authorities have traced the beginnings of modern diplomacy to a conscious imitation of her legatine system.[1]
It is, however, in Venice, that the origins of modern diplomacy are to be sought.[2] So early as the 13th century the republic, with a view to safeguarding the public interests, began to lay down a series of rules for the conduct of its ambassadors. Thus, in 1236, envoys to the court of Rome are forbidden to procure a benefice for anyone without leave of the doge and little council; in 1268 ambassadors are commanded to surrender on their return any gifts they may have received, and by another decree they are compelled to take an oath to conduct affairs to the honour and advantage of the republic. About the same time it was decided that diplomatic agents were to hand in, on their return, a written account of their mission; in 1288 this was somewhat expanded by a law decreeing that ambassadors were to deposit, within fifteen days of their return, a written account of the replies made to them during their mission, together with anything they might have seen or heard to the honour or in the interests of the republic. These provisions, which were several times renewed, notably in 1296, 1425 and 1533, are the origin of the famous reports of the Venetian ambassadors to the senate, which are at once a monument to the political genius of Venetian statesmen and a mine of invaluable historical material.[3]
These are but a few examples of a long series of regulations, many others also dating to the 13th century, by which the Venetian government sought to systematize its diplomatic service. That permanent diplomatic agencies were not established by it earlier than was the case is probably due to the distrust of its agents by which most of this legislation of the republic is inspired. In the 13th century two or three months was considered over-long a period for an ambassador to reside at a foreign court; in the 15th century the period of residence was extended to two years, and in the 16th century to three. This latter rule continued till the end of the republic; the embassy had become permanent, but the ambassador was changed every three years.
The origin of the change from temporary to permanent missions has been the subject of much debate and controversy. The theory that it was due, in the first instance, to the evolution of the Venetian consulates (bajulats) in the Levant into permanent diplomatic posts, and that the idea was thence transferred to the West, is disproved by the fact that Venice had established other permanent embassies before the baylo (q.v.) at Constantinople was transformed into a diplomatic agent of the first rank. Nor is the first known instance of the appointment of a permanent ambassador Venetian. The earliest record[4] is contained in the announcement by Francesco Sforza, duke of Milan, in 1455, of his intention to maintain a permanent embassy at Genoa[5]; and in 1460 the duke of Savoy sent Eusebio Margaria, archdeacon of Vercelli, as his permanent representative to the Curia.[6] Though, however, the early records of such appointments are rare, the practice was probably common among the Italian states. Its extension to countries outside Italy was a somewhat later development. In 1494 Milan is already represented in France by a permanent ambassador. In 1495 Zacharia Contarini, Venetian ambassador to the emperor Maximilian, is described by Sanuto (Diarii, i. 294) as stato ambasciatore; and from the time of Charles V. onwards the succession of ambassadors of the republic at the imperial court is fairly traceable. In 1496 “as the way to the British Isles is very long and very dangerous,” two merchants resident in London, Pietro Contarini and Luca Valaressa, were appointed by the republic subambasciatores; and in June of the same year Andrea Trevisano arrived in London as permanent ambassador at the court of Henry VII.[7] Florence, too, from 1498 onwards, was represented at the courts of Charles V. and of France by permanent ambassadors.
During the same period the practice had been growing up among the other European powers. Spain led the way in 1487 by the appointment of Dr Roderigo Gondesalvi de Puebla as ambassador in England. As he was still there in 1500, the Spanish embassy in London may be regarded as the oldest still surviving post of the new permanent diplomacy. Other states followed suit, but only fitfully; it was not till late in the 16th century that permanent embassies were regarded as the norm. The precarious relations between the European powers during the 16th century, indeed, naturally retarded the development of the system. Thus it was not till after good relations had been established with France by the treaty of London that, in 1519, Sir Thomas Boleyn and Dr West were sent to Paris as resident English ambassadors, and, after the renewed breach between the two countries, no others were appointed till the reign of Elizabeth. Nine years before, Sir Robert Wingfield, whose simplicity earned him the nickname of “Summer-shall-be-green,” had been sent as ambassador to the court of Charles V., where he remained from 1510 to 1517; and in 1520 the mutual appointment of resident ambassadors was made a condition of the treaty between Henry VIII. and Charles V. In 1517 Thomas Spinelly, who had for some years represented England at the court of the Netherlands, was appointed “resident ambassador to the court of Spain,” where he remained till his death on the 22nd of August 1522. These are the most important early instances of the new system. Alone of the great powers, the emperor remained permanently unrepresented at foreign courts. In theory this was the result of his unique dignity, which made him superior to all other potentates; actually it was because, as emperor, he could not speak for the practically independent princes nominally his vassals. It served all practical purposes if he were represented abroad by his agents as king of Spain or archduke of Austria.
All the evidence now available goes to prove that the establishment of permanent diplomatic agencies was not an unconscious and accidental development of previous conditions, but deliberately adopted as an obvious convenience. But, while all the powers were agreed as to the convenience of maintaining such agencies abroad, all were equally agreed in viewing the representatives accredited to them by foreign states with extreme suspicion. This attitude was abundantly justified by the peculiar ethics of the new diplomacy. The old “orators” of the Summer-shall-be-green type could not long hold their own against the new men who had studied in the school of Italian statecraft, for whom the end justified the means. Machiavelli had gathered in The Prince and The Discourses on Livy the principles which underlay the practice of his day in Italy; Francis I., the first monarch to establish a completely organized diplomatic machinery, did most to give these principles a European extension. By the close of the 16th century diplomacy had become frankly “Machiavellian,” and the ordinary rules of morality were held not to apply to the intercourse between nations. This was admitted in theory as well as in practice. Germonius, after a vigorous denunciation of lying in general, argues that it is permissible for the safety or convenience (commodo) of princes, since salus populi suprema lex, and quod non permittit naturalis ratio, admittit civilis; and he adduces in support of this principle the answer given by Ulysses to Neoptolemus, in the Ajax of Sophocles, and the examples of Abraham, Jacob and David. Paschalius, while affirming that an ambassador must study to speak the truth, adds that he is not
- ↑ For this see Hinschius, Kirchenrecht, i. p. 498.
- ↑ The Venetians, however, in their turn, doubtless learned their diplomacy originally from the Byzantines, with whom their trade expansion in the Levant early brought them into close contact. For Byzantine diplomacy see Roman Empire, Later : Diplomacy.
- ↑ See Eugenio Albèri, Le Relazioni degli ambasciatori Veneti al senato, 15 vols. (Florence, 1839–1863).
- ↑ The apocrisiarii (ἀποκρισιάριοι) or responsales should perhaps be mentioned, though they certainly did not set the precedent for the modern permanent missions. They were resident agents, practically legates, of the popes at the court of Constantinople. They were established by Pope Leo I., and continued until the Iconoclastic controversy broke the intimate ties between East and West. See Luxardo, Das vordekretalische Gesandtschaftsrecht der Päpste (Innsbruck, 1878); also Hinschius, Kirchenrecht, i. 501.
- ↑ N. Bianchi, Le Materie politiche relative all’ estero degli archivi di stato piemontese (Bologna, Modena, 1875), p. 29.
- ↑ Ib. Note 2, teneamus et deputemus ibidem continue mansurum.
- ↑ The first ambassador of Venice to visit England was Zuanne da Lezze, who came in 1319 to demand compensation for the plundering of Venetian ships by English pirates.
