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DIPLOMACY IN A WHIRLPOOL |
The Plight of Satellite Diplomacy.
In the face of the growing assertiveness of Hungarian independence, the
Germans whipped up interest in the formation of a Rumanian-Croat-Slovak bloc
against Hungary. Hungary's relations with the two German protected puppet
states, Tiso's Slovakia and Pavelic's Croatia, were, to put it mildly,
unfriendly, and relations with Rumania were even worse, having several times
approached the point of a severance of diplomatic relations. Both Hungary and
Rumania were manifestly preparing for a private showdown at the end of the
general war, if not sooner.
As first secretary of our Bucharest legation, in 1942 I had a special
assignment regarding the affairs of the Hungarian minority in southern
Transylvania. Thus I witnessed the Antonescu regime apply ruthless
discriminatory measures against members of the Hungarian minority group.
Thousands of tragic cases accumulated in the files of our legation and
consulates. Diplomatic protests had no result whatever. The Rumanian
Government on their part complained about the persecution of the Rumanians in
northern Transylvania. The whole situation seemed utterly confused and
hopeless.
Hitler himself envisaged the war between Hungary and Rumania but desired to
postpone it. He explained his views on the matter to Mussolini, recalling how
he had stated to the Rumanians and Hungarians that:
if, at all costs, they wanted to wage war between themselves, he would not
hinder them, but they would both lose by it. However, it would be a problem if
both countries now withheld petroleum for the war which they wanted to fight
between themselves later. It would be the duty of the Foreign Ministers of the
Axis to deal with both countries persuasively and calmly so as to prevent an
open break.50
In order to avoid an open conflict in the Axis camp, Berlin and Rome decided,
in the summer of 1942, to appoint an Italo-German commission headed by a
German and an Italian plenipotentiary minister (Hencke and Ruggieri) to study
the complaints of the Hungarian minority in southern Transylvania and those of
the Rumanian minority in northern Transylvania. The commission spent almost
two months in Transylvania, investigated hundreds of individual cases, and
prepared a long report which recommended several measures to the Hungarian and
Rumanian governments aimed at ameliorating the situations of their respective
minorities. Moreover, Italo-German military commissions were established in
northern and southern Transylvania. These watchdog
64
commissions informed the German and Italian governments of the troubles in
Transylvania and tried to improve the situation of the minorities by means of
direct intervention with the local authorities.
Such Italo-German conciliatory efforts proved to be superficial palliatives
and the Germans supported the Rumanians almost openly. The weakening of
Hungary, as recommended by the German General Staff in 1938,51 remained the
constant goal of German foreign policy. This policy was strengthened in
Hungarian-Rumanian relations by the fact that Rumania had a strategic key
position in the war against Soviet Russia, had carried out a full
mobilization, and in general had contributed to the German war efforts
incomparably more than Hungary. In addition Hitler disliked the Hungarians,
and had a great liking for the Rumanian dictator, Antonescu. As Hitler's
interpreter later was to put it, Antonescu was "one of Hitler's closest
intimates and was even kept more closely in the picture than Mussolini. He was
the only foreigner from whom Hitler ever asked for military advice when he was
in difficulties. . . . He made long speeches just like Hitler, usually starting
off at the creation of Rumania, and somehow relating everything he said to the
hated Hungarians, and the recovery of Transylvania. This hatred of Hungary,
too, made him congenial to Hitler, for the Fuehrer despised the Magyars".52
Antonescu indicated to the Fuehrer his determination to recover northern
Transylvania by force of arms and "Hitler took a secret pleasure in
Antonescu's outbursts against the Hungarians, and even went so far as to hint
that he might perhaps give him a free hand later in his plans of
conquest".53
Surrounded again by a sort of revived Little Entente, which was protected
this time by Germany, the Hungarian Government, on its part, tried again to
rely on Italy. This policy was bound to fail because Italy gradually declined
to the status of Hitler's vassal and Mussolini decided to fight along with
Hitler until the very last. Despite several disappointments the Hungarians
tried to win Italy's support because they saw no other alternative.
For these reasons, the Hungarian Government sought time and again to explore
tentatively the possibilities of electing an Italian king.54 The advanced age
of the Regent was another reason for such soundings. The Duke of Aosta, cousin
of Victor Emmanuel III, and a possible candidate of the Hungarian Government
for the throne of St. Stephen, became seriously ill and died in March, 1942.
Meanwhile, the son of Regent Horthy, Stephen, was elected deputy Regent. The
right of succession was not attached to this position, but Stephen Horthy
might have been elected as Regent in case of vacancy. He was notoriously
anti-Nazi and his election was strongly opposed by Germany and the rightist
Hungarian
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politicians. Stephen Horthy, however, soon disappeared from the political
scene. In August, 1942, the day before he was scheduled to return to Budapest,
he was killed in a mysterious airplane accident at the Russian front behind
the Hungarian lines. The Hungarians then reverted to the Italian solution and
endeavored to strengthen Hungary's independence with the establishment of a
personal union with Italy under King Victor Emmanuel. But the Duce reacted
adversely to this plan, saying that he had entertained a similar proposition
in regard to the Duke of Aosta, "but with him dead, nothing else will be
done".55
Prime Minister Kallay was anxious to clarify personally the delicate
political problems in Rome, and arranged for a trip to Italy in November of
1942. This was postponed by Mussolini because of the collapse of the Libyan
front. "In fact, this is not the time to welcome any guest," remarked Ciano.56
Eventually Kallay visited Rome in early April, 1943. The main object of his
visit was to gain Italian support for the policy of resistance to Germany.
Kallay explained to Mussolini that the formation of an anti-Hungarian Little
Entente was being effected under German auspices, and requested support
against it. Mussolini was also informed of the Hungarian determination to send
no more soldiers to Germany for the Russian campaign. Kallay told him of
Hungary's intention to fight the constantly growing German threat with the aid
of the Rome Government. He expounded the idea of creating a bloc in the
Balkans to resist Germany. The Duce, however, seemed to have no interest in
the Hungarian suggestions.
