Finest Years: Churchill as Warlord 1940–45

In the last days of May, a deal for Britain to purchase twenty US patrol torpedo boats was scuttled when news of it leaked to isolationist Senator David Walsh of Massachusetts. As chairman of the Senate’s Navy Affairs Committee, Walsh referred the plan to the attorney-general—who declared it illegal. In mid-June, the US chiefs of staff recommended that no further war material should be sent to Britain, and that no private contractor should be allowed to accept an order which might compromise the needs of the US armed forces. None of this directly influenced the campaign in France. But it spoke volumes, all unwelcome in London and Paris, about the prevailing American mood towards Europe’s war.

It was a small consolation that other powerful voices across the Atlantic were urging Britain’s cause. The New York Times attacked Colonel Charles Lindbergh, America’s arch-isolationist flying hero, and asserted the mutuality of Anglo-American interests. Lindbergh, said the Times, was ‘an ignorant young man if he trusts his own premise that it makes no difference to us whether we are deprived of the historic defense of British sea power in the Atlantic Ocean’. The Republican New York Herald Tribune astonished many Americans by declaring boldly: ‘The least costly solution in both life and welfare would be to declare war on Germany at once.’ Yet even if President Roosevelt had wished to heed the urgings of such interventionists and offer assistance to the Allies, he had before him the example of Woodrow Wilson, in whose administration he served. Wilson was renounced by his own legislature in 1919 for making commitments abroad—in the Versailles Treaty—which outreached the will of the American people. Roosevelt had no intention of emulating him.

Chamberlain reported on 27 May that he had spoken the previous evening to Stanley Bruce, Australian high commissioner in London, who argued that Britain’s position would be bleak if France surrendered. Bruce, a shrewd and respected spokesman for his dominion, urged seeking American or Italian mediation with Hitler. Australia’s prime minister, Robert Menzies, was fortunately made of sterner stuff. From Canberra, Menzies merely enquired what assistance his country’s troops could provide. By autumn, three Australian divisions were deployed in the Middle East. Churchill told Chamberlain to make plain to Bruce that France’s surrender would not influence Britain’s determination to fight on. He urged ministers—and emphasised the message in writing a few days later—to present bold faces to the world. Likewise, a little later he instructed Britain’s missions abroad to entertain lavishly, prompting embassy parties in Madrid and Berne. In Churchill’s house, even amid disaster there was no place for glum countenances.

At a further war cabinet that afternoon, Halifax found himself unsupported when he returned to his theme of the previous day, seeking agreement that Britain should solicit Mussolini’s help in exploring terms from Hitler. Churchill said that at that moment, British prestige in Europe was very low. It could be revived only by defiance. ‘If, after two or three months, we could show that we were still unbeaten, we should be no worse off than we should be if we were now to abandon the struggle. Let us therefore avoid being dragged down the slippery slope with France.’ If terms were offered, he would be prepared to consider them. But if the British were invited to send a delegate to Paris to join with the French in suing for peace with Germany, the answer must be ‘no’. The war cabinet agreed.

Halifax wrote in his diary: ‘I thought Winston talked the most frightful rot. I said exactly what I thought of [the Foreign Secretary’s opponents in the war cabinet], adding that if that was really their view, our ways must part.’ In the garden afterwards, when he repeated his threat of resignation, Churchill soothed him with soft words. Halifax concluded in his diary record: ‘It does drive one to despair when he works himself up into a passion of emotion when he ought to make his brain think and reason.’ He and Chamberlain recoiled from Churchill’s ‘theatricality’, as Cadogan described it. Cold men both, they failed to perceive in such circumstances the necessity for at least a semblance of boldness. But Chamberlain’s eventual support for Churchill’s stance was critically important in deflecting the Foreign Secretary’s proposals.

Whichever narratives of these exchanges are consulted, the facts seem plain. Halifax believed that Britain should explore terms. Churchill must have been deeply alarmed by the prospect of the Foreign Secretary, the man whom only three weeks earlier most of the Conservative Party wanted as prime minister, quitting his government. It was vital, at this moment of supreme crisis, that Britain should present a united face to the world. Churchill could never thereafter have had private confidence in Halifax. He continued to endure him as a colleague, however, because he needed to sustain the support of the Tories. It was a measure of Churchill’s apprehension about the resolve of Britain’s ruling class that it would be another seven months before he felt strong enough to consign ‘the Holy Fox’ to exile.

