Part 2

It is not necessary to record in this statement the whole of the provisions of the Berlin Congress. Two only will suffice, as they are at the same time the most important and the most flagrantly abused. The first of these (which forms the fifth article of the agreement) proclaims that "No Power which exercises sovereign rights in the said regions shall be allowed to grant therein either monopoly or privilege of any kind in commercial matters." No words could be clearer than that, but the Belgian representatives, conscious that such a clause must disarm all opposition, went out of their way to accentuate it. "No privileged situation can be created in this respect," they said. "The way remains open without any restriction to free competition in the sphere of commerce." It would be interesting now to send a British or German trading expedition up the Congo in search of that free competition which has been so explicitly promised, and to see how it would fare between the monopolist Government and the monopolist companies who have divided the land between them. We have travelled some distance since Prince Bismarck at the last sitting of the Conference declared that the result was "to secure to the commerce of all nations free access to the centre of the African Continent."

More important, however, is Article VI., both on account of the issues at stake, and because the signatories of the treaty bound themselves solemnly, "in the name of Almighty God," to watch over its enforcement. It ran: "All the Powers exercising sovereign rights or influence in these territories pledge themselves to watch over the preservation of the native populations and the improvement of their moral and material conditions of existence, and to work together for the suppression of slavery and of the slave trade." That was the pledge of the united nations of Europe. It is a disgrace to each of them, including ourselves, the way in which they have fulfilled that oath. Before their eyes, as I shall show in the sequel, they have had enacted one long, horrible tragedy, vouched for by priests and missionaries, traders, travellers and consuls, all corroborated, but in no way reformed, by a Belgium commission of inquiry. They have seen these unhappy people, who were their wards, robbed of all they possessed, debauched, degraded, mutilated, tortured, murdered, all on such a scale as has never, to my knowledge, occurred before in the whole course of history, and now, after all these years, with all the facts notorious, we are still at the stage of polite diplomatic expostulations. It is no answer to say that France and Germany have shown even less regard for the pledge they took at Berlin. An individual does not condone the fact that he has broken his word by pointing out that his neighbour has done the same.

II

THE DEVELOPMENT OF THE CONGO STATE

Having received his mandate from the civilized world King Leopold proceeded to organize the Government of the new State, which was in theory to be independent of Belgium, although ruled by the same individual. In Europe, King Leopold was a constitutional monarch; in Africa, an absolute autocrat. There were chosen three ministers for the new State--for foreign affairs, for finances and for internal affairs; but it cannot be too clearly understood that they and their successors, up to 1908, were nominated by the King, paid by the King, answerable only to the King, and, in all ways, simply so many upper clerks in his employ. The workings of one policy and of one brain, as capable as it is sinister, are to be traced in every fresh development. If the ministers were ever meant to be a screen, it is a screen which is absolutely transparent. The origin of everything is the King--always the King. M. van Ectvelde, one of the three head agents, put the matter into a single sentence: "C'est à votre majesté qu'appartient l'État." They were simply stewards, who managed the estate with a very alert and observant owner at their back.

One of the early acts was enough to make observers a little thoughtful. It was the announcement of the right to issue laws by arbitrary decrees without publishing them in Europe. There should be secret laws, which could, at any instant, be altered. The _Bulletin Officiel_ announced that "Tous les Actes du Gouvernement qu'il y a intérêt à rendre publics seront insérés au _Bulletin Officiel_." Already it is clear that something was in the wind which might shock the rather leathery conscience of a European Concert. Meanwhile, the organization of the State went forward. A Governor-General was elected, who should live at Boma, which was made the capital. Under him were fifteen District Commissaries, who should govern so many districts into which the whole country was divided. The only portion which was at that time at all developed was the semi-civilized Lower Congo at the mouth of the river. There lay the white population. The upper reaches of the stream and of its great tributaries were known only to a few devoted missionaries and enterprising explorers. Grenfell and Bentley, of the Missions, with Von Wissman, the German, and the ever-energetic Stanley, were the pioneers who, during the few years which followed, opened up the great hinterland which was to be the scene of such atrocious events.