As a matter of fact, events in Italy soon brought the situation to a
conclusion. Italy's exhausted forces were weakened to a point where she was
not even able to press her own interests. After the African campaign the
English and Americans landed in Sicily in July, 1943. Mussolini was forced to
resign, and Marshal Badoglio's government prepared the way for Italy's
surrender. The Italian Armistice Treaty, sigjed on September 3, was published
five days later.
The political division of the Hungarian Foreign Ministry, having received
news of the Italian armistice in the absence of the prime minister and the
foreign minister, immediately set about drafting a government announcement.
This stated that the Tripartite Pact ceased to be valid after the collapse of
Italy, and Hungary had regained her liberty of action. But Kallay and Ghyczy
did not see their way clear to accept this course, for they feared German
reprisals. With the Allies so far removed, both thought it premature to expose
the country to such a test in the absence of the most elementary technical
means necessary for a change of front. To proclaim the termination of the
Tripartite Pact would have undoubtedly provoked an immediate German occupation
66
of Hungary, followed by the total extermination of all anti-Nazi elements and
the complete mobilization, by a puppet government, of all Hungarian material
resources and manpower against the Allies.
As events developed in Italy, the Germans were prepared to press home their
demands. The German minister to Hungary, Dietrich von Jagow, informed Ghyczy
of Hitler's impending message to Mussolini acknowledging the government
constituted by the latter as the only legitimate Italian government. He made
it clear that the German Government awaited a statement expressing a similar
attitude from the Hungarian Government. The Hungarian Government, however, was
reluctant to follow this course, for the Badoglio government appeared to be
the sole legal representative of Victor Emmanuel. After repeated German
pressure, Ghyczy found a compromise solution. In a letter he merely recognized
de facto the Mussolini government,57 an action which infuriated the Germans.
In this confused situation the Foreign Ministry could and did consider
pro-Badoglio members of the Italian Legation staff as accredited
representatives of their country. The situation became more complicated after
the establishment of a pro-Mussolini Legation in Budapest. Two Italian
Legations fought each other. Still, the diplomatic privileges of the Badoglio
diplomats were safeguarded; they were received in the Foreign Ministry, and
the Italian Cultural Institute of Budapest was left in the hands of its former
administrators. Only after the Germans had ousted Kallay's government was the
Institute turned over to Casertano, Mussolini's Minister to Hungary. After the
German occupation of Budapest the SS treated the Royal Italian diplomats
outrageously, "making the members of the so-called Badoglio Legation run
around for hours in the courtyard".58
Kallay's general policy was founded on the supposition that British and
American forces would reach Hungary's frontiers by the beginning of 1944,
possibly at an earlier date. Such a development would have opened the way for
Hungary to join the Allies against Germany. Some contacts were made with the
Allies in 1942, but official talks did not take place before 1943.
The first feeler was in February, 1943. A Hungarian newspaperman, Andrew
Frey, was sent by the Foreign Ministry to establish contact with English and
American diplomats in Istanbul. Subsequently an official of the Foreign
Ministry Laszlo Veress, was dispatched on a special mission to Istanbul, where
he informed the British Embassy of Hungary's determination not to resist the
Allies (should their forces reach the frontiers of Hungary), but to turn
against the Germans. At the same time he transmitted Hungary's request that
Czechoslovak, Rumanian, and Yugoslav troops should not take part in the
occupation of Hungary.
67
The British took cognizance of this information and asked that a staff officer
be sent to discuss the military aspects of the case. Nevertheless, such a
risky step was not undertaken. The Allied forces were still at a great
distance from the boundaries of Hungary.
Talks resumed when Dezso Ujvary was appointed Consul General at Istanbul.
Ujvary and Veress told the British Minister plenipotentiary, Sterndale
Bennett, on August 17, l943, that Hungary was ready to accept the Casablanca
formula for unconditional surrender, and asked Bennett to inform the other
Allied governments of Hungary's decision. Hungary's surrender, of course, was
still regarded as practicable only if the military situation made it
possible.
President Roosevelt and Premier Churchill allegedly received the news of
Hungary's acceptance of the "unconditional surrender" clause at the Quebec
Conference, and the Soviet government was informed shortly thereafter. The
reply was dispatched to the Hungarian government through Sir Hughe
Knatchbull-Hugessen, British ambassador to Turkey. On September 9, 1943, he
received Veress aboard a British ship on the sea of Marmora. The British
statement, made in the name of the three major Allied Powers, suggested how
the Hungarian people could "work their passage home" in the following
manner:
(1) The Hungarian Government was to confirm its August 17 declaration about
Hungary's capitulation, and the acceptance of the Allied conditions;
(2) The capitulation of Hungary was to be kept secret; to be published by the
Allies and by the Hungarian Government at the same time only at a date found
mutually suitable. At the express wish of the Hungarian negotiator, it was
agreed not to publish it, in any case, before the Allies reached the
boundaries of Hungary;
(3) Hungary was to reduce her military cooperation with Germany, step by step,
notably by withdrawing her forces from Russia, and by promoting the passage of
Allied air forces across Hungary to attack German bases;
(4) Hungary gradually was to stop her economic cooperation with Germany,
refusing to carry out her share in German war production;
(5) Hungary was to pledge herself to resist a possible German attempt to
occupy Hungary. To further this object, the Hungarian Army Staff was to be
reorganized to enable the army to cut loose from the Germans, and to attack
them;
(6) Hungary was to surrender all her resources, her transportation system and
her air bases to the Allies, at a given date, to pursue the fight against the
Germans;
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(7) An Allied Military Commission was to land on Hungarian soil, at an
opportune date, to prepare the necessary measures for Hungary's surrender;
(8) A regular radio connection was to be established between the Allies and
the Hungarian government organs. The Allies were to be kept informed about the
German and Hungarian situations. The dispositions and instructions of the
Allies concerning Hungary's moves were to be conveyed in this manner.59
But it did not prove easy to live up to these conditions, the mere
preliminary understandings for an armistice treaty to be concluded when the
Allied forces reached the boundaries of Hungary. Hungary was hemmed in and
controlled by the Germans. Still some important results were achieved.