The legend of Britain in the summer of 1940 as a nation united in defiance of Hitler is rooted in reality. It is not diminished by asserting that if another man had been prime minister, the political faction resigned to seeking a negotiated peace would probably have prevailed. What Churchill grasped, and Halifax and others did not, was that the mere gesture of exploring peace terms must impact disastrously upon Britain’s position. Even if Hitler’s response proved unacceptable to a British government, the clear, simple Churchillian posture, of rejecting any parley with the forces of evil, would be irretrievably compromised.

It is impossible to declare with confidence at what moment during the summer of 1940 Churchill’s grip upon power, as well as his hold upon the loyalties of the British people, became secure. What is plain is that in the last days of May he did not perceive himself proof against domestic foes. He survived in office not because he overcame the private doubts of ministerial and military sceptics, which he did not, but by the face of courage and defiance that he presented to the nation. He appealed over the heads of those who knew too much, to those who were willing to sustain a visceral stubbornness. ‘His world is built upon the primacy of public over private relationships,’ wrote the philosopher Isaiah Berlin in a fine essay on Churchill, ‘upon the supreme value of action, of the battle between simple good and simple evil, between life and death; but above all battle. He has always fought.’ The simplicity of Churchill’s commitment, matched by the grandeur of the language in which he expressed this, seized popular imagination. In the press, in the pubs and everywhere that Churchill himself appeared on his travels across the country, the British people passionately applauded his defiance. Conservative seekers after truce were left beached and isolated; sullenly resentful, but impotent.

Evelyn Waugh’s fictional Halberdier officer, the fastidious Guy Crouchback, was among many members of the British upper classes who were slow to abandon their disdain for the prime minister, displaying an attitude common among real-life counterparts such as Waugh himself:

Some of Mr Churchill’s broadcasts had been played on the mess wireless-set. Guy had found them painfully boastful and they had, most of them, been immediately followed by the news of some disaster…Guy knew of Mr Churchill only as a professional politician, a master of sham-Augustan prose, an advocate of the Popular Front in Europe, an associate of the press-lords and Lloyd George. He was asked: ‘Uncle, what sort of fellow is this Winston Churchill?’ ‘Like Hore-Belisha [sacked Secretary for War, widely considered a charlatan], except that for some reason his hats are thought to be funny’…Here Major Erskine leant across the table. ‘Churchill is about the only man who may save us from losing this war,’ he said. It was the first time that Guy had heard a Halberdier suggest that any result, other than complete victory, was possible.

Some years before the war, the diplomat Lord D’Abernon observed with patrician complacency that ‘An Englishman’s mind works best when it is almost too late.’ In May 1940, he might have perceived Churchill as an exemplar of his words.

^* Seal departed from Downing Street in 1941.

TWO The Two Dunkirks

On 28 May, Churchill learned that the Belgians had surrendered at dawn. He repressed until much later his private bitterness, unjustified though this was when Belgium had no rational prospect of sustaining the fight. He merely observed that it was not for him to pass judgement upon King Leopold’s decision. Overnight a few thousand British troops had been retrieved from Dunkirk, but Gort was pessimistic about the fate of more than 200,000 who remained, in the face of overwhelming German air power. ‘And so here we are back on the shores of France on which we landed with such high hearts over eight months ago,’ Pownall, Gort’s chief of staff, wrote that day. ‘I think we were a gallant band who little deserve this ignominious end to our efforts…If our skill be not so great, our courage and endurance are certainly greater than that of the Germans.’ The stab of self-knowledge reflected in Pownall’s phrase about the inferior professionalism of the British Army lingered in the hearts of its intelligent soldiers until 1945.

