PREFACE TO THE SECOND EDITION
Six years ago a Royal
Commission, under the presidency of Lord Hartington, was known to
be inquiring into the administration of the national defence. There
was much talk in the newspapers about the Prussian staff, and many
were the advocates of its imitation in this country. Very few of
those who took part in the discussions seemed to know what the
Prussian staff was, and I thought it might be useful to the Royal
Commission and to the public to have a true account of that
institution, written in plain English, so that any one could
understand it. The essay was published on the 11th of February,
1890, the day on which the Report of Lord Hartington's Commission
was signed.The essential feature of the Prussian staff system
consists in the classification of duties out of which it has
arisen. Every general in the field requires a number of assistants,
collectively forming his staff, to relieve him of matters of
detail, to act as his confidential secretaries, and to represent
him at places where he cannot be himself. The duties of command are
so multifarious that some consistent distribution of functions
among the officers of a large staff is indispensable. In Prussia
this distribution is based on a thoroughly rational and practical
principle. The general's work is subdivided into classes, according
as it is concerned with administration and discipline or with the
direction of the operations against the enemy. All that belongs to
administration and discipline is put upon one side of a dividing
line, and upon the other side all that directly affects the
preparation for or the management of the fighting—in technical
language, all that falls within the domain of strategy and tactics.
The officers entrusted with the personal assistance of the general
in this latter group of duties are in Prussia called his "general
staff." They are specially trained in the art of conducting
operations against an enemy, that is in the specific function of
generalship, which has thus in the Prussian army received more
systematic attention than in any other. In the British army the
assistants of a general are also grouped into classes for the
performance of specific functions in his relief. But the grouping
of duties is accidental, and follows no principle. It has arisen by
chance, and been stereotyped by usage. The officers of a staff
belong to the adjutant-general's branch or to the
quartermaster-general's branch, but no rational criterion exists by
which to discover whether a particular function falls to one branch
or to the other. That this is an evil is evident, because it is
manifest that there can be no scientific training for a group of
duties which have no inherent affinity with one another. The evil
has long been felt, for the attempt has been made to remedy it by
amalgamating the two branches in order to sever them again upon a
rational plane of cleavage.But while the essence of the Prussian general staff
lies deeply embedded in the organization of the Prussian army, the
interest of the general public has been attracted by the fact that
the great strategist to whom the victories of 1866 and 1870 are
ascribed was not the commander of the Prussian army, but merely the
chief of the general staff of a royal commander-in-chief. It may
well be doubted whether this feature of the Prussian system is
suitable for imitation elsewhere. The Germans themselves evidently
regard it as accidental rather than essential, for in organizing
their navy they have, after much experiment and deliberation,
adopted a different plan. They have appointed their chosen admiral
to be, not chief of the staff to an Emperor who in war, as he takes
the field with the army, cannot undertake the command of the navy,
but to be "the commanding admiral."I refrained in the first edition of this essay from
drawing from the German institution which it describes a moral to
be applied to the British army, and was content with a warning
against overhasty imitation. At that time the nature of the
relation between Moltke and the King was still to some extent
veiled in official language, and nothing so far as I am aware had
been published which allowed the facts to rest upon well
authenticated, direct evidence as distinguished from inference.
Since then the posthumous publication of Moltke's private
correspondence,[1] and of the
first instalment of his military correspondence,[2] has thrown a
flood of light upon the whole subject. I had the good fortune to be
furnished with an earlier clue. As soon as my essay was ready for
the press I ventured to send a proof to Count Moltke, with a
request that he would allow me in a dedication to couple his name
with studies of which his work had been the subject. He was good
enough to reply in a letter of which the following is a
translation:—BERLIN, January 20, 1890.DEAR SIR,—I have read your essay on the German general staff with
great interest.I am glad that on p. 63 you dispose of the
ever-recurring legend according to which before every important
decision a council of war is assembled. I can assure you that in
1866 and in 1870-71 a council of war was never
called.If the commander after consultation with his authorized
adviser feels the need of asking others what he ought to do, the
command is in weak hands.If King William I. ever really used the expression
attributed to him on p. 58, he did himself a great injustice. The
king judged the perpetually changing military situation with an
uncommonly clear eye. He was much more than "a great strategist."