But the work of the explorer had soon to be supplemented and extended by the soldier. Whilst the Belgians had been entering the Congo land from the west, the slave-dealing Arabs had penetrated from the east, passing down the river as far as Stanley Falls. There could be no compromise between such opposite forces, though some attempt was made to find one by electing the Arab leader as Free State Governor. There followed a long scrambling campaign, carried on for many years between the Arab slavers on the one side and the Congo forces upon the other--the latter consisting largely of cannibal tribes--men of the Stone Age, armed with the weapons of the nineteenth century. The suppression of the slave trade is a good cause, but the means by which it was effected, and the use of Barbarians who ate in the evening those whom they had slain during the day, are as bad as the evil itself. Yet there is no denying the energy and ability of the Congo leaders, especially of Baron Dhanis. By the year 1894 the Belgian expeditions had been pushed as far as Lake Tanganyika, the Arab strongholds had fallen, and Dhanis was able to report to Brussels that the campaign was at an end, and that slave-raiding was no more. The new State could claim that they had saved a part of the natives from slavery. How they proceeded to impose upon all of them a yoke, compared to which the old slavery was merciful, will be shown in these pages. From the time of the fall of the Arab power the Congo Free State was only called upon to use military force in the case of mutinies of its own black troops, and of occasional risings of its own tormented "citizens." Master of its own house, it could settle down to exploit the country which it had won.

In the meantime the internal policy of the State showed a tendency to take an unusual and sinister course. I have already expressed my opinion that King Leopold was not guilty of conscious hypocrisy in the beginning, that his intentions were vaguely philanthropic, and that it was only by degrees that he sank to the depths which will be shown. This view is borne out by some of the earlier edicts of the State. In 1886, a long pronouncement upon native lands ended by the words: "All acts or agreements are forbidden which tend to the expulsion of natives from the territory they occupy, or to deprive them, directly or indirectly, of their liberty or their means of existence." Such are the words of 1886. Before the end of 1887, an Act had been published, though not immediately put into force, which had the exactly opposite effect. By this Act all lands which were not actually occupied by natives were proclaimed to be the property of the State. Consider for a moment what this meant! No land in such a country is actually occupied by natives save the actual site of their villages, and the scanty fields of grain or manioc which surround them. Everywhere beyond these tiny patches extend the plains and forests which have been the ancestral wandering places of the natives, and which contain the rubber, the camwood, the copal, the ivory, and the skins which are the sole objects of their commerce. At a single stroke of a pen in Brussels everything was taken from them, not only the country, but the produce of the country. How could they trade when the State had taken from them everything which they had to offer? How could the foreign merchant do business when the State had seized everything and could sell it for itself direct in Europe? Thus, within two years of the establishment of the State by the Treaty of Berlin, it had with one hand seized the whole patrimony of those natives for whose "moral and material advantage" it had been so solicitous, and with the other hand it had torn up that clause in the treaty by which monopolies were forbidden, and equal trade rights guaranteed to all. How blind were the Powers not to see what sort of a creature they had made, and how short-sighted not to take urgent steps in those early days to make it retrace its steps and find once more the path of loyalty and justice! A firm word, a stern act at that time in the presence of this flagrant breach of international agreement, would have saved all Central Africa from the horror which has come upon it, would have screened Belgium from a lasting disgrace, and would have spared Europe a question which has already, as it seems to me, lowered the moral standing of all the nations, and the end of which is not yet.

Having obtained possession of the land and its products, the next step was to obtain labour by which these products could be safely garnered. The first definite move in this direction was taken in the year 1888, when, with that odious hypocrisy which has been the last touch in so many of these transactions, an Act was produced which was described in the _Bulletin Officiel_ as being for the "Special protection of the black." It is evident that the real protection of the black in matters of trade was to offer him such pay as would induce him to do a day's work, and to let him choose his own employment, as is done with the Kaffirs of South Africa, or any other native population. This Act had a very different end. It allowed blacks to be bound over in terms of seven years' service to their masters in a manner which was in truth indistinguishable from slavery. As the negotiations were usually carried on with the capita, or headman, the unfortunate servant was transferred with small profit to himself, and little knowledge of the conditions of his servitude. Under the same system the State also enlisted its employees, including the recruits for its small army. This army was supplemented by a wild militia, consisting of various barbarous tribes, many of them cannibals, and all of them capable of any excess of cruelty or outrage. A German, August Boshart, in his "Zehn Jahre Afrikanischen Lebens," has given us a clear idea of how these tribes are recruited, and of the precise meaning of the attractive word "libéré" when applied to a State servant. "Some District Commissary," he says, "receives instructions to furnish a certain number of men in a given time. He puts himself in communication with the chiefs, and invites them to a palaver at his residence. These chiefs, as a rule, already have an inkling of what is coming, and, if made wise by experience, make a virtue of necessity and present themselves. In that case the negotiations run their course easily enough; each chief promises to supply a certain number of slaves, and receives presents in return. It may happen, however, that one or another pays no heed to the friendly invitation, in which case war is declared, his villages are burned down, perhaps some of his people are shot, and his stores or gardens are plundered. In this way the wild king is soon tamed, and he sues for peace, which, of course, is granted on condition of his supplying double the number of slaves. These men are entered in the State books as 'libérés.' To prevent their running away, they are put in irons and sent, on the first opportunity, to one of the military camps, where their irons are taken off and they are drafted into the army. The District Commissary is paid £2 sterling for every serviceable recruit."

