26 J.-A. PEMBERTON
on constitutional means of law enforcement.^85 Yet in the view of Sir
James Arthur Salter, the former director of the Economic and Financial
Section of the LON who was among the members of the audience at
Chatham House on the occasion of Toynbee’s presentation, Toynbee
was in fact advocating that having failed to secure peace by means of
collective security as most recently demonstrated by the Italian aggres-
sion, the alternative route of peaceful change must be followed.^86 Salter
was correct in his assessment that Toynbee was putting forward peace-
ful change as an alternative to change wrought by violent means rather
than as an expression of good-will in response to requests for changes to
the status quo which are reasonable and have justice on their side. This
is demonstrated by the fact that although Toynbee described Bulgaria,
Hungary and Lithuania as dissatisfied by states in his paper, he chose to
ignore their grievances therein because unlike Germany, Italy and Japan
they lacked the ‘strength to bring about violent changes by their own
unaided efforts.’^87
In countering Toynbee’s approach to the question, Salter insisted that
while peaceful change was ‘necessary supplement to collective security...
it was no substitute’: peaceful change is ‘subsequent rather than prior to
collective security’ as it presupposes the renunciation of violence.^88 Salter
declared that to undertake change in order to placate those who would
otherwise engage in acts of violence, was to trample all over the collec-
tive security system and the principle on which it was based: there shall
be no wars of aggression. Echoing an observation that Toynbee himself
(^85) Ibid., 27. See also Esko Anatola, ‘Theories of Peaceful Change: An Excursion to the
Study of Change in International Relations in the 1930s,’ Cooperation and Conflict 19, no.
4 (1984): 235–50, 240.
(^86) James Arthur Salter, 1935, quoted in Toynbee, ‘Peaceful Change or War? The Next
Stage in the International Crisis,’ 50.
(^87) Toynbee, ‘Peaceful Change or War? The Next Stage in the International Crisis,’ 38.
(^88) Salter, 1935, quoted in Toynbee, ‘Peaceful Change or War? The Next Stage in the
International Crisis,’ 50. In a discussion of the future of the LON at Chatham House in
1936, Elsewhere Salter endorsed the general idea of peaceful change: ‘As the world and its
conditions change it is perfectly clear that no system for the collective restraint of aggres-
sion can possibly stand the strain to which it will be subjected unless there is going on
all the time a process by which the resulting strains can be eased by modifications of the
status quo.’ James Arthur Salter, 1936, quoted in C. A. W. Manning, ‘Some Suggested
Conclusions,’ in C. A. W. Manning, ed., Peaceful Change: An International Problem (New
York: Garland Publishing, 1972), 171. Reprint of the 1937 edition.