Through the Hungarian Minister in Lisbon, Andor Wodianer, and Sir Ronald
Campbell, British ambassador to Portugal, Ghyczy confirmed Ujvary's power in
the August 17 notification of Hungary's acceptance of the Casablanca formula
for unconditional surrender.
Allied flying units, in passage over Hungary, were not fired upon or chased
by Hungarian fighter planes. On the contrary, their flights were facilitated
by information about air defense. The demand of the German Army High Command
(September, 1943) that it should be allowed to garrison western Hungary with
five German flying units was firmly refused. The important practical result of
this attitude was, that until German troops occupied the country, Hungarian
territory was not bombed by the British and Americans.
Secret radio connections had been established between Budapest and the Allies
in September, 1943. Veress brought a shortwave transmitter and receiver from
Istanbul. This had been placed in the basement of the Budapest police
headquarters building. At certain hours of the day regular, direct, short-wave
communication, via Istanbul, was maintained with an Allied agency.
The government made repeated efforts to secure the return of all Hungarian
troops from Russia. The Chief of Staff of the Hungarian Army went, on three
occasions, to German Headquarters, under instructions to arrange for the
sending home of Hungarian soldiers from Russia. Hitler did not give a direct
answer. He merely said he would not place any more Hungarian soldiers in the
front lines. At last, on February 9, 1944, Regent Horthy himself wrote to
Hitler, asking for the release of the Hungarian forces. His argument was that
the war's approach to Hungary necessitated their presence at home for the
defense of their country's frontiers.60
After the contacts had been made and maintained in Istanbul,
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further negotiations were undertaken through the Stockholm,61 Lisbon, and
Berne legations. The Stockholm and Berne legation staffs were reorganized to
facilitate strictly confidential parleys. No such changes were necessary in
Lisbon.
To reshuffle the Army Staff was more difficult, and the rearrangements in it
were much less extensive. A reliable military attache, however, was sent to
Istanbul to get in touch with the Allies.
Talks with the emissaries of the United States took place mainly in
Switzerland, and were conducted by the Hungarian Minister to Switzerland, Baron
George Bakach-Bessenyey. A glance at the first contacts will perhaps
characterize the atmosphere of these conversations.
At the end of August, 1943, I was dispatched as diplomatic courier from
Budapest to Geneva where Bakach-Bessenyey had the first secret talks with an
American emissary. I carried instructions for Bessenyey in my diplomatic pouch
through Germany, and was supposed to return with Bessenyey's report containing
the American suggestions.
During my stay in Geneva I contacted several persons in touch with the
Western Allies and the governments-in-exile. I discussed with them the world
situation and the expected fate of Hungary. One of the best informed persons
told me the following: Stalin was no maniac of the Hitler sort. He was too
much the shrewd Georgian peasant to be misled into a downright expansionist
policy, fraught with so many dangers. Thus, the almost certain Russian
occupation of Hungary would be but a temporary measure. Hungary would be
allowed to work out an independent political existence of her own after the
conclusion of the peace treaty. That did not mean, of course, that Soviet
Russia would tolerate an anti-Bolshevist regime in Hungary, of the Horthy
type. No doubt, it would be necessary to reform Hungary's antiquated social
and political system, and to carry out a radical land reform with the
progressive parties of the country, like the Smallholders Party, the Democratic
Party and the Social Democrats, supported on a coalition platform by a
Communist Party.
I was deeply impressed by this opinion, which was expressed in the most
decided manner and shared by other competent persons in contact with Western
circles, and relayed the conversations to Bessenyey. I risked mentioning to
him the possibly dubious value of our parley with the Americans in case of a
Russian occupation of the Danubian area. Bessenyey, instead of arguing, simply
referred me to the map of Europe in our Geneva consulate-general. He pointed
to the Balkans and the Danube Valley with the remark that the Western powers
simply could not afford a Russian domination of this geographically most
important area, the gateway to Western Europe, because it would be more
70
dangerous to their safety than a German victory. With these words Bessenyey
expressed the general conviction of leading Hungarian statesmen and
diplomats.
As was mentioned, during this period the Allied powers pressed the Hungarian
Government to withdraw all Hungarian troops from Russia. At the same time
Hitler urged Hungary to occupy a substantial part of the Balkan peninsula. The
Hungarian Foreign Ministry opposed the acceptance of Hitler's proposal, which
was considered as a further involvement in the war. It was Regent Horthy's
idea that Hungary should combine the two suggestions coming from the opposite
camps. There would be an apparent compliance with Hitler's demands. Hungary
would withdraw her troops from Russia, and Hungarian troops would take part in
the occupation of the Balkans where they would be in a position to surrender
to the advancing Anglo-American armies, and push on against the Germans.
Horthy, like most of the Hungarian statesmen, supposed that the Allied
offensive in the Balkans would soon take place. When Bessenyey explained
Horthy's idea to the American negotiator, the American opposed it most
resolutely. His advice was that Hungary should immediately withdraw her troops
from Russia should not take part in the occupation of the Balkans and should
turn against the Germans as soon as Italy's imminent surrender was announced.
Otherwise, he said, it would be too late to change sides in the war and the
Hungarian nation would share the terrible punishment to be imposed on the
German people.
Bessenyey's report about the Geneva parleys would have badly compromised both
the Kallay government and Regent Horthy if it had fallen into the hands of the
Germans. Since the Nazis were not very discriminating in their choice of means,
I put several small bottles of benzine and some inflammable material into my
pouch containing the reports to facilitate their quick destruction should the
Nazis try to acquire them during my two days transit through Germany. At night
I slept with the pouch under my head, and a cigarette lighter was always at
hand.
I had hardly reached Budapest when the Italian armistice agreement was
published.62 Ghyczy reviewed Hungary's foreign political situation in the
Council of Ministers on September 14, 1943. The Council decided to ask Germany
for the repatriation of all Hungarian troops from Russia and took a stand
against Hungary's participation in any military action on the Balkans.
