Mr. Blaine to Mr. Grant.

No. 25.]

Sir: I have to inclose herewith, under date of August 17, 1889, copy of a petition presented to this Department by Hugo Klamer, a naturalized citizen of the United States, born in Austria, who has lately been expelled from that country.

This case forms the subject of the dispatches of your predecessor, Nos. 121 and 128, of the 2d of March and 13th of April last, respectively.

I also inclose for your information a copy of dispatch No. 301, of the 4th of February last, from Mr. Jussen, consul-general of the United States at Vienna, in relation to the same case.

It appears that Mr. Klamer was born in Vienna on the 12th of November, 1859, and emigrated to the United States in October, 1873, being then not quite fourteen years of age. In his nineteenth year, being still a resident of the city of New York, he received a citation to appear for examination as a recruit for the Austrian army. Pursuant to this citation he presented himself at the Austrian consulate in the city of New York, when he was informed that if he intended to remain in the United States he should appear before a notary public, and in the presence of two witnesses declare his intention to become an American citizen. This Mr. Klamer did, and took the document when completed to the Austrian consulate, and there also signed a request to the Austrian Government, which was drawn up by the secretary of the [Page 28] consulate, to have his name crossed off the list of Austrian subjects liable to military duty. After this Mr. Klamer heard no more of the subject of service in the Austrian army.

On August 20, 1883, being then nearly twenty-four years of age, and having resided in the United States for nearly ten years, he was naturalized as a citizen of the United States.

In 1885, in consequence of the advanced age of his father, Mr. Klamer returned to Austria and proceeded to Vienna. On the third day after his arrival in that city he was called before a police commissioner and informed that he was charged with being a fugitive from military service. This charge appears to have been discontinued. Several months afterwards Mr. Klamer was again called upon to appear before an officer of the military conscription department, but upon exhibition of his certificate of naturalization he was allowed to go. In 1887 his father died. Mr. Klamer and his brother, the only male members of the family, then undertook the settlement of the business of their deceased parent. In January, 1889, that task not having been concluded, Klamer received from the imperial royal police directory a notice of expulsion, which was to take effect on or before the 27th of that month. Upon the intervention of Mr. Jussen the execution of this decree was suspended, and the matter was brought to the attention of the legation, whose correspondence with the Austrian Government you have in your possession.

The grounds stated for the decree of expulsion are that Klamer had emigrated to the United States for the sole purpose of evading military duty as an Austrian subject, and that such conduct might give rise to public scandal; and, notwithstanding the representations of the legation, the decree of expulsion was finally executed.

This proceeding on the part of the Austrian Government appears to have been in derogation of the rights to which Mr. Klamer as a naturalized citizen of the United States of Austrian origin was entitled under the treaty of September 20, 1870. By Article I of that treaty it is provided that—

Citizens of the Austro-Hungarian Monarchy who have resided in the United States of America uninterruptedly at least five years, and during such residence have become naturalized citizens of the United States, shall be held by the Government of Austria and Hungary to be American citizens, and shall be treated as such.

The second article of the treaty provides that—

A naturalized citizen of the one party, on return to the territory of the other party, remains liable to trial and punishment for an action punishable by the laws of his original country, committed before his emigration, saving always the limitation established by the laws of his original country, and any other remission of liability to punishment.

In regard, however, to prosecutions for the evasion of military service the provisions of the article are explicit. The conditions under which a former citizen of the Austro-Hungarian Monarchy who is to be held as an American citizen under the treaty is liable to trial and punishment according to the laws of Austro-Hungary for nonfulfilment of military duty are especially stated, as follows:

  • First. If he has emigrated after having been drafted, at the time of conscription, and thus having become enrolled as a recruit for service in the standing army.
  • Second. If he has emigrated whilst be stood in service under the flag or had a leave of absence only for a limited time.
  • Third. If, having a leave of absence for an unlimited time, or belonging to the reserve or to the militia, he has emigrated after having received a call into the service or after a public proclamation requiring his appearance, or after war has broken out. On the other hand, a former citizen of the Austro-Hungarian Monarchy, naturalized in the United States, who, by or after his emigration, has transgressed the legal provisions [Page 29] on military duty by any acts or omissions other than those above enumerated in the clauses numbered one, two, and three, can, on his return to his original country, neither be held subsequently to military service nor remain liable to trial and punishment for the nonfulfillment of his military duty.