It was he who took upon himself an immeasurable responsibility, and
for the conduct of an army character weighs more than knowledge and
science. I think your excellent work would lose nothing if that
passage were omitted.You touch on p. 112[3] upon the
relation between the commander and the statesman. Neither of the
two can set up for himself in advance a goal to be certainly
reached. The plan of campaign modifies itself after the first great
collision with the enemy. Success or failure in a battle occasions
operations originally not intended. On the other hand the final
claims of the statesman will be very different according as he has
to reckon with defeats or with a series of uninterrupted victories.
In the course of the campaign the balance between the military will
and the considerations of diplomacy can be held only by the supreme
authority.It has not escaped your penetration that a general
staff cannot be improvised on the outbreak of war, that it must be
prepared long beforehand in peace, and be in practical activity and
in close intercourse with the troops. But even that is not enough.
It must know who is to be its future commander, must be in
communication with him and gain his confidence, without which its
position is untenable.Great is the advantage if the head of the State is also
the leader in war. He knows his general staff and his troops, and
is known by them. In such armies there are no
pronunciamentoes.The constitution, however, does not in every country
admit of placing the head of the State at the head of the army. If
the Government will and can select in advance the most qualified
general for the post, that officer must also be given during peace
the authority to influence the troops and their leaders and to
create an understanding between himself and his general staff. This
chosen general will seldom be the minister of war, who during the
whole war is indispensable at home, where all the threads of
administration come together.You have expressed the kind intention of dedicating
your interesting essay to me, but I suggest that you should
consider whether without such a dedication it would not still
better preserve the character of perfectly independent
judgment.With best thanks for your kind
communication,I am, dear sir, yours very truly,COUNT MOLTKE,Field Marshal.It was hardly possible for Moltke, bound as he was by
his own high position, to have expressed more plainly his opinion
of the kind of reform needed in the British army, nor to have
better illustrated than by that opinion the precise nature of his
own work.[4]With Moltke's view that the peculiar position which he
held was not necessarily the model best suited for the
circumstances of the British army it is interesting to compare the
judgment expressed quite independently by Lord Roberts, who kindly
allows me to publish the following letter:—SIMLA,11th September, 1891.DEAR MR. WILKINSON,—I am much obliged to you for so kindly sending
meThe Brain of an Armyand the other military works which reached me two or
three mails ago. Some of the books I had seen before,
andThe Brain of an ArmyI had often heard of, and meant to study whenever
sufficient leisure was vouchsafed to me, which, alas! is but
seldom. I have now read it with great interest.One point that strikes me is the strong inclination
evinced at present to assume that the German system of apportioning
the duties of command and staff is deserving of universal adoption
because under exceptional circumstances, and with quite an
exceptional man to act as head of the Staff, it proved eminently
successful in the wars between Prussia and Austria and Prussia and
France.The idea of a Chief of the Staff who is to regulate the
preparations for and the operations during a campaign, and who is
to possess a predominant influence in determining the military
policy of a nation, is quite opposed to the views of some of the
ablest commanders and strategists, as summarized at pages 17 and 18
of Home'sPrécis of Modern
Tactics, Edition 1882; and I doubt
whether any really competent general or Commander-in-Chief would
contentedly acquiesce in the dissociation of command and
responsibility which the German procedure necessarily entails. That
Von Moltke was the virtual Commander-in-Chief of the German forces
during the wars in question, and that the nominal commanders had
really very little to say to the movements they were called upon to
execute, seems to be clearly proved by the third volume of the
Field Marshal's writings, reviewed inThe
Timesof the 21st August last. Von Moltke
was a soldier of extraordinary ability, he acted in the Emperor's
name, the orders he initiated were implicitly obeyed, and the
military machine worked smoothly. But had the orders not been
uniformly judicious, had a check or reverse been experienced, and