In Budapest, when I reported the various rumors and hints predicting the
Russian occupation of Hungary, the general reaction was exactly like that of
Bessenyey. The Italian minister in Budapest, a
71
staunch Fascist registered ironically the opinion prevailing in Hungary in the
following manner: "I hear from all quarters: We are expecting an
Anglo-American invasion in the Balkans. The decisive battle will be fought
southeast of Budapest, in the plains of Lake Balaton. It will be there that
the Magyars will unite themselves with the Allies and will get rid of the
Germans and probably even of the Russians. Until then all efforts in any
direction would be futile and harmful".63
Parleys with Western emissaries continued under the assumption that an
Anglo-American landing would take place in the Balkans. Up to the German
occupation of Hungary this assumption was not contradicted by the Western
negotiators, although they repeatedly advised Hungary to contact Soviet
Russia. Thus Hungarian politicians and diplomats were in the dark about the
real situation created by the Quebec and Teheran Conferences.
Following Hungaro-American conversations, conducted in Berne three days
before the Germans occupied Hungary, a United States military mission was
parachuted to Hungarian soil. It was composed of four members under the
command of a colonel, and provided with a special radio set, one of its tasks
being to utilize this means to give information directly to the American Army
Command. A prominent American diplomat, well acquainted with Hungary, was
assigned to take part in the expedition but was unable to arrive in time.
According to a preconceived plan, the mission landed in the vicinity of the
Yugoslav border. The Hungarian detachment which took them prisoners was told
that they had been about to fly to Tito, but having lost their bearings had
landed farther to the north than they intended. In Budapest, the head of the
intelligence section of the Ministry of Defense, aware of the real purpose of
the mission, talked over the gloomy situation with the American flyers, who
were soon to become German war prisoners. The sending of a British Army
Mission was also contemplated, but failed to materialize because of the German
occupation of Hungary.
Throughout these contacts with the English and Americans the Hungarian
diplomats and statesmen were under the spell of "wishful thinking". They were
loath to believe rumors about an exclusive Russian occupation of Hungary.
Despite repeated Western advice, they did not start negotiations with Moscow.
Such negotiations seemed futile. Their convictions, however, had some
realistic foundation, based on political and strategical considerations. In
the war the Western powers, and specifically the United States, had by far the
greatest resources and increasing power. Under these conditions the handing
over of central Eastern Europe to Soviet Russia in the last period of the war
seemed inconceivable. Russian rule in this strategically important area was
72
equivalent with its Bolshevization. Therefore they simply refused to credit
rumors that Southeastern Europe could be recognized as an exclusive Russian
zone of interest by the Allies.
In this conviction the leading Hungarian statesmen and diplomats were willing
to take all risks and were eager to make all possible preparatory steps for an
Anglo-American occupation, which was the basis of their policy. On the other
hand for the British and Americans, talks with Hungarian emissaries were only
part of the Allied psychological warfare. British and American negotiators,
following the course of international events, gradually limited the objectives
of the conversations. Finally their interest was mostly concentrated on
matters of military intelligence and sabotage. After the Anglo-American
decision at Quebec and the Anglo-American-Russian decision at Teheran, the
game was up for Hungary, as far as military occupation of the Danubian region
was concerned. With no Anglo-American forces to rely upon, Hungary never was
given a real opportunity to assist the Western Allies.64
In the course of the contacts with the Western powers Hungary obtained little
positive encouragement as to its future position in Danubian Europe, but
instead was threatened with a variety of unattractive possibilities in case it
failed to turn in time against the Germans. It is true that threats remained
far behind the realities which actually occurred in Hungary in the postwar
period, but these tragic events were not the consequence of Hungary's good or
bad behavior. Western negotiators repeatedly demanded that Hungary should
begin an all-out resistance against Germany irrespective of consequences to
the anti-Nazi elements in the country, but never indicated the possible reward
for such suicidal action. The example of Poland was not reassuring and that
of the Baltic states even less. Under the circumstances a limited cooperation
with the Axis powers seemed to be the only means for the maintenance of
Hungary's relative independence for the final show-down.
Another characteristic feature of the parleys was the emphasis laid by
Western representatives upon Allied unity. Simultaneously with the advice that
Hungary should start negotiations with the Soviet Union, they gave optimistic
assurances concerning Soviet Russia's prospective role and intentions in
international affairs. For example, it was suggested that Stalin would welcome
Count Antal Sigray a leading legitimist with an American wife as Hungarian
foreign minister. Allied unity seemed to be so perfect that the coming world
was pictured as a sincere collaboration between the Western and the Soviet
political systems. The dissolution of the Comintern, formal reestablishment of
the Orthodox Church, the revival of patriotism in Russia, and other Soviet
gestures seemed to support this opinion. There were some hints
73
too that the Soviet Union might develop her internal structure on the lines of
the Western democracies. The Atlantic Charter and the noble principles of
other wartime agreements, accepted by both East and West, seemed to be the
indication of a changed Soviet approach toward international cooperation. It
was assumed that the leaders of the Soviet Union understood and accepted the
inevitability of the simultaneous existence of Communism and capitalism, and
that differing ideological systems could co-exist and peacefully cooperate as
they had done so many times in the past. It was even thought that a middle
road between Soviet Communism and Western capitalism was possible.
Such ideas, commonly accepted in the western countries, found little credit
in Hungary a country which had already had experience with Communists in
1919. Nonetheless, the fact remained that the Soviet Union was a much praised
ally of the great western democracies, and people fearful of a Russian
preponderance in postwar Europe were inclined to ponder comforting arguments.
Another factor was, that in the territories under German occupation, the
Communist and non-Communist parties closely collaborated against the Nazi
invaders.
The Four Freedoms, together with the principles expressed in the Atlantic
Charter and in the United Nations declaration. had a tremendous impact upon all
social classes in Hungary. It was supposed that the Western powers, in
addition to these general principles, had some concrete plans for the
reorganization of Europe in general and the Danubian region in particular. It
was obvious that principles alone, without the support of adequate military
strength and political determination, could not operate in the vacuum created
by the collapse of Hitler's Europe. Few persons, at that time, had a
premonition that the fate of Europe was being shaped by extra-Continental
forces perhaps full of good-will but often very far from political realities.
