ILARIA POGGIOLINI Italian Revisionism: Status and Security Problems 1943-1956
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ILARIA POGGIOLINI Italian Revisionism: Status and Security Problems 1943-1956 in ROLF AHMANN, ADOLF M. BIRKE, AND MICHAEL HOWARD (eds.), The Quest for Stability: Problems of West European Security 1918-1957 (Oxford: Oxford University Press, 1993) pp. 327-359 ISBN: 978 0 19 920503 5 The following PDF is published under a Creative Commons CC BY-NC-ND licence. Anyone may freely read, download, distribute, and make the work available to the public in printed or electronic form provided that appropriate credit is given. However, no commercial use is allowed and the work may not be altered or transformed, or serve as the basis for a derivative work. The publication rights for this volume have formally reverted from Oxford University Press to the German Historical Institute London. All reasonable effort has been made to contact any further copyright holders in this volume. Any objections to this material being published online under open access should be addressed to the German Historical Institute London. DOI: Italian Revisionism: Status and Security Problems 1943-1956 ILARIA POGGIOLINI TWO DISILLUSIONMENTS: I 9 I 9 AND I 943 Italian expectations were fulfilled neither by the post-war settlement of 1919, nor by that of 1947. As a victorious power in 1919 and as a defeated nation in 1947, Italy experienced a strong feeling of resentment against the foremost actors of peace negotiations. This resentment was the result of frustrated expectations and twice gave rise to revisionist policies in the post-war years. Both in the inter-war period and after the Second World War, the first step towards revisionism was the disappoint- ment of peacetime expectations. In 1919 these expectations had been built on the promises of territorial aggrandizement laid down in the London Pact of 26 April 1915. 1 There was less reason for optimism after Italy's unconditional surrender in 1943. However, with the fall of the Fascist regime and 1 According to the London Pact, Italy was supposed to receive the South Tyrol and the country of Gorizia-Gradisca (already promised in part by the Central Powers), plus Trieste, Istria, and parts ofCarinthia, Carniola, and Dalmatia. Italy was also granted a free hand in Albania and equal participation in the partition of Turkish possessions and German colonies, if any. In return Italy pledged herself to enter the war on the side of the Entente powers in a month; see R. Albrecht-Carrie, Italy and the Paris Peace Conference (New York, 1938). A NATO fellowship (1987-8) to pursue research on Italian revisionism and security problems after the Second World War enabled the basic work on this topic to be undertaken. I remain extremely grateful to this institution for the financial support provided. An article by E. T. Smith on a related topic ('From Disarmament to Rearmament: the United States and the Revision of the Italian Peace Treaty of 1947', Diplomatic History, 13 (1989), 359-82) appeared too late to be taken into consideration in this essay. I. POGGIOLINI Italy's 'cobelligerency' on the side of the Allied powers,2 Italian expectations were directly related to Allied promises of a 'just peace'. Yet the process of translation from disillusionment to the elaboration of a coherent revisionist policy was different after each world war. After the First World War, during the political agony of the liberal state, Italian leaders were constantly under internal political pressure. The Italians felt that their victory-as the poet d' Annunzio said-had been 'mutilated' both by Wilson's crusade against secret diplomacy and by the lack of support from the Entente powers.3 The general feeling of dissatisfaction with the peace settle- ment focused largely on the issue of the halo-Yugoslav border.4 At the peace negotiations, in fact, Italy had demanded the enforcement of the London Pact and had put forward an additional demand for Fiume (Rijeka). After a direct clash between delegates from Italy and from the other victorious powers, the Paris Conference ended with the question of the halo-Yugoslav border unresolved. It was only after Italy signed the Treaty of Rapallo with Yugoslavia on 12 November 1920 that she gained the entire Giulian Region, while Dalmatia went to Yugoslavia. According to the peace settlement the city of Fiume, although under d' Annunzio's control, was to become an independent state. Under Mussolini-after the Treaty of Rome with Yugoslavia of 27 January 1924-Fiume came under Italian sovereignty. But there was good reason for internal disappointment concerning Italian interests in Africa and Asia Minor after the peace negotiations. Italy 2 E. Aga Rossi, L'ltalia nella sconfitta: politica interna e situazione interna;:ionale durante la seconda guma mondiale (Naples, 1985); B. Arcidiacono, 'Le Precedent italien' et Les origines de la guerrefroide: Les Allies et ['occupation de l'ltalie 1943-1944 (Brussels, 1984); E. Di Nolfo, 'L'armistizio dell'8 settembre come problema internazionale', Otto Settembre 1943: l'armistizio italiano 40 anni dopo (Rome, 1985), 65-82. 