had one or more of the subordinate commanders possessed greater
capacity and resolution than the Chief of the Staff, the result
might have been very different.In military nations a Chief of the Staff of the German
type may perhaps be essential, more especially when, as in Germany,
the Emperor is the head of the Army and its titular
Commander-in-Chief. The reasons for this are that, in the first
place, he may not possess the qualities required in a
Commander-in-Chief who has to lead the Army in war; and in the
second place, even if he does possess those qualities, there are so
many other matters connected with the civil administration of his
own country, and with its political relations towards other
countries, that the time of a King or Emperor may be too fully
occupied to admit of his devoting that exclusive attention to
military matters which is so necessary in a Commander-in-Chief, if
he desires to have an efficient Army. A Chief of the Staff then
becomes essential; he is indeed the
Commander-in-Chief.In a small army like ours, however, where the
Commander-in-Chief is a soldier by profession, I am inclined to
think that a Chief of the Staff is not required in the same way as
he is in Germany. With us, the man of the stamp sketched in chapter
iv. ofThe Brain of an Armyshould be the head of the Army—the Commander-in-Chief
to whom every one in the Army looks up, and whom every one on
service trusts implicitly. The note at page 12 [61] of your little
book expresses my meaning exactly. Blucher required a Scharnhorst
or a Gneisenau "to keep him straight," but would it not have been
better, as suggested in your note, "to have given Scharnhorst and
Gneisenau the actual command"?I think, too, that an Emperor or King would be more
likely than a man of inferior social standing to take the advice of
a Chief of the Staff. The former would be so immeasurably above all
those about him that he could afford to listen to advice—as the
Emperor of Germany undoubtedly did to that of Von Moltke on the
occasion mentioned in the note at page 14 [64]. But the Commander
of about much the same standing socially as his Chief of the Staff,
and possibly not much the latter's senior in the Army, would be apt
to resent what he might consider uncalled-for interference; and
this would be specially the case if he were of a narrow-minded,
obstinate disposition. Indeed, I think that such a feeling would be
almost sure to arise, unless the Commander-in-Chief were one of
those easy-going, soft natures which ought never to be placed in
such a high position.My personal experience is, of course, very slight, but
I have been a Commander with a Chief of the Staff, and I have been
(in a very small way) the Chief of the Staff to a Commander, with
whom I was sent "to keep him straight." It was not a pleasant
position, and one which I should not like to fill a second time. In
my own Chief of the Staff (the late Sir Charles Macgregor) I was
particularly fortunate; he was of the greatest possible assistance
to me; but without thinking myself narrow-minded and obstinate, I
should have objected if he had acted as if he were "at the head of
the Army."I have been referring hitherto more to war than peace,
but even in peace time I doubt if a Chief of the Staff of the
German type is suitable to our organization, and to the comparative
smallness of our army. In war time it might easily lead to
disaster. The less capacity possessed by the nominal
Commander-in-Chief the greater might be his obstinacy, and the more
capacity he possessed the more he would resent anything which might
savour of interference. Altogether I think that the office of Chief
of the Staff, as understood in Germany, might easily be made
impossible under the conditions of our service. My opinion is that
the Army Head-Quarters Staff are capable of doing exactly the same
work as the Grand General Staff of the German Army perform, and
that there is no need to upset our present system. We have only to
bring the Intelligence and Mobilization Departments more closely
into communication with, and into subordination to, the
Adjutant-General and Quarter-Master-General, as is now being done
in India with the best results.You will understand that the foregoing remarks are
based on the assumption that in the British Service the office of
Commander-in-Chief is held by the soldier who, from his abilities
and experience, has commended himself to the Government as being
best qualified to organize the Army for war, and if requisite to
take command in the field. If, however, for reasons of State it is
thought desirable to approximate our system to the German system in
the selection of the head of the Army, it might become necessary to
appoint a Chief of the Staff of the German type to act as the