However it may have been, the nations living in the critical danger zone had
no choice and thus accepted inevitable facts and welcomed ideas which
sometimes gave a gleam of hope for a decent future. They felt some misgivings,
but had no conception of the scope of the impending catastrophe.
End of Independence.
In the last years of the war, the Germans became increasingly dissatisfied
with Hungary's military and economic contributions to the Axis war efforts.
Nevertheless, what provoked the most vehement outburst of wrath from the Nazis
was the fact that German demands that Hungary persecute the nearly one million
Hungarian Jews in the Nazi way, were to no avail. Hungary was the only place
in Hitler-dominated
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Europe where the Jews had a relatively tolerable life. All other German
satellites were willing to adopt and carry out the anti-Jewish Nuremberg
rulings as a preliminary condition for German favor. This policy increased in
violence as the war proceeded, and became a categorical rule in Hitler's
Reichstag address of April 26, 1942.
Hitler's government at first repeatedly approached Dome Sztojay, the
Hungarian Minister in Berlin. Later, on October 17, 1942, it sent a
sharply-worded note to the Hungarian government enumerating the steps to be
taken. Essentially it demanded the marking of Jews with the yellow star badge,
their complete exclusion from all economic and cultural life, and their
deportation to the east.65 The Hungarian Government flatly refused to accede to
these measures. Martin Luther, assistant Secretary of State in the German
Foreign Ministry, expressed to Sztojay his "sincere regret" about the negative
answer. He emphasized that the German government was willing to accede to all
the wishes of the Hungarian government by designating areas in the east
suitable for the settling of the Jews. He strongly disclaimed the rumors
broadcast by England and America about the treatment of Jews in Germany, and
said they could hardly be substantiated by facts.66
In early 1943 the Germans became infuriated with Kallay and through Horthy,
tried to force him from power. Hitler invited the Regent to his headquarters
in April 1943. The German leader did not conceal his dissatisfaction over
Hungary's small military contribution in Russia and over the general trend of
_llay's policy. He dwelt upon the ill-concealed decline of Hungarian
cooperation and mentioned certain facts proving Hungary's determination to
approach the English and Americans. The Germans summed up their accusations in
a memorandum which particularly emphasized Hungary's firm determination not to
commit any act of war against the Western powers, and the small output of
Hungarian industry and agriculture. Moreover, the German memorandum accused
the Hungarian cabinet of failing to support the war, Prime Minister Kallay of
having lost faith in an Axis victory, and Professor Albert Szent-Gyorgyi, the
famous biologist and Nobel prize-winner, of having conducted negotiations in
Istanbul with the Western powers and of boasting there that Hungary was
protecting 70,000 Jewish refugees. The memorandum then listed a number of
threats to force Hungary into a more active participation in the Axis
struggle. Hitler and Ribbentrop attacked Horthy with special vehemence because
Hungary refused to settle the Jewish question according to the course set by
Germany. To Horthy's counter-question as to what he should do with the Jews,
now that he had deprived them of almost all possibilities of livelihood he
could not kill them off the Reich Foreign
75
Minister declared that "the Jews must either be exterminated or taken to
concentration camps. There was no other possibility".67
As is evident from the memorandum handed to Horthy, the Germans were not
entirely ignorant of the moves and purposes of the Kallay government. Hitler
again brought up the German demand that Hungarian forces be sent to the
Balkans. Horthy flatly refused, referring to an earlier decision of the
Hungarian Government. He reiterated Hungary's determination not to allow
troops to go beyond her borders.68
After Horthy's return to Hungary the German Government proposed to the
Italian Government that the German and Italian envoys in Budapest should cease
all their personal contacts with Kallay, who at that time also acted as
foreign minister. This scheme, an attempt to overthrow Kallay through
boycotting, failed because of the non-cooperative attitude of the Italian
Government.
In the following months Hungaro-German relations went from bad to worse.69 In
January, 1944, Luther bluntly told Sztojay that Hitler was not willing to wait
until the end of the war for the settlement of the Jewish question. He once
more pointed out that the handling of the Jewish question in Hungary was
responsible for the chilly atmosphere surrounding German-Hungarian
relations.
In late February, 1944, the German Government requested the Hungarian
Government's consent to the passage of 100,000 German soldiers, urgently
needed to check the Russian offensive. The Hungarian Government first refused
passage, saying that this would provoke Allied bombings of the country.
Consent was later given, on condition that German troops avoid Budapest. After
this answer was received the Germans dropped the matter. On March 15, Horthy
received an urgent invitation from Hitler. The German minister in Budapest
indicated that Hitler would like to discuss the question of the withdrawal of
Hungarian troops from Russia a wish expressed in Horthy's letter of February
9.70 The German minister suggested that, since the negotiations would be of a
military nature, Horthy should take the minister of defense and the chief of
staff with him.
Previously the Hungarian Government had received reliable reports of German
troop concentrations along the Hungarian border, and asked the purpose of
these. The Germans indignantly rejected the supposition that the troops were
intended to be used for the occupation of Hungary, and claimed to be insulted.
The troops were, according to the German answer, destined to strengthen the
sector of the Russian front held by the Rumanians. But, in spite of the
categorical German denial, officials of the Foreign Ministry made preparations
to destroy secret documents. Kallay sought to persuade the Regent to postpone
the visit for a fortnight.
76
Horthy, however, accepting the advice of those who wanted "to face the
danger", declared he was not afraid of Hitler. He left for Germany on March
17. accompanied by the Foreign Minister, the Minister of Defense and the Chief
of Staff.
In Klessheim he was told by Hitler, during a violent scene, that Germany could
no longer tolerate the repetition of events which had occurred in Italy.
