No. 32.
Mr. Frelinghuysen to Mr. Logan.

No. 12.]

Sir: The war between Peru and Bolivia on the one side and Chili on, the other began more than three years ago. In 1880 the substantial success of Chili, and its conquest and occupation of all the littoral territory of Bolivia, furnished an opportunity for a pause in operations and for negotiations for peace, which were conducted in the presence of the representatives of the United States. At that time a peace could probably have been secured upon much more favorable terms for the defeated party than are possible now. The allies refused then to concede territory to Chili, and the negotiations failing, the war was continued until Chili became master of the coast and of the capital of Peru. President Pierola fled, and Mr. Calderon was made President and Mr. Montero Vice-President of Peru. This Government was recognized by the United States. The Chilian authorities arrested Mr. Calderon and carried him to Chili, and the United States continued to recognize the same Government in the person of Mr. Montero.

After the arrest of Mr. Calderon the President sent a special mission to both countries in the hope that a way might be found for terminating the war through the exercise of the good offices of the United States. It was hoped that Peru and Bolivia might, through our generous and unselfish counsels, be brought to see that Chili, as a conqueror, had a right to substantial indemnity as the result of victory. On the other hand, it was also hoped that Chili might be found willing to accept a money indemnity sufficient to compensate her for the losses and expenses of war without demanding a sacrifice of territory from the other belligerents. All these hopes proved to be groundless. The mission returned, having effected nothing beyond giving new proof to all parties of the good will of the United States, and of their desire to bring about an equitable and lasting peace.

Notwithstanding the failure of past efforts, we have reason to think that both parties still wish for peace, and that both still desire to have it effected through the good offices of the United States. It will therefore be the first and most pressing duty of the new missions to Chili and Peru to co-operate for that purpose.

The consistent and continuous effort of the United States to bring about an understanding and amicable settlement between her sister Republics of the South Pacific indisputably attests the deep interest of this Government in the welfare of those countries, and illustrates the sentiment with which the United States regards all the other independent Governments of the American continent. It is but natural that each of those independent Governments should feel an interest approaching to a responsibility in the preservation of the distinctive principles which underlie their whole structure. This interest has been unmistakably shown by the United States as a member of this cluster of Governments in their relations to the present belligerents in a very earnest manner and in all proper ways, and the intensity of this interest has not abated.

Without a disposition to judge of the merits of the matters in dispute [Page 75] between the belligerent Republics, and with no desire to interfere in their internal affairs, we have used every effort to reconcile their differences in a manner consonant with the honor and dignity of all parties to the strife. It is imperative that we continue, if possible, so to use our efforts until they are crowned with success or until they result in pronounced failure. The interest which we feel in these belligerent Republics does not rest solely and entirely upon a sentiment of neighborly good will towards Governments moving with us in the same direction, and with whose people we desire to cultivate close relations of a commercial and amicable character. There is a circumstance underlying an existence as Republics which should not be ignored, and which relates to the fact that our Governments are not alone formed upon plans distinct from those of the old world, but that we have many political interests entirely separate from the interests of European Governments, and in some respects in conflict with them.

Out of this circumstance springs a subject which it is not now necessary to dwell upon, but in which all the Republics of these continents are equally interested. Should the subject be presented in a different form, one affecting the well-being of the American Republics in general, the United States might feel it their duty, both to themselves and to their sister Republics, to assume a position which is not demanded in the present case.

This Government is now prompted however, not alone to use every effort to bring about a speedy peace between the contestants, but also to express disapprobation of any settlement which involves injustice to either party. Our position in this sisterhood of states, gives us the right and makes it our duty to speak in behalf of the common interests of all.

As a conquering nation Chili is entitled to the reasonable and natural fruits of victory, chief among which are an indemnity to cover her just losses and a guaranty of future peace and safety. What may be the nature of the indemnity and what that of the guaranty, this Government cannot undertake to dictate or to prescribe. A proper indemnity may involve a payment of money or even the cession of territory, and the guaranty, to be effectual, may exact stipulations relating to the control of strategic points or may even assume other forms as they may be found necessary to attain the end desired. We, in common with the other American Republics, are only interested to prevent by our counsels the perpetration of substantial injustice. The President has been disappointed by the failure of the parties to conclude a peace. Without completely subjugating her adversary Chili has caused the disorganization of the Government of Peru, paralyzed its financial interests, and disastrously affected the pecuniary and other interests of those citizens of neutral states who have gone there to assist in the development and progress of the country.