Having taken the country and secured labour for exploiting it in the way described, King Leopold proceeded to take further steps for its development, all of them exceedingly well devised for the object in view. The great impediment to the navigation of the Congo had lain in the continuous rapids which made the river impassable from Stanley Pool for three hundred miles down to Boma at the mouth. A company was now formed to find the capital by which a railway should be built between these two points. The construction was begun in 1888, and was completed in 1898, after many financial vicissitudes, forming a work which deserves high credit as a piece of ingenious engineering and of sustained energy. Other commercial companies, of which more will be said hereafter, were formed in order to exploit large districts of the country which the State was not yet strong enough to handle. By this arrangement the companies found the capital for exploring, station building, etc., while the State--that is, the King--retained a certain portion, usually half, of the company's shares. The plan itself is not necessarily a vicious one; indeed, it closely resembles that under which the Chartered Company of Rhodesia grants mining and other leases. The scandal arose from the methods by which these companies proceeded to carry out their ends--those methods being the same as were used by the State, on whose pattern these smaller organizations were moulded.

In the meantime King Leopold, feeling the weakness of his personal position in face of the great enterprise which lay before him in Africa, endeavoured more and more to draw Belgium, as a State, into the matter. Already the Congo State was largely the outcome of Belgian work and of Belgian money, but, theoretically, there was no connection between the two countries. Now the Belgian Parliament was won over to advancing ten million francs for the use of the Congo, and thus a direct connection sprang up which has eventually led to annexation. At the time of this loan King Leopold let it be known that he had left the Congo Free State in his will to Belgium. In this document appear the words, "A young and spacious State, directed from Brussels, has pacifically appeared in the sunlight, thanks to the benevolent support of the Powers that have welcomed its appearance. Some Belgians administer it, while others, each day more numerous, there increase their wealth." So he flashed the gold before the eyes of his European subjects. Verily, if King Leopold deceived other Powers, he reserved the most dangerous of all his deceits for his own country. The day on which they turned from their own honest, healthy development to follow the Congo lure, and to administer without any previous colonial experience a country more than sixty times their own size, will prove to have been a dark day in Belgian history.

The Berlin Conference of 1885 marks the first International session upon the affairs of the Congo. The second was the Brussels Conference of 1889-90. It is amazing to find that after these years of experience the Powers were still ready to accept King Leopold's professions at their face value. It is true that none of the more sinister developments had been conspicuous, but the legislation of the State with regard to labour and trade was already such as to suggest the turn which affairs would take in future if not curbed by a strong hand. One Power, and one only, Holland, had the sagacity to appreciate the true situation, and the independence to show its dissatisfaction. The outcome of the sittings was various philanthropic resolutions intended to strengthen the new State in dealing with that slave trade it was destined to re-introduce in its most odious form. We are too near to these events, and they are too painfully intimate, to permit us to see humour in them; but the historian of the future, when he reads that the object of the European Concert was "to protect effectually the aboriginal inhabitants of Africa," may find it difficult to suppress a smile. This was the last European assembly to deal with the affairs of the Congo. May the next be for the purpose of taking steps to truly carry out those high ends which have been forever spoken of and never reduced to practice.

The most important practical outcome of the Brussels Conference was that the Powers united to free the new State from those free port promises which it had made in 1885, and to permit it in future to levy ten per cent. upon imports. The Act was hung up for two years owing to the opposition of Holland, but the fact of its adoption by the other Powers, and the renewed mandate given to King Leopold, strengthened the position of the new State to such an extent that it found no difficulty in securing a further loan from Belgium of twenty-five millions of francs, upon condition that, after ten years, Belgium should have the option of taking over the Congo lands as a colony.