Therefore the Kallay government should be dismissed immediately and a new and
reliable government must assure, by every means full military and economic
cooperation between Hungary and Germany. The Hungarian press and radio must
change their tune, and the Jewish question must be settled. And to enforce
these demands, Hitler added, a German military occupation of Hungary was
absolutely necessary.71
Horthy flatly refused. He announced that in the event of an occupation he
would resign. When it appeared that Hitler intended to confront him with a
fait accompli Horthy left the room and decided to return to Hungary
immediately. By various pretexts his departure was prevented. Nor could the
delegation get in touch with Budapest by telephone. As an eyewitness described
it, "a most convincing fake air-raid was staged, which even included a smoke
screen over the castle, as an excuse for preventing Horthy's special train
from leaving, and the telephone line to Budapest turned out to be 'badly hit',
so that the Regent was cut off from the outside world".72
In the meantime Horthy's military suite did everything to convince him of the
futility of military resistance. Their main argument was the German threat
that Hungary would be occupied by Rumanian, Slovak, and Croatian troops.73
Moreover, they emphasized that a hostile German occupation would mean the
extermination of the Hungarian leading classes, not to speak of the fate of
democratic elements, and of Jews, Poles, and other refugees. Horthy was forced
to see Hitler again. In the course of another dispute Hitler sent for Field
Marshal Keitel and asked about the possibilities of suspension or change in
the plan of occupation. Keitel's answer was that the trains already were
rolling toward Hungary; the occupation could not be deferred, and the plans
could not be changed. Horthy was then assured that the occupation would be of
an exclusively military nature and that the occupying force would not
interfere with the political life of the country, and would be withdrawn after
the appointment of a new government. Influenced by all these considerations,
Horthy showed a willingness to remain Regent for the time being. In spite of
this agreement, however, his return was again delayed until after the
occupation of Budapest. The Nazis did not take chances.
The German war machine started rolling into Hungary on the night
77
of March 18-19 1944. On the morning of March 19. the capital, the most
important airfields, railway junctions, and other places of strategic
importance were in the hands of the Germans. The Hungarian Government,
concurrently with the military occupation received false messages from the
Hungarian delegation indicating that everything was settled with the Germans
and that nothing should be done until the return of the Regent. Ghyczy had
arranged, before his departure from Budapest, to communicate Hitler's plans to
the Hungarian Government by one of two alternate code messages. But the
Germans were too cautious to be fooled by this device and did not transmit the
seemingly harmless text, addressed to Mrs. Ghiczy about a social engagement,
until the occupation was well under way. It now became clear why Horthy was
asked to bring the leaders of the Hungarian Army to Germany. In the absence
of the Regent and the minister of defense there was no central military
authority to order the Hungarian Army to resist. There were isolated cases of
resistance, but these did not substantially change the timetable of
occupation. The minister of the interior intended to issue an order of
resistance to the police forces. but was dissuaded from this action, the
futility of which was obvious. On March 19 when Horthy was allowed to return
he was received before the Royal Palace by a German Ehrenwache.
March l9, 1944, was a tragic day in Hungarian history. From this time onward
the relatively calm atmosphere of the Hungarian scene changed radically. The
Hungarian people began to feel the full impact of war and occupation. Allied
bombing started. The looming shadow of the Nazi dictator became a cruel
reality. Subsequent protestations and resignations of Hungarian diplomatic
representatives in neutral countries were received with sympathy by the free
world, but this did not alleviate the fate of the Hungarian people. The German
security police arrested members of the Hungarian Parliament. The finest
Hungarian patriots were jailed or forced underground. Hitler's promise
concerning the exclusively military character of the occupation proved
entirely worthless. The Gestapo started its usual work. Persecution and mass
deportation of the Jews began.74
Kallay himself never resigned formally. Horthy first wanted to appoint a
purely administrative, non-representative government composed of officials, but
this was not accepted by the Germans. Subsequently Horthy asked for the
cessation of arrests, and guarantees of no further intervention in Hungarian
home affairs. Receiving only some vague promises, he did not comply with the
German demand for the appointment of an Imredy government but, eventually,
appointed Dome Sztojay, a former general and Hungarian Minister to Germany.
Sztojay
78
had always fervently advocated a policy of complete submission to the Nazis.
The new government dissolved the trade unions and the opposition parties, such
as the Smallholders, the Democrats, and the Social Democrats, and, in close
collaboration with the Germans, carried out the Nazification of Hungary.
The Regent assumed an ostensibly passive attitude in the first months, later
resisting more or less openly the Germans and their Hungarian accomplices. The
fact that the Germans did not directly take over the major government agencies
left open certain possibilities for the future. The officials of the Foreign
Ministry especially tried to check Nazi influence whenever they had the
opportunity. Although Szentmiklossy and Szegedy-Maszak were arrested by the
Germans, the traditions of their policies prevailed to a large extent, and
were revived, in a different form, by the new secretary general of the Foreign
Ministry, Mihaly Jungerth-Arnothy.
Immediately after the occupation the Germans, in cooperation with the puppet
Sztojay Government, carried out the anti-Jewish measures rejected by the
Kallay Government in 1942. The Jews were first obliged to wear a yellow star,
then they were put into ghettos and concentration camps, and finally most of
them were deported "to work in Germany". These actions were carried out with
amazing speed by the Germans and their chief Hungarian accomplices, Laszlo
Endre and Laszlo Baky, secretaries of state in the Ministry of Interior.75 One
of the German organizers, Dieter Wisliceny, described this process at the
Nuremberg trials in the following manner:
After the entry of the German troops into Hungary, Eichmann went there
personally with a large command. By an order signed by the head of the
Security Police, I was assigned to Eichmann's command. Eichmann began his
activities in Hungary at the end of March, 1944. He contacted members of the
then Hungarian Government, especially State Secretaries Endre and von Baky.
The first measure adopted by Eichmann in cooperation with these Hungarian
Government officials was the concentration of the Hungarian Jews in special
places and special localities. These measures were carried out according to
zones, beginning in Ruthenia and Transylvania. The action was initiated in
mid-April, 1944.
In Ruthenia over 200,000 Jews were affected by these measures. Consequently,
impossible food and housing conditions developed in the small towns and rural
communities where the Jews were assembled. On the strength of this situation
Eichmann suggested to the Hungarians that these Jews be transported to
Auschwitz and
79
other camps. He insisted, however, that a request to this effect be submitted
to him either by the Hungarian Government or by a member thereof. This request
was submitted by State Secretary von Baky. The evacuation was carried out by
the Hungarian Police.