That afternoon at a war cabinet meeting in Churchill’s room at the Commons, the prime minister again—and for the last time—rejected Halifax’s urgings that the government could obtain better peace terms before France surrendered and British aircraft factories were destroyed. Chamberlain, as ever a waverer, now supported the Foreign Secretary in urging that Britain should consider ‘decent terms if such were offered to us’. Churchill said that the odds were a thousand to one against any such Hitlerian generosity, and warned that ‘nations which went down fighting rose again, but those which surrendered tamely were finished’. Attlee and Greenwood, the Labour members, endorsed Churchill’s view. This was the last stand of the old appeasers. Privately, they adhered to the view, shared by former prime minister Lloyd George, that sooner or later negotiation with Germany would be essential. As late as 17 June, the Swedish ambassador reported Halifax and his junior minister R.A. Butler declaring that no ‘diehards’ would be allowed to stand in the way of peace ‘on reasonable conditions’. Andrew Roberts has convincingly argued that Halifax was not directly complicit in remarks made during a chance conversation between Butler and the envoy. But it remains extraordinary that some historians have sought to qualify verdicts on the Foreign Secretary’s behaviour through the summer of 1940. It was not dishonourable – the lofty eminence could never have been that. But it was craven.

Immediately following the 28 May meeting, some twenty-five other ministers – all those who were not members of the war cabinet – filed into the room to be briefed by the prime minister. He described the situation at Dunkirk, anticipated the French collapse, and expressed his conviction that Britain must fight on. ‘He was quite magnificent,’ wrote Hugh Dalton, Minister of Economic Warfare, ‘the man, and the only man we have, for this hour…He was determined to prepare public opinion for bad tidings…Attempts to invade us would no doubt be made.’ Churchill told ministers that he had considered the case for negotiating with ‘that man’ – and rejected it. Britain’s position, with its fleet and air force, remained strong. He concluded with a magnificent peroration: ‘I am convinced that every man of you would rise up and tear me down from my place if I were for one moment to contemplate parley or surrender. If this long island story of ours is to end at last, let it end only when each one of us lies choking in his own blood upon the ground.’

He was greeted with acclamation extraordinary at any assembly of ministers. No word of dissent was uttered. The meeting represented an absolute personal triumph. He reported its outcome to the war cabinet. That night, the British government informed Reynaud in Paris of its refusal of Italian mediation for peace terms. A further suggestion by Halifax of a direct call upon the United States was dismissed. A bold stand against Germany, Churchill reiterated, would carry vastly more weight than ‘a grovelling appeal’ at such a moment. At the following day’s war cabinet, new instructions to Gort were discussed. Halifax favoured giving the C-in-C discretion to capitulate. Churchill would hear of no such thing. Gort was told to fight on at least until further evacuation from Dunkirk became impossible. Mindful of Allied reproaches, he told the War Office that French troops in the perimeter must be allowed access to British ships. He informed Reynaud of his determination to create a new British Expeditionary Force, based on the Atlantic port of Saint-Nazaire, to fight alongside the French army in the west.

All through those days, the evacuation from the port and beaches continued, much hampered by lack of small craft to ferry troops out to the larger ships, a deficiency which the Admiralty strove to make good by a public appeal for suitable vessels. History has invested the saga of Dunkirk with a dignity less conspicuous to those present. John Horsfall, a company commander of the Royal Irish Fusiliers, told a young fellow officer: ‘I hope you realise your distinction. You are now taking part in the greatest military shambles ever achieved by the British Army.’ Many rank-and-file soldiers returned from France nursing a lasting resentment towards the military hierarchy that had exposed them to such a predicament. Horsfall noticed that in the last phase of the march to the beaches, his men fell unnaturally silent: ‘There was a limit to what any of us could absorb, with those red fireballs flaming skywards every few minutes, and I suppose we just reached the point where there was little left to say.’ They were joined by a horse artillery major, superb in Savile Row riding breeches and scarlet and gold forage cap, who said: ‘I’m a double blue at this, old boy – I was at Mons [in 1914].’ A young Grenadier Guards officer, Edward Ford, passed the long hours of waiting for a ship reading a copy of Chapman’s Homer which he found in the sands. For the rest of his days, Ford was nagged by unsatisfied curiosity about who had abandoned his Chapman amid the detritus of the beaches.

Though the Royal Navy’s achievement at Dunkirk embraced its highest traditions, many men noted only the chaos. ‘It does seem to me incredible that the organisation of the beach work should have been so bad,’ wrote Lt. Robert Hichens of the minesweeper Niger, though he admired the absence of panic among embarking soldiers.

