No. 143.
Mr. Angell to Mr. Evarts.

No. 75.]

Sir: A reference to Mr. Seward’s dispatches Nos. 512, 590, and 692, not to speak of earlier dispatches on the same subject, will show that for a long time the representatives of foreign powers have been engaged in discussion with the Tsung-li Yamên upon the proper forms and terms to be employed in official intercourse between the consuls and provincial officers. The subject is one of exceptional importance in this empire, where so much stress is laid upon ceremonial and etiquette.

Sir Thomas Wade, the British minister, was charged several months ago, by the diplomatic body here, with conducting in their behalf negotiations in this matter with the foreign office. Finally a result has been reached, which is entirely satisfactory to the ministers, and one of which in the conferences recently held I have expressed my approbation. Copies of a communication from Prince Kung on the subject and his accompanying memorandum are inclosed. The latter sets forth the agreement decided on with brevity and clearness. You will observe that it determines the procedure upon three points.

  • First. A consular officer shall, without regard to any difference of rank between him and a governor-general or governor of a province, be received by the latter with the etiquette becoming for a host to exercise towards a guest.
  • Second. In official correspondence between consular officers and high provincial authorities, in order to avoid the appearence of subordination of the former, the following plan is to be adopted: In ordinary matters, the consular officers will address the intendant who will memorialize the viceroy or governor, and the latter will instruct the intendant to reply to the consular officers. In important matters the latter can exchange “official communications” with the high authorities, employing the term which does not signify inferiority or petition.
  • Third. The provincial authorities will, in addressing the consul,” use the respectful term equivalent to “the honorable consul,” and will abstain from that use of the vermilion pencil which they resort to in instructing their inferior officers.

In this country where pre-eminently forms are things, and where disagreements between foreign representatives and the Chinees officials have often seriously interfered with the transaction of important business, [Page 220] it is a matter of consequence to have reached so satisfactory a termination of the prolonged discussion on official intercourse.

I inclose a copy of my reply to Prince Kung’s communication, and also a copy of my circular to our consuls, instructing them to comply with the terms of the memorandum in conducting their official intercourse with the provincial authorities.

I have, &c.,

JAMES B. ANGELL.
[Inclosure 1 in No. 75.]

Prince Kung to Mr. Angell.

Prince Kung, chief secretary of state for foreign affairs, herewith makes a communication in reply.

Upon the 21st of November, 1879 I had the honor to receive a dispatch from your excellency,* in which it was remarked that their excellencies the members of the diplomatic body had been engaged in conference upon all international matters to which attention seemed to be demanded, whether for the removal of what may be characterized as a grievence, or for the introduction of changes that will modify what is in appearance either unreasonable or inexpedient, and that they proposed to lay before me the conclusions at which they had arrived, &c. Upon the 26th of the same month a reply was sent by this office. Since then I have been in repeated consultations with his excellency Sir Thomas Wade upon one of the topics, and have deliberated upon a memorandum submitted, and upon the 20th ultimo I addressed to him a note in the premises.

Upon the 24th ultimo, I received a reply from him stating that the proposals in regard to the forms of intercourse between Chinese and foreign officials had been submitted by him in person to his colleagues and accepted by them, and requested me to communicate officially the conclusions arrived at to the several members of the diplomatic body, &c. Having sent instructions to the viceroys and governors of the various provinces for their information and guidance, I have now the honor to inclose a copy of the conclusions reached for your excellency’s information.

Peking, December 10, 1880.

His Excellency James B. Angell, &c., &c., &c.

[Inclosure.]

Memorandum on official intercourse.

A minute was received upon this subject some time since to which this Yamên has already replied in detail. But your excellency appears not to have been satisfied, and in conversation has repeatedly urged me to agree to a satisfactory conclusion of the matter. This Yamên, therefore, again submits a series of propositions given hereafter upon the several points at issue.

I. Your excellency maintains that, whether at a port or in the interior, a consular officer having occasion to speak to a governor-general or governor of a province on business, should be assured access to the high authority, and that neither when admitted into his Yamên nor into his presence should he be treated as the subordinate of the high authority, no matter what the inferiority of his official rank, but according to the etiquette between guest and host.

I beg to remark upon this, that in the provinces the high officials, from the viceroys and governors down to the intendants, are constantly meeting consular officers, and, although there may be differences of rank, there are none who fail to receive such officers according to the etiquette of guests.