This state of affairs should be terminated, and will be if friendly counsels are allowed to prevail. If, upon your arrival in Chili, it seems advisable so to do, you will in a prudent and courteous manner communicate the substance of these views to the Chilian Government at such time and to such extent as you may deem proper, and you will signify your disposition, under instructions of your Government, to render every assistance within your power towards bringing about the much-desired settlement.

Owing to the great distance of Chili from the United States and the rapidity of events in such crises, it will be impossible for you to communicate with this Government for instructions upon subjects which [Page 76] may be settled before an answer can reach you; much, therefore, must be left to your own judgment and discretion.

You will continue the efforts of your Government to induce Chili to settle the difficulty by such moderation in her demands as you may be able to bring about, taking care to impress upon that Government that any substantial concession which it may now make will be regarded as a direct and graceful recognition of the disinterested counsels of the United States.

It is understood that Chili is in possession of the littoral province of Bolivia and of the Peruvian littoral provinces of Terapaca, Tacna, and Arica. It is not supposed that any contingency can happen which will bring about the permanent occupation and annexation by Chili of any larger part of Peru than this. Your efforts, therefore, must be directed towards securing for Peru as large a part of these provinces in the treaty of peace as possible, and as large a money indemnity as possible for whatever territory may be retained by Chili.

In my instruction to Mr. Trescot, of the 9th of January last, I said:

The President wishes in no manner to dictate or make any authoritative utterance to either Peru or Chili as to the merits of the controversy existing between those Republics, or as to what indemnity should be asked or given, as to a change of boundaries or as to the personnel of the Government of Peru. The President recognizes Peru and Chili to be independent Republics, to which he has no right or inclination to dictate.

The President adheres to these views and expects that they will be regarded in the conduct of these negotiations.

Beyond these general instructions, the President confides everything to your good judgment and discretion. You are selected for this responsible position in consequence of your long experience in Spanish-American affairs, your personal acquaintance with many of the actors in this great drama, and the confidence which is reposed in your character and discretion. It is not thought wise to hamper you by any further restrictions than are indicated by this general expression of the President’s wishes.

Should the Government of Chili be inclined to avail itself of your services in arranging terms with whatever Government of Peru may be in existence, and request your aid, you may proceed to Peru or Bolivia in your official character for that purpose, co-operating with your colleagues in Lima and La Paz. It is not necessary to advise you to be careful not to encroach upon the rights especially belonging to them. These officers will be advised of this portion of your instructions, in order that no misunderstanding may result therefrom.

The President does not apprehend that Chili will refuse to listen to your overtures, dictated as they are by a sincere desire to aid in the honorable adjustment of a conflict which the belligerent powers must desire to see terminated. On the contrary, he feels confident that it will be your good fortune to render material assistance in conferring upon all the belligerents the blessings of peace. Should, however, these just expectations be disappointed, and should Chili refuse to moderate her demands to a point to which you may be willing to commit the United States as a mediating power, then the responsibility of continuing the present condition of affairs must rest upon chili alone.

Should this contingency arise you will immediately notify me of it by telegraph, when the President may wish to confer with you personally, and may direct you to come to Washington at the earliest opportunity. Should you be so directed you will inform the minister for foreign affairs that your Government, having exhausted every expedient to bring about [Page 77] a settlement on a basis to which it can lend its countenance, desires to confer with you personally upon the position of things in Chili and Peru, and has granted you leave of absence for that purpose. You will thereupon place the archives of the legation in the custody of the consul at Valparaiso without conferring upon him any diplomatic power.

It is absolutely necessary that you and Mr. Partridge have a complete understanding with one another, and that you act in entire harmony. I hand you herewith the original* instructions to him on this subject, which you will read, and I will thank you to stop at Lima over one steamer in order to put them in his hands, and to have a full and frank conversation with him. It is probable, also, that your stay there may be useful to you in other ways.

I hand you herewith the* instructions for Mr. Maney, which you will read and forward to him. Our ignorance of affairs in Bolivia makes it impossible to give him more specific instructions.

I am, &c.,

FRED’K T. FRELINGHUYSEN.
  1. For instructions referred to see Peru.
  2. For instructions referred to see Peru.