During the first post-war years the pan-Slavs were cautious not to discuss openly their more radical ideas of Slavic political unification, nor to criticize too severely the foreign policy of the government (the views expressed by Pogodin led to Parus being banned). But by the early 1860s, when Ignat′ev emerged as a pan-Slav supporter and became a leading figure in the government, they became more vocal in their views. Ignat′ev’s growing influence in foreign affairs was based largely on his highly successful negotiation of the Sino-Russian Treaty of Beijing, in November 1860, which gave Russia possession of the Amur and Ussuri regions as well as Vladivostok in the Far East. In 1861 Ignat′ev became Director of the Asiatic Department of the Foreign Ministry, the office responsible for Russia’s policy in the Balkans. Three years later he was appointed as the Tsar’s envoy to Constantinople – a post he held until the Russo-Turkish war of 1877–8. Throughout these years Ignat′ev pushed for a military solution to the Eastern Question in the Balkans: Russian-sponsored Slav uprisings against Turkish rule and the intervention of the tsarist army, leading to the liberation of the Slavs and the creation of a Slavic Union under Russian leadership.

Pan-Slav ambitions for the Balkans focused first on Serbia, where the restoration of the Europeanized but autocratic Prince Mihailo to the throne in 1860 was seen as a victory for Russian influence and yet another defeat for the Austrians. Gorchakov supported the Serb movement for liberation from the Turks, fearing otherwise that, if they gained independence on their own, the Serbs would fall under Austrian or Western influence. Writing to the Russian consul in Bucharest, the Foreign Minister underlined that ‘our policy in the East is directed mainly toward strengthening Serbia materially and morally and giving her the opportunity to stand at the head of the movement in the Balkans’. Ignat’ev went further, advocating an immediate solution to the Eastern Question by military means. Taking up a proposal by Mihailo, he urged the Russian government to support the Serbs in a war against the Turks and help them form a confederation with the Bulgarians, to which Bosnia, Herzegovina and Montenegro could be joined.

Under pan-Slav pressure, the Russian Foreign Ministry increased its support for the Serb movement. After a Turkish bombardment of Belgrade in 1862, the Russians called a special conference of the signatories of the Paris Treaty at Kanlidze near Constantinople and eventually succeeded in getting the removal of the final Turkish garrisons from Serbia in 1867. It was their first major diplomatic victory since the end of the Crimean War. Encouraged by their success, the Russians gave their backing to the Serbian attempt to create a Balkan League. Serbia formed a military alliance with Montenegro and Greece and a pact of friendship with the Romanian leadership, and established closer ties with Croatian and Bulgarian nationalists. The Russians subsidized the Serb army, though a mission sent by Miliutin to inspect it found it in a chronic state. Then in the autumn of 1867 Prince Mihailo backed away from war against the Turks, prompting Russia to suspend its war credits. The assassination of Mihailo the following June confirmed the end of Russian-Serb cooperation and the collapse of the Balkan League.46

The next seven years were a period of relative calm in the Balkans. The imperial monarchies of Russia, Austria-Hungary and Germany (the Three Emperors’ League of 1873) guaranteed the preservation of the status quo in the Balkans. Official Russian policy in these years was based on a firm commitment to the European balance of power, and on that basis Gorchakov secured a major diplomatic victory with the annulment of the Paris Treaty’s Black Sea clauses at a conference of the European powers in London in 1871. But unofficially the policy of Russia remained the encouragement of the pan-Slav movement in the Balkans – a policy coordinated by Ignat′ev from the Russian embassy in Constantinople through its consulates in the Balkan capitals. In his memoirs, written at the end of his long life in the 1900s, Ignat′ev explained that his aim in the Balkans in the 1860s and 1870s had been to destroy the Treaty of Paris, to recover southern Bessarabia, and to control the Turkish Straits, either directly through military conquest or indirectly through a treaty with a dependent Turkey, of the kind Russia had enjoyed before the Crimean War. ‘All my activities in Turkey and among the Slavs’, he wrote, ‘were inspired by … the view that Russia alone could rule in the Balkan peninsula and Black Sea … Austria-Hungary’s expansion would be halted and the Balkan peoples, especially the Slavs, would direct their gaze exclusively to Russia and make their future dependent on her.’47

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