Hereafter whenever business requires such meetings they certainly shall meet consular officers and treat them in all respects according to the etiquette observed between guest and host.

II. Your excellency holds that, whenever consular officers have occasion to hold official correspondence with the high provincial authorities, such correspondence should [Page 221] not take the form of a memorial from the lower to the higher or of an instruction from a higher to a lower, but that, without regard to actual superiority or inferiority of relative rank, the characters “to correspond officially” should be used, the idea being to avoid the appearance of subordination.

Upon this article I remark that the treaties are not uniform upon this point. It is stated in some of them that consuls and acting consuls are of equal rank with intendants, and vice-consuls, acting vice-consuls, and interpreters of equal rank with prefects, and that these officials shall correspond upon a basis of equality, as befits their equality of rank.

If, while the organization of this government offers no serious objection, still it be inconvenient for viceroys and governors to correspond with consular officers with the use of the characters “wen yi,” then certainly some feasible plan must be sought out. I suggest the following: In ordinary matters of business let consular officers, as heretofore, address the intendants, who will in turn memorialize the viceroy or governor. That high officer will, as heretofore, instruct the intendant in response, who will address the proper consular officer. But in important official matters of business the high provincial authorities and the consular officers, without regard to differences of rank, can on both sides use the words “an official communication.”

III. Your excellency suggests that whenever the provincial authorities, in correspondence, speak to a consul, they should prefix the character “Kuei to his title, and that when mentioning a consul they should use his surname and title, as “Mr. Consul so and so.” Further, that the provincial authorities should, in dispatches to consuls, cease to use the vermillion pencil to bracket or point certain characters as they do use it in instructing their subordinate officials.

These two suggestions contain nothing in any way inconsistent with the dignity of this government and are assented to.

The foregoing is submitted to your excellency and the members of the diplomatic body as a practicable solution of this question, having in view the good relations between China and foreign powers.

[Inclosure 2 in 75.]

Mr. Angell to Prince Kung.

To His Imperial Highness Prince Kung:

I have the honor to acknowledge the receipt of your imperial highness’s communication of December 10 instant, and the accompanying memorandum on official intercourse. I beg to express my appreciation of the just spirit in which your highness has considered the subject of official intercourse, which is not free from difficulties.

I desire to express my satisfaction with the forms of procedure which are given in your memorandum to govern provincial officers and consular officers in their official intercourse with each other.

I shall at once instruct the consuls of the United States to comply with the terms of the memorandum.

I gladly embrace this opportunity to assure your imperial highness of my distinguished consideration.

I am, &c.,

JAMES B. ANGELL.
[Inclosure 3 in 75.]

Mr. Angell to United States consuls in China.

Sir: I am happy to inform you that the prolonged negotiations which have been going on so long between the foreign ministers and the Tsung-li Yamên on the subject [Page 222] of official intercourse have at last yielded an excellent result. A plan has been agreed upon, which it is confidently believed will go far to remove the annoyances and embarrassments to which consular officers have been subjected in the transaction of business with the provincial authorities. I have signified to Prince Kung my approbation of the plan. The substance of its provisions is as follows:

1.
Whenever consular officers have occasion to hold personal interviews with a governor or a governor-general, they shall not be treated as subordinates, but with the etiquette which a host shows to guests.
2.
If consular officers have occasion to correspond about ordinary matters of business, they shall, as heretofore, address the intendants, who will in turn memorialize the viceroy or governor. That high officer will, as heretofore, instruct the intendant in response, who will address the proper consular officer. But in important official matters of business the high provincial authorities and the consular officers, without regard to differences of rank, can on both sides use the words “an official communication.”
3.
The provincial authorities shall in correspondence with a consul prefix the character “kuei to his title, and shall cease to use the vermillion pencil to bracket or point certain characters, as they do use it in instructing subordinate officials. Prince Kung announces that instructions in accordance with his agreement have been sent to the viceroys and governors of the various provinces for their information and guidance.

It is, therefore, my duty to instruct you to comply with the above regulations in your official interviews and correspondence with the provincial officers.

You have the right to expect that they too will comply with them. Any failure on their part to carry out in good faith the arrangement now entered into by the imperial government is a proper subject for you to report promptly to this legation. I have, &c.,

JAMES B. ANGELL.
  1. Should be Mr. Seward.