Eichmann appointed me liaison officer to Lieutenant Colonel Ferency,
entrusted by the Hungarian Minister of the Interior with this operation. The
evacuation of Jews from Hungary began in May 1944 and was also carried out
zone by zone, first starting in Ruthenia, then in Transylvania, northern
Hungary, southern, and western Hungary. Budapest was to be cleared of Jews by
the end of June. This evacuation, however was never carried out, as the
Regent, Horthy, would not permit it. This operation affected some 450,000
Jews. . .76
Although the ultimate fate of the deported people was not known at that time,
the Pope, the King of Sweden, President Roosevelt, the British Government, and
the International Red Cross protested the anti-Jewish measures, particularly
the mass deportations. Representatives of neutral powers in Budapest, under
the leadership of the Papal Nuncio, Angelo Rotta, made energetic collective
protests. The Nuncio personally lodged several protests with Prime Minister
Sztojay.
The secretary general of the Foreign Ministry called the attention of the
council of ministers to these protests, but the Nazi-minded ministers denied
the alleged atrocities. Hungarian Nazis were enraged because of these
"unjustified foreign interventions" while innocent civilians were victims of
the Allied air attacks in Hungary. Secretary of State Endre in his report to
the council of ministers in June, 1944, pictured the deportations in such a
euphemistic way that Jungerth-Arnothy remarked sarcastically that he almost
regretted not having been born a Jew and thus not having been able "to join
these pleasure trips".77
Gradually the Regent's position strengthened and in July, he succeeded, by
threatening to use force, in hindering the deportation of Jews from
Budapest.78 Protests of Allied and neutral states, interventions of the papal
nuncio, and actions of the Catholic episcopate and the Protestant churches were
instrumental in stiffening the resistance of the Regent. The neutral legations
issued letters of protection, safe-conduct passes, and passports to Hungarian
Jews. Eventually an international ghetto was established in Budapest under the
protection of the neutral powers. The co-operation of the Hungarian Foreign
Ministry greatly facilitated the success of these actions.79 Throughout this
period, a secretary of the Swedish Legation, Raoul Wallenberg, alone saved the
lives of several
80
thousand persons.80
During these months the Germans gave the Hungarian Government the most
emphatic assurances about the fate of the deported Jews, and protested against
the "malicious rumors", spread abroad. Germany even claimed from Hungary the
food ration of these deported people.81
In regard to Hungarian Jews the following general ruling was laid down in
Auschwitz: "Children up to the age of 12 or 14, older people over 50, as well
as the sick, or people with criminal records (who were transported in
specially marked wagons) were taken immediately on their arrival to the gas
chambers. The others passed before an SS doctor who, on sight, indicated who
was fit for work and who was not. Those unfit were sent to the gas chambers,
while the others were distributed in various labor camps." 82
As Sztojay proved a mere German puppet, Horthy sought to replace him with
General Gyula Lakatos, but this action was hindered by a German ultimatum.
German protests notwithstanding, Horthy gradually dismissed the most savage
pro-Nazi members of Sztojay's administration. The attempt on July 20 to kill
Hitler created confusion among German authorities, somewhat increasing
Horthy's freedom of action. Eventually he dismissed the sick Sztojay and
appointed General Lakatos as prime minister. Contact was established between
the government and the underground parties.83 The problem of an armistice was
discussed in the cabinet, and in various top level secret meetings. The
Germans, however, received exact information of these intentions, and
arrangements were made for Ferenc Szalasi, the Hungarian Arrow-Cross leader,
to take over the government at an appropriate time.84 Meanwhile Szalasi lived
in Budapest at German Headquarters.
Historical experience and practical considerations made Hungarian military
strategy aim at the establishment of a strong line of defense in the eastern
and southern Carpathian mountains.85 For a variety of reasons such plans were
not accepted in time by the Germans. Nazi policy was influenced to a great
extent by propaganda considerations and the Nazis were reluctant to give up
territories solely for strategic reasons.86 Moreover, in Rumania the Germans
desired to hold the Ploesti oil fields under any circumstances. Eventually
Hitler agreed to the establishing of a line of defense in the southern
Carpathians, but it was too late. When the Rumanian armistice was proclaimed
on August 23, the entire Rumanian Army ceased to fight against the Red Army,
and shortly afterwards the German Army in Rumania was practically annihilated.
On September 5, the weak and unprepared Hungarian army began an offensive
aiming at the occupation and eventual defense of the southern Carpathians in
Rumanian Transylvania, but this desperate
81
move did not take military realities into consideration and achieved little
success.
In early September, 1944, the Red Army, without much difficulty, occupied the
passes of the southern Carpathians. The door to the Hungarian lowlands lay
open. The German military attache in Budapest reported the critical military
situation to the Hungarian authorities. The Lakatos government demanded the
immediate dispatch of seven German armored divisions for the defense of the
Hungarian lowlands and intimated that otherwise Hungary would ask for an
armistice. The Germans promised to fulfill the Hungarian demand. Some armored
divisions promptly arrived, but did not go to the battlefront. They remained
around Rudapest, thus further curtailing Horthy's freedom of action.
On September 8, a Crown Council, upon the proposal of Count Stephen Bethlen,
decided that Hungary should ask for an armistice. In the cabinet, however, the
opinions were very much divided in the matter. During those days the experts
of the Foreign Ministry alternately prepared and destroyed a variety of
requests for an armistice. One type was to be addressed to the Allied Powers
through the neutral legations functioning in Budapest, the other directly to
the commander-in-chief of the Red Army. Because of the unpleasant
alternatives, indecision and hesitation prevailed at the last moment in
responsible quarters.
The Lakatos government sent out feelers to the Allies, and the invariable
reply was that Hungary should ask Moscow for an armistice. This answer
notwithstanding, Horthy sent General Stephen Naday by plane to Caserta on
September 22, to negotiate an armistice, and suggested that Anglo-American
troops should take part in the occupation of Hungary. In Caserta Field Marshal
Sir Henry Maitland Wilson, Allied Commander of the Mediterranean theatre, took
note of Hungary's determination to conclude an armistice but showed no
particular interest in Naday's mission. Naday was told that the merits of the
case must be negotiated in Moscow, since Hungary was within the Russian zone
of military operations.