3 F. D'Amoja, 'La politica estera italiana da Caporetto alla Conferenza della Pace', Archivio Storico Messinese (1969-71), 55-130; B. Cialdea, 'La sicurezza europea e la pace del 1919-1921, Storia e Politica, 13 (1974), 546-81; G. Rumi, Alie origini delta politica estera fascista (1918-1923) (Bari, 1968); G. Rochat, L'ltalia nella prima guerra mondiale: problemi di interpreta;:ione e prospettive di ricerca (Milan, 1966). 4 D. I. Rusinow, Italy's Austrian Heritage 1919-1946 (Oxford, 1969); L. Valiani, La dissolu;:ione dell'Austria-Ungheria (Milan, 1966). Italian Revisionism neither gained more power, nor obtained control of the new Albanian state. Despite the many issues unsatisfactorily resolved for the Italians, Fiume was the major 'emotional factor'. 5 Between d'Annunzio's occupation of the city and the final settle- ment under Mussolini, de facto and de jure policies were not reconciled. However, the Fiume affair and Mussolini's subsequent policy of aggression and conciliation did not aim to attain a wide range of revisionist goals. It was only between 1925 and 1933 that Mussolini took a stand on the controversy over the peace treaties of 1919-20, with the result that revisionism become an issue.6 But Fascist revisionism did not establish itself as a means of non-fulfilment of treaty obligations. Nor did it go further than supporting the minor revisionist powers against the French security system.7 Mussolini argued that Italian revisionism would pursue international stability by means of peaceful change. Indeed, Italy was not in a position to gain from the actual revision of the peace treaties. As soon as Hitler seized power in Germany, in fact, Fascist revisionism clearly revealed its political inconsistency.8 It lost its autonomous anti-French character and its aim of controlling Balkan revisionism, and became instrumental to the re- emergence of Germany. The Second World War and the fall of Fascism put a dramatic end both to Italy's inter-war revisionism and to her expansionist goals. With the dissolution not only of the regime but also of the state and the army, and the monarchy itself compromised, Italy was the first enemy country which was forced to surrender 'unconditionally', in 1943. Although this surrender left no shadow of doubt about the condition of the country, Italy's declaration of war on Germany, her 5 See Albrecht-Carrie, ltal, and the Paris Peace Conference, w3, also quoted in B. C. Novak, Trieste r941-i954 (Chicago, 1970), 30. See also Novak's interesting comparative remarks on Italy's policy towards Fiume and Trieste after the Second World War, ibid. 6 L. H. Burgwyn, II revisionismo fascista: la sfida di Mussolini alle grandi potenze nei Balcani e sul Danubio 1925-1933 (Milan, 1979). 7 E. Di Nolfo, 'II revisionismo nella politica estera di Mussolini', ll politico, 1 (1i54), 18. R. De Felice, Mussolini e Hitler: i rapporti segreti 1922-1933 (Florence, 1983). I. PoaGIOLINI 'cobelligerency', and the ambivalent attitude of the United States produced an ambiguous situation, which was only to become more so in the course of the following year. The Italian government, subjected to rigid limitations under the armistice, succeeded in gaining diplomatic recognition, with the support of the Soviet Union, which had been excluded from the occupation of Italy. The British preliminary peace plan faded because of opposition to Bonomi (Badoglio's successor), while the Americans, although not against the new government, kept postponing decisions concerning Italy's future status. The 'New Deal for Italy' elaborated by Churchill and Roosevelt at the end of the year officially brought Allied policy into line, promising support to the Italian government but also excluding any substantial change in the armistice regime.9 By the end of January 1945, Italy was again experiencing feelings of resentment against the victorious powers. The protagonists of the occupation policy were aware of the profound differences in the way they perceived Italy's role and needs. This divergence of views and the mutual lack of understanding between Washington and London would have escalated endlessly if the British economic situation and the problem of relations with the Soviet Union had not persuaded both parties to avoid a direct clash of opinion. 10 Between Potsdam and Moscow, inter-Allied peace diplo- macy addressed the question of whether the Italian settlement was to take priority over those of Germany's ex-satellites. Italy expected that if the Italian case was given priority, the country's future would soon be clarified. But the untimely breakdown of the Council of Foreign Ministers (CFM) set up by the Conference of Potsdam left Italy with no indications of what her position in international relations was supposed to be. Furthermore, the following sessions of the CFM in the spring and summer of 1946 witnessed-against the 9 E.