responsible military adviser of the Commander-in-Chief and the
Cabinet. But in this case the responsibility of the Officer in
question should be fully recognised and clearly
defined.Believe me,Yours very truly,FRED ROBERTS.To SPENSER WILKINSON, Esq.The Report of Lord Hartington's Commission, which
appeared in the spring of 1890, seemed to justify the apprehension
which had caused me to write, for it recommended the creation,
under the name of a general staff, of a department bearing little
resemblance to the model which it professed to copy. The
Commission, however, was in a most awkward dilemma. It was
confronted in regard to the command of the army with two problems,
one of which was administrative, the other constitutional. The
public was anxious to have an army efficient for its purpose of
fighting the enemies of Great Britain. The statesmen on the
Commission were intent upon having an army obedient to the
Government. The tradition that the command of the army being a
royal prerogative could be exercised otherwise than through the
constituted advisers of the Crown was not in practice altogether
extinct. It can hardly be doubted that the Commission was right in
wishing to establish the principle that the army is a branch of the
public service, administered and governed under the authority of
the Cabinet in precisely the same way as the post office. No other
theory is possible in the England of our day. But the attempt to
make the theory into the practice touched certain susceptibilities
which it was felt ought to be respected, and the Commission perhaps
attached more importance to this kind of consideration than to the
necessity of preparing the war office for war.It was no doubt of the first importance to guard
against the recurrence of a state of things in which all attempts
to bring the army into harmony with the needs of the time and of
the nation were frustrated by an authority not entirely amenable to
the control of the Secretary of State. Not less important, however,
was the requirement that any change by which this result, in itself
so desirable, might be attained should at the same time contribute
to the supreme end of readiness for conflict with any of the Great
Powers whose rivalry with Great Britain has in recent times become
so acute.In the war of which a part is examined in the following
pages a chief of the staff is seen drafting the orders by which the
whole army is guided. He has no authority; the orders are issued in
the name of the commander,—that is in Prussia, of the king. When,
as was the case in 1866 and in 1870-1, the king shows his entire
confidence in the chief of the staff by invariably accepting his
drafts, the direction of the army, the generalship of the campaign,
is really the work of the chief of the staff, though that officer
has never had a command, and has been sheltered throughout under
the authority of another. The generalship or strategy of the
campaigns of 1866 and 1870-1 was Moltke's, and Moltke's alone, and
no one has borne more explicit testimony to this fact than the
king. At the same time no one has more emphasized the other fact,
that he was covered by the king's responsibility, than Moltke
himself.The work of generalship can rarely be given to any one
but the commander of an army. When the commander owes his position
to other than military considerations, as is the case in Prussia,
where the king is born to be commander-in-chief as he is born to be
king, he is wise to select a good professional general to do the
work. But where a government is free to choose its commander, that
officer will wish to do his own work himself, and will resent the
suggestion that an assistant should prompt and guide him. The
Hartington Commission proposed at the same time to abolish the
office of commander-in-chief, and to create that of a "chief of the
staff." This new officer was to advise the Secretary of State—that
is, the Government—upon all the most important military questions.
He was to discuss the strength and distribution of the army, and
the defence of the Empire; to plan the general arrangements for
defence, and to shape the estimates according to his plan. In a
word, he was to perform many of the most important duties of a
commander-in-chief. But he was to be the adviser or assistant, not
of a military commander, but of a civilian governor-general of the
army.An army cannot be directed in war nor commanded in
peace under the immediate authority of a civilian. There must be a
military commander, the obedient servant of the Government,
supported by the Government in the exercise of his powers to
discipline and direct the army, and sheltered by the Government
against all such criticism as would weaken his authority or
diminish its own responsibility. The scheme propounded by the
Hartington Co [...]