by businessmen as a âmedium of exchangeâ between âthe economy and politicsâ: âthe ways [businessmen] think, talk, and act not only help react to political economy but also help to constitute itâ.11 By the twentieth century, collective action by business associations (formal organisations mobilising businesses) lay at the vanguard of the business contribution to political economy described by Trentmann, projecting a legitimated âvoiceâ into broader public discourses and into the deliberations of policymakers.12 The views of these associations are not unproblematic reflections of the potentially divided opinions of their members. Nonetheless, as political scientist James Wilson has pointed out, âfew long remain in an organisation that offers them the very opposite of what they wantâ.13 Successful associations therefore must reflect broadly the interests of their members by adopting consensual positions (often through a clear institutional process). At the outbreak of the war, the chambers of commerce movement was arguably the most widespread vehicle through which businesses in Britain and the British Empire could intervene in, and shape, discussions of political economy. In the Anglophone world, chambers of commerce are voluntary associations which draw together businessmen in particular localities to campaign on matters of common interest and to provide shared services.14 By 1914, in Britain and many of the dominions, they had formed national associations and had mobilised at the imperial and international levels.15
The remainder of this chapter charts the evolution of new ideas about trade after the war within the chambers of commerce movement, showing also that these ideas contributed significantly to broader discourses on political economy in Britain and the British Empire, not least amongst policymakers. Following contemporaries, notably Hobson, the term ânew protectionâ is adopted for this body of thought, but it must be emphasised at the outset (and again following Hobson) that new protection pursued not only domestic protection, but also a complex hierarchy of global preferential trading relations that involved the imposition of differing levels of tariffs on different trading partners based on their geopolitical allegiances. The chapter traces the evolution of this body of thought, showing that the war not only created an early turn to empire (and an earlier turn to empire than recognised in the existing literature) and the marginalisation of free trade, but also that ideas of preferential trade were quickly reformulated to reconcile domestic protection and imperial integration with the participation in a broader global alliance. The first section of the chapter shows that this imagination of global trade began at the outset of the war and became dominant by the beginning of 1916. The second section shows how new protection had to be legitimated at an imperial level given the evolving political culture of Britainâs relations with the self-governing dominions. The final section explores the impact of the new protection on British and imperial policy in the later years of the war, and shows that, surprisingly, the rise of the US had a relatively limited impact on the political economy of new protection. Overall, the new protection represents a reconfiguration of British and British imperial political economy to meet the demands of a global liberal alliance of precisely the kind emphasised by Tooze. Yet, it constituted an alternate vision of the means to cement that alliance, contrary to US policy of the âopen doorâ in trade, through preferential trading relations. Thus, the continued prevalence of preferential trade into the cold war era raises questions about Toozeâs emphasis on the US power and British decline in the post-1918 world.
Business as Usual? British Trade, Political Culture, and the War: 1914â16
The declaration of war entailed an immediate extension of state activity and significantly disrupted British trade and finance. This was not the intention of policymakers. On the outbreak of war in August 1914, Asquithâs government adopted a strategy of âBusiness as Usualâ, aiming to limit the economic dislocations caused by the war. Some scholars have argued that down to 1916, the warâs impact was indeed relatively limited. Thus, John McDermott highlights the continuation of trade with the Central Powers through neutrals until the Trading with the Enemy Act of January 1916 significantly tightened the regulatory framework.16 David French argues that the commitment to a continental war undermined the strategy âBusiness as Usualâ from the start, but argues that the strategy persisted until 1916.17 Nonetheless, the âlimitedâ impact of the war from 1914 to 1916 is often more apparent only by comparison with the later zenith of total war. The early years of the war still saw a significant economic rupture with the antebellum world. As early as January 1915, the Chambers of Commerce Journal (the journal of the London chamber of commerce) observed that âextraordinary strides have been taken since the war in the direction of State Socialismâ.18 Richard Roberts has ably shown how the financial and credit mechanisms of the City of London were only saved by an enormous state intervention in August 1914.19
The outbreak of war immediately altered the geopolitical matrix within which British and British imperial trade took place. It rendered important pre-war trades ille...