We were told that there would be lots of boats and that the embarkation of the troops would all be organised…That was what all the little shore boats were being brought over from England for…One can only come to the conclusion that the civilians and small boats packed up and went home with a few chaps instead of staying there to ferry to the big ships which was their proper job. As for the shore organisation, it simply did not exist…It makes one a bit sick when one hears the organisers of the beach show being cracked up to the skies on the wireless and having DSOs showered upon them, because a more disgraceful muddle and lack of organisation I have never seen…If a few officers had been put ashore with a couple of hundred sailors…the beach evacuation would have been a different thing…When the boats were finally hoisted I found that I was very tired and very hoarse as well as soaking wet. So I had a drink and then changed. I had an artillery officer in my cabin who was very interesting. They all seem to have been very impressed by the dive bombers and the vast number of them, and by the general efficiency of the German forces. The soldiers are not very encouraging, but they were very tired which always makes one pessimistic, and they had been out of touch for a long time. This officer did not even know that Churchill had replaced Chamberlain as Premier.

Pownall arrived in London from France to describe to the defence committee on 30 May Gort’s plans for holding the Dunkirk perimeter. ‘No one in the room,’ wrote Ian Jacob of the war cabinet secretariat, ‘imagined that they could be successful if the German armoured divisions supported by the Luftwaffe pressed their attack.’ It was, of course, a decisive mercy that no such attack was ‘pressed’. In the course of the Second World War, victorious German armies displayed a far more consistent commitment to completing the destruction of their enemies when opportunity offered than did the Allies in similarly advantageous circumstances. Dunkirk was an exception. Most of the BEF escaped not as a consequence of Hitler’s forbearance, but through a miscellany of fortuities and misjudgements. Success beyond German imagination created huge problems of its own. Commanders’ attention was fixed upon completing the defeat of Weygand’s forces, of which large elements remained intact. The broken country around Dunkirk was well suited to defence. The French First Army, south of the port, engaged important German forces through the critical period for the BEF’s escape, a stand which received less credit from the British than it deserved.

On 24 May von Rundstedt, commanding Army Group A, ordered his Panzers, badly in need of a logistical pause, not to cross the Aa canal and entangle themselves with British ‘remnants’, as Gort’s army was now perceived. Hitler supported his decision. He was amenable to Goering’s eagerness to show that his aircraft could complete the destruction of the BEF. Yet, in the words of the most authoritative German history, ‘The Luftwaffe, badly weakened by earlier operations, was unable to meet the demands made on it.’ In the course of May, Goering’s force lost 1,044 aircraft, a quarter of them fighters. Thanks to the efforts of the RAF’s Fighter Command over Dunkirk, the German Fourth Army’s war diary recorded on the 25th: ‘The enemy has had air superiority. This is something new for us in this campaign.’ On 3 June the German air effort was diverted from Dunkirk, to increase pressure on the French by bombing targets around Paris.

Almost the entire RAF Air Striking Force was reduced to charred wreckage, strewn the length of northern France. It scarcely seemed to the Germans to matter if a few thousand British troops escaped in salt-stained battledress, when they left behind every tool of a modern army – tanks, guns, trucks, machine-guns and equipment. Hitler’s failure to complete the demolition of the BEF represented a historic blunder, but an unsurprising one amid the magnitude of German triumphs and dilemmas in the last days of May 1940. The Allies, with much greater superiority, indulged far more culpable strategic omissions when they returned to the Continent for the campaigns of 1943–45.

Ian Jacob was among those impressed by the calm with which Churchill received Pownall’s Dunkirk situation report of 30 May. Thereafter, the war cabinet addressed another budget of French requests: for troops to support them on the Somme front; more aircraft; concessions to Italy; a joint appeal to Washington. Churchill interpreted these demands as establishing a context for French surrender, once Britain had refused them. The decision was taken to withdraw residual British forces from north Norway. The prime minister determined to fly again to Paris to press France to stay in the war, and to make plain that Britain would dissociate itself from any parley with Germany mediated by the Italians. Next morning, as Churchill’s Flamingo took off from Northolt, he knew that 133,878 British and 11,666 Allied troops had been evacuated from Dunkirk.

The prime minister’s old friend Sir Edward Spears, viewed by his fellow generals as a mountebank, was once more serving as a British liaison officer with the French, a role he had filled in World War I. Spears, waiting at Villacoubray airfield to meet the party, was impressed by the prime minister’s imposture of gaiety. Churchill poked the British officer playfully in the stomach with his stick, and as ever appeared stimulated by finding himself upon the scene of great events. He beamed upon the pilots of the escorting Hurricanes which had landed behind him, was driven into Paris for lunch at the British embassy, then went to see Reynaud at the Ministry of War.

