policy, which is the substance, and diplomacy proper, which is the process by which it is carried out. This confusion exists not only in the popular mind, but even in the writings of historians who might be expected to practise a better discernment. Policy is the concern of governments. Responsibility therefore belongs to the Secretary of State who directs policy and appoints the agents of it. But the constitutional doctrine of ministerial responsibility is not an unvarying reality. No one will maintain that Lord Cromer's success in Egypt was due to the wisdom of Whitehall, or to anything but his own sterling qualities. Nor can a just judgment of our recent Balkan diplomacy fail to assign a heavy share of the blame to the incompetence of more than one 'man on the spot.' The truth is, that the whole system, of which, in their different measure, Downing Street and the embassies abroad are both responsible parts, is not abreast of the needs of the time, and will not be until Callières's excellent maxims become the common practice of the service.
These maxims are to be found in the little book of which a free translation is here presented. François de Callières treats diplomacy as the art