A few days later an armistice delegation left for Moscow.87 Following an
arrangement made with the Russian high command, Russian partisans took care of
the delegation in Slovakia, which was still under German occupation. Taken by
car to the city of Zvolen, the delegates left by plane for Kiev, and arrived
in Moscow on October 1. General Kuznetsov received them, and Horthy's letter
addressed to Marshal Stalin was delivered to him. The Hungarian delegation
signed a preliminary armistice agreement on October 11.
Meanwhile, the Lakatos government made some preparations for
82
the proclamation of the armistice, but the German military preparations in
Hungary were more advanced and of greater magnitude. Before the Hungarian
delegation was dispatched Hitler had been informed of Horthy's decision to
offer surrender to Soviet Russia. He briefed his trouble shooter, Otto
Skorzeny, and sent him to Budapest to prepare for the occupation of the Royal
Castle Hill and the government buildings.88 The German secret service knew of
the anti-Nazi activities of the Regent's son, Nicholas Horthy, Jr., and a Croat
spy was planted among his close collaborators. Thus Skorzeny was informed of
young Horthy's meeting on October 15 with emissaries of Tito, who themselves
were agents of the German secret service.89 A trap was prepared and Nicholas
Horthy, Jr., was kidnapped by Skorzeny's men after a shooting and struggle in
which Horthy, Jr., was wounded and some of his guards killed. On the same day
a Crown Council was held and the Regent's armistice proclamation read on the
Budapest radio.90
This desperate attempt was bound to fail. Several German armoured divisions
occupied the outskirts of Budapest. German "Tiger" tanks moved into the
capital. The Nazis and their Hungarian accomplices organized everything with
German thoroughness. Horthy, wanting to remain chivalrous to the end, informed
Hitler's representative in Hungary about the impending armistice before the
proclamation was read on the radio. Thus the Nazis had all possible
advantages. Besides, as early as October 10, the Germans had kidnapped General
Szilard Bakay, commander of the army corps stationed in Budapest. Bakay was in
charge of the organization of the scattered Hungarian military units and had
made preparations for the arrest of the pro-German Hungarian generals. After
his arrest all serious preparations for a showdown were frustrated. But in
spite of these odds, Horthy decided to remain in Budapest rather than join the
Hungarian fighting forces at the front and proclaim the armistice from there.
Only one plan was carried out concurrently with the armistice proclamation, the
release of political prisoners from Hungarian jails.
Shortly after Horthy's proclamation was read over the Budapest radio, the
station was taken over by the Nazis and the proclamation countermanded and
refuted. Pro-Horthy military commanders were arrested. Nazi-minded officers
were in important key positions in the Hungarian Army, and they organized a
conspiracy simultaneous with Skorzeny's mission. The attitude of these
Hungarian army officers was probably the greatest disappointment in Horthy's
life, filled as it was with vicissitudes. The bulk of the Hungarian Army and
people did not know about the events until everything was over. After a short
fight against the overwhelming German forces, the Lakatos government was
deposed
83
and the Arrow Cross gang of Szalasi installed by the Germans. Horthy, forced
to resign, was taken prisoner with his family and taken to Germany. With the
violent end of the Horthy regime, a chapter of Hungarian history
terminated.91
It was officially announced that Horthy abdicated of his own free will,
placed himself under German protection (it was not stated against whom) and
surrendered his rights and powers to Ferenc Szalasi.92 Although Justinian
Cardinal Seredi, in a session of the state council of Hungary, challenged the
validity of Horthy's resignation and Szalasi's seizure of power, such
legalistic considerations did not change the course of events.93 Seredi's
appeal to free the detained members of Parliament was of no avail. An
incomplete Parliament took note of the accomcomplished facts and under duress
accepted Szalasi as leader of the nation.
A new wave of political persecutions began. Leading patriots were arrested,
among them Joseph Mindszenty, at that time Bishop of Veszprem. In many places
the mob took over. Atrocities and pogroms continued. In October and November,
more than 30,000 Jews were deported from Budapest. They had to walk to the
German border (almost 200 kilometres) under dreadful conditions. A large
proportion of these people died during the death march or later in work
camps.94
The cruelties were somewhat mitigated by the collective interventions of the
neutral powers, notably by the representatives of the Vatican, Sweden,
Switzerland, Portugal, and Spain. Protests from the Christian churches
continued and the International Red Cross made great efforts. Such actions had
some restraining influence on the irresponsible elements in power.95 Officials
of the Foreign Ministry invented rules of international law to convince the
Arrow Cross leaders of the validity of neutral protection extended to
Hungarian Jews. Daily events brought forward manifestations of both human
solidarity and bestiality. Former opposition politicians formed a committee of
liberation under the leadership of Endre Bajcsy-Zsilinszky and planned to
overthrow the Szalasi regime by force. The plot was betrayed by a planted spy,
most of the organizers caught, and the leaders executed.96
As the Red Army advanced the Arrow Cross Government moved to western Hungary.
The Germans discovered with astonishment the inability of Szalasi, who
withdrew to a castle on the Austro-Hungarian frontier to write his lifework a'
la Hitler's "Mein Kampf". Confusion and arbitrariness prevailed throughout the
country, while the various factions of the Hungarian pro-Nazi parties
quarreled and intrigued among themselves.97 The Papal Nuncio and the
representatives of the neutral powers, like Sweden and Switzerland, refused to
follow the
84
Arrow Cross Government to western Hungary and remained in Budapest.98
Meanwhile, as the Red Army steadily approached Budapest, Hungarian patriots
lived in a tragic dilemma. Overwhelming outside forces had trapped the
Hungarian people between two barbarian worlds. The Hungarian nation was almost
entirely engulfed in the flood of invading armies and cast into the Danubian
whirlpool.
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DIPLOMACY IN A WHIRLPOOL |