Amid the gloom that beset all France’s leaders, gathered with her prime minister, Pétain and Admiral Jean François Darlan showed themselves foremost in despair. As Ismay described it: ‘A dejected-looking old man in plain clothes shuffled towards me, stretched out his hand and said: “Pétain.” It was hard to believe that this was the great Marshal of France.’ The rationalists, as they saw themselves, listened unmoved to Churchill’s outpouring of rhetoric. He spoke of the two British divisions already in north-western France, which he hoped could be further reinforced to assist in the defence of Paris. He described in dramatic terms the events at Dunkirk. He declared in his extraordinary franglais, reinforced by gestures, that French and British soldiers would leave arm in arm – ‘partage – bras dessus, bras dessous’. On cabinet orders, Gort was to quit Dunkirk that night. If, as expected, Italy entered the war, British bomber squadrons would at once strike at her industries. Churchill beamed once more. If only France could hold out through the summer, he said, all manner of possibilities would open. In a final surge of emotion, he declared his conviction that American help would come. Thus this thirteenth meeting of the Allied Supreme War Council concluded its agenda.

Reynaud and two other ministers were guests for dinner that night at the palatial British embassy in the rue Saint-Honoré. Churchill waxed lyrical about the possibility of launching striking forces against German tank columns. He left Paris next morning knowing he had done all that force of personality could achieve to breathe inspiration into the hearts of the men charged with saving France. Yet few believed a word of it. The Allies’ military predicament was irretrievably dire. It was impossible to conceive any plausible scenario in which Hitler’s armies might be thrown back, given the collapse of French national will.

Paul Reynaud was among a handful of Frenchmen who, momentarily at least, remained susceptible to Churchill’s verbiage. To logical minds, there was an absurdity about almost everything the Englishman said to ministers and commanders in Paris. Britain’s prime minister paraded before his ally his own extravagant sense of honour. He promised military gestures which might further weaken his own country, but could not conceivably save France. He made wildly fanciful pledges of further military aid, though its impact must be insignificant. Britain’s two divisions in the north-west were irrelevant to the outcome of the battle, and were desperately needed to defend the home island. But Churchill told the war cabinet in London on 1 June that more troops must be dispatched across the Channel, with a suitable air component. Even as the miracle of Dunkirk unfolded, he continued to waver about dispatching further fighters to the Continent. He trumpeted the success of the RAF in preventing the Luftwaffe from frustrating the evacuation, which he declared a splendid omen for the future.

Chamberlain and Halifax urged against sending more men to France, but Churchill dissented. He felt obliged to respond to fresh appeals from Reynaud. He envisaged a British enclave in Brittany, a base from which the French might be inspired and supported to maintain ‘a gigantic guerrilla…The B.E.F. in France must immediately be reconstituted, otherwise the French will not continue in the war.’ Amid the dire shortage of troops, he committed to France 1st Canadian Division, which had arrived in Britain virtually untrained and unequipped. The prime minister told one of the British generals who would be responsible for sustaining the defence of north-west France that ‘he could count on no artillery’. An impromptu new ‘division’ was created around Rouen from lines of communications personnel equipped with a few Bren and antitank guns which they had never fired, and a single battery of field artillery that lacked dial sights for its guns. Until Lt.Gen. Alan Brooke, recently landed from Dunkirk, returned to France on 12 June, British forces there remained under French command, with no national C-in-C on the spot.

By insisting upon resumption of an utterly doomed campaign, Churchill made his worst mistake of 1940. It is unsurprising that his critics in the inner circle of power were dismayed. The strength of Churchill’s emotions was wonderful to behold. But when sentiment drove him to make deployments with no possibility of success, he appalled his generals, as well as the old Chamberlainite umbrellamen. Almost every senior civilian and uniformed figure in Whitehall recognised that the Battle of France was lost. Further British commitments threatened to negate the extraordinary deliverance of Dunkirk. The Air Staff closed ranks with Halifax, Chamberlain and others to resist Churchill’s demands that more fighters should be sent to France, in addition to the three British squadrons still operating there. On the air issue, Churchill himself havered, then reluctantly gave way. This was the first of many occasions on which he mercifully subordinated his instincts to the advice of service chiefs and colleagues. Chamberlain and Halifax were not wrong about everything. The moral grandeur in Churchill’s gestures towards his ally in the first days of June was entirely subsumed by the magnitude of France’s tragedy and Britain’s peril.