If in the years which immediately succeeded the Brussels Conference--from 1890 to 1894--a bird's-eye view could be taken of the enormous river which, with its tributaries, forms a great twisted fan radiating over the whole centre of Africa, one would mark in all directions symptoms of European activity. At the Lower Congo one would see crowds of natives, impressed for the service and guarded by black soldiers, working at the railway. At Boma and at Leopoldsville, the two termini of the projected line, cities are rising, with stations, wharves and public buildings. In the extreme southeast one would see an expedition under Stairs exploring and annexing the great district of Katanga, which abuts upon Northern Rhodesia. In the furthest northeast and along the whole eastern border, small military expeditions would be disclosed, fighting against rebellious blacks or Arab raiders. Then, along all the lines of the rivers, posts were being formed and stations established--some by the State and some by the various concessionnaire companies for the development of their commerce.

In the meantime, the State was tightening its grip upon the land with its products, and was working up the system which was destined to produce such grim results in the near future. The independent traders were discouraged and stamped out, Belgium, as well as Dutch, English and French. Some of the loudest protests against the new order may be taken from Belgian sources. Everywhere, in flagrant disregard of the Treaty of Berlin, the State proclaimed itself to be the sole landlord and the sole trader. In some cases it worked its own so-called property, in other cases it leased it. Even those who had striven to help King Leopold in the earlier stages of his enterprise were thrown overboard. Major Parminter, himself engaged in trade upon the Congo, sums up the situation in 1902 as follows: "To sum up, the application of the new decrees of the Government signifies this: that the State considers as its private property the whole of the Congo Basin, excepting the sites of the natives' villages and gardens. It decrees that all the products of this immense region are its private property, and it monopolizes the trade in them. As regards the primitive proprietors, the native tribes, they are dispossessed by a simple circular; permission is graciously granted to them to collect such products, but only on condition that they bring them for sale to the State for whatever the latter may be pleased to give them. As regards alien traders, they are prohibited in all this territory from trading with the natives."

Everywhere there were stern orders--to the natives on the one hand, that they had no right to gather the products of their own forests; to independent traders on the other hand, that they were liable to punishment if they bought anything from the natives. In January, 1892, District Commissary Baert wrote: "The native of the district of Ubangi-Welle are not authorized to gather rubber. It has been notified to them that they can only receive permission to do so on condition that they gather the produce for the exclusive benefit of the State." Captain Le Marinel, a little later, is even more explicit: "I have decided," he says, "to enforce rigorously the rights of the State over its domain, and, in consequence, cannot allow the natives to convert to their own profit, or to sell to others, any part of the rubber or ivory forming the fruits of the domain. Traders who purchase, or attempt to purchase, such fruits of this domain from the natives--which fruits the State only authorizes the natives to gather subject to the condition that they are brought to it--render themselves, in my opinion, guilty of receiving stolen goods, and I shall denounce them to the judicial authorities, so that proceedings may be taken against them." This last edict was in the Bangala district, but it was followed at once by another from the more settled Equateur district, which shows that the strict adoption of the system was universal. In May, 1892, Lieutenant Lemaire proclaims: "Considering that no concession has been granted to gather rubber in the domains of the State within this district, (1) natives can only gather rubber on condition of selling the same to the State; (2) any person or persons or vessels having in his or their possession, or on board, more than one kilogramme of rubber will have a _procèsverbal_ drawn up against him, or them, or it; and the ship can be confiscated without prejudice to any subsequent proceedings."

The sight of these insignificant lieutenants and captains, who are often non-commissioned officers of the Belgian army, issuing proclamations which were in distinct contradiction to the expressed will of all the great Powers of the world, might at the time have seemed ludicrous; but the history of the next seventeen years was to prove that a small malignant force, driven on by greed, may prove to be more powerful than a vague general philanthropy, strong only in good intentions and platitudes. During these years--from 1890 to 1895--whatever indignation might be felt among traders over the restrictions placed upon them, the only news received by the general public from the Congo Free State concerned the founding of new stations, and the idea prevailed that King Leopold's enterprise was indeed working out upon the humanitarian lines which had been originally planned. Then, for the first time, incidents occurred which gave some glimpse of the violence and anarchy which really prevailed.

The first of these, so far as Great Britain is concerned, lay in the treatment of natives from Sierra Leone, Lagos, and other British Settlements, who had been engaged by the Belgians to come to Congoland and help in railway construction and other work. Coming from the settled order of such a colony as Sierra Leone or Lagos, these natives complained loudly when they found themselves working side by side with impressed Congolese, and under the discipline of the armed sentinels of the Force Publique. They were discontented and the discontent was met by corporal punishment. The matter grew to the dimensions of a scandal.