Mr. Burlingame to Mr. Seward
Sir: I have the honor to inform you that I received a letter from Edward Cunningham, esq., of Shanghai, dated April 16, 1863, in which he writes:
“You will observe by the newspaper that we are proceeding to remodel our government in the best manner we may. The committee appointed (I am one) have held their first meeting, and determined that Mr. Bruce’s views (see letters in despatch No. 36) were unquestionably sound, and the only course for the community is to form a system founded on the principles he expounds. We therefore are now preparing a letter to the foreign ministers, in which, after stating the imperious necessity that exists for some government of the place, stronger than any the Chinese can give, we ask an expression of opinion upon the principles which we propose.
“We go no further until we learn whether the ministers will support a municipal system founded upon these principles.
“If they will, we shall then proceed to elaborate details, upon which we shall again ask their comments and approval or disapproval. Proceeding in this cautious way, perhaps we may save the settlement from the disasters that will befall it if all foreign elements in the municipal control are banished.
“The principles are, briefly, that whatever authority (territorial authority) is established shall be derived directly from the imperial government through our ministers.
“That such authority will not extend beyond simple municipal matters—roads, police, and taxes for municipal objects.
“That the Chinese, not actually in foreign employ, shall be wholly under the control of the Chinese officers, just as much as in a Chinese city.
“That each consul shall have the government and control of his own people, as now, the municipal authorities simply arresting offenders against the public peace, handing them over and prosecuting them before respective authorities, Chinese or other, as the case may be.
“That there shall be a Chinese element in the municipal system, to which reference shall be made, and assent obtained to any measure affecting the Chinese residents, if the necessary concurrence can be obtained that all the foreign quarters shall be united under one municipal system.”
Immediately on the receipt of this letter I consulted with their excellencies the British, Russian, and French ministers, and addressed to Mr. Cunningham the following letter as the result of that consultation:
[Page 935]“Legation of the United States, “Peking, May 9, 1863.
“Sir: I had the honor to inform you yesterday that I had consulted with their excellencies Sir Fred. Bruce and Colonel Ballurzeck in relation to municipal regulations for Shanghai, and that they had assented to the principles as briefly stated in your letter of April 16, 1863, as a proper foundation for a municipal system.
“I have now to inform you that I have consulted with his excellency Mr. Berthing, and that he cordially agrees to the same, and will unite in recommending such a system to the Chinese government.
“In arranging the details of your system, it is suggested that great care should be taken to conserve the feelings and interests of the different nationalities, to the end that future jealousies may be prevented.
“I have, &c.,
“ANSON BURLINGAME.
“E. Cunningham, Esq.”
I hope we have in this agreement laid the foundation of a municipal system for what is soon to be, if it is not already, the largest city in the East.
This agreement would not have been possible, but for the antecedent agreement about concession, of which I gave an account in despatch No. 36.
I have the honor to be, sir, your obedient servant,
Hon. William H. Seward.