The Dunkirk evacuation approached a conclusion on 4 June, by which time 224,328 British troops had been evacuated, along with 111,172 Allied troops, most of whom subsequently elected to be repatriated to France rather than fight on as exiles. For thirty-five minutes that afternoon, Churchill described the operation to the Commons, concluding with some of his greatest phrases: ‘We shall fight on the beaches, we shall fight on the landing grounds, we shall fight in the fields and in the streets, we shall fight in the hills, we shall never surrender.’

That evening he found time to dispatch brief notes, thanking the King for withdrawing his objections to Brendan Bracken’s membership of the Privy Council on the grounds of character; and to former prime minister Stanley Baldwin, expressing appreciation for a letter offering good wishes. Churchill apologised for having taken a fortnight to respond. ‘We are going through v[er]y hard times & I expect worse to come,’ he wrote; ‘but I feel quite sure better days will come; though whether we shall live to see them is more doubtful. I do not feel the burden weigh too heavily, but I cannot say that I have enjoyed being Prime Minister v[er]y much so far.’

The German drive on Paris began on 5 June. Anglo–French exchanges in the days that followed were dominated by increasingly passionate appeals from Reynaud for fighters. Five RAF squadrons were still based in France, while four more were operating from British bases. The war cabinet and chiefs of staff were united in their determination to weaken Britain’s home defence no further. On 9 June, Churchill cabled to South African premier Jan Smuts, who had urged the dispatch of more aircraft, saying: ‘I see only one sure way through now, to wit, that Hitler should attack this country, and in so doing break his air weapon. If this happens he will be left to face the winter with Europe writhing under his heel, and probably with the United States against him after the Presidential election is over.’ The Royal Navy was preoccupied with fears about the future of the French fleet. Admiral Sir Dudley Pound, the First Sea Lord, declared that only its sinking could ensure that it would not be used by the Germans.

Yet perversely, and indeed indefensibly, Churchill continued to dispatch troops to France. The draft operation order for 1st Canadian Division, drawn up as it embarked on 11 June, said: ‘The political object of the re-constituted BEF is to give moral support to the French Government by showing the determination of the British Empire to assist her ally with all available forces…It is the intention…to concentrate…in the area North and South of Rennes…A division may have to hold 50 miles of front.’ At a meeting of ministers in London that day, Dill was informed that a study was being undertaken for the maintenance of a bridgehead in Brittany, ‘the Breton redoubt’. As late as 13 June, Royal Engineers were preparing reception points and transit camps on the Brittany coast, to receive further reinforcements from Britain.

Churchill recognised the overwhelming likelihood of French surrender, yet still cherished hopes of maintaining a foothold across the Channel. It seemed to him incomparably preferable to face the difficulties of clinging on in France, rather than those of mounting from Britain a return to a German-defended coast. He sought to sustain French faith in the alliance by the deployment of a mere three British divisions. He seemed unmoved by Mussolini’s longexpected declaration of war on 10 June, merely remarking to Jock Colville: ‘People who go to Italy to look at ruins won’t have to go as far as Naples and Pompeii again.’ The private secretary noted his master’s bitter mood that day. On the afternoon of 11 June, Churchill flew with Eden, Dill, Ismay and Spears to the new French army headquarters at Briare on the Loire, seventy miles from Paris, to meet the French government once again. The colonel who met their plane, wrote Spears, might have been greeting poor relations at a funeral. At their destination, the Château du Muguet, there was no sense of welcome. At that evening’s meeting of the Supreme War Council, after the French had unfolded a chronicle of doom, Churchill summoned all his powers. He spoke with passion and eloquence about the forces which Britain could deploy in France in 1941 – twenty, even twenty-five divisions. Weygand said dismissively that the outcome of the war would be determined in hours, not days or weeks. Dill, pathetically, invited the supreme commander to use the makeshift British forces now in France wherever and however he saw fit.