It is evident that Mr. Klamer had violated none of the provisions of Austrian law relating to military service, as above defined, and consequently that by the terms of the treaty he was exempt from liability to such prosecution.

In view of this fact, and of all the circumstances of the case—his early emigration to the United States, his long residence here, the object of his return to Austria, and of his residence in that country—it seems to the Department that neither the ground alleged for Mr. Klamer’s expulsion nor the oppressive proceedings to which he was subjected were warranted by the facts.

You are instructed to bring this subject to the attention of the imperial royal ministry for foreign affairs in the sense of this instruction.

I am, etc.,

James G. Blaine.
[Inclosure 1 in No. 25.]

Mr. Klamer to Mr. Blaine.

Honorable Sir: In the following lines I beg leave to bring to your notice in concise form a case of flagrant violation of the rights of an American citizen, and also a violation of the treaty between Austria and the United States of America:

Born in Vienna, Austria, on the 12th of November, 1859, I emigrated to the United States in October, 1873, landing in New York, New York State, being at the time barely fourteen years of age, having an Austrian passport of three years duration. When nineteen years of age I appeared at the Austrian consulate of New York, having been cited there by an order to be examined as to my bodily ability to be enlisted into the Austrian army.

I thereupon asked the only person present there at the time what was to be done. Mr. Meyer, the secretary of the Austrian consulate, told me I should appear before a notary public and in the presence of two witnesses declare my intention to become an American citizen. This done, I brought him the document, and after having signed a request to the Austrian Government, drawn up by Mr. Meyer, asking the aforesaid Government to cross my name off the list of citizens Austrian born, and as a consequence from the military list, he told me that he would forward the two documents to the competent Austrian authorities, and that nothing more was necessary. And while in the United States I never again was notified from the Austrian consulate to appear before it. I then passed my examination at the New York College of Pharmacy, well knowing that I could not practice pharmacy in Austria with an American diploma; but since I never intended to go back it made no difference to me.

In 1885 my father, then seventy-eight years of age, called me back, he no longer feeling able to attend to his business of a cotton goods manufacturer, a business which was the support of the family, and, feeling his end draw near, wanted to settle up his affairs, and insisted on my return to help him. In consequence I sailed in October, 1885, and really found plenty to do. On the third day after my arrival I was called before a police commissioner and was told I was wanted as a military fugitive, and on my asking was told that the Government had refused to cross me off their list as a citizen born in Austria, and therefore my name was carried forward year by year as a fugitive from my military duty. I then went to Mr. Jussen, the consul-general in Vienna at the time, and he placed me under his protection. I told this gentleman that I was able to swear that I was never notified of this refusal of the Austrian Government, or else I should certainly have undertaken the proper steps to save me the humiliation that was in store for me.

After the lapse of some months I had to appear before an officer of the military conscription department, but, after showing my citizen paper, dated the 20th of August, 1883, superior court of New York, I was again allowed to go. I intended to go back to New York in the spring of 1888, and accordingly went to the legation of the United States and procured a passport, signed A, R. Lawton and dated the 16th [Page 30] of February, 1888, and to obtain this I swore that in all probability I should sail during the spring of that year.

My aged father died eighty years of age on the 17th day of December, 1887. The only male members of the family, my brother and myself, then took charge of the business under the old name of the Arm, but according to Austrian law we had to register our own names, on account of the business taxes. We thought we could arrange the inheritance among ourselves, being my mother, two sisters, my brother and myself, all being of age, but it transpired that father had in his will given the part of my oldest sister to her children, and, in consequence, there were minors in the transaction, and the court took the whole affair into hand. I therefore could not leave, but had to wait until the court should have divided the inheritance. But 1888 went by, and in the spring of 1889 the court had not arranged yet. In April, 1889, I was again called before an officer of the city council of Vienna, and after taking down a protocol wherein I stated all the foregoing, I could go. But a few days after, I got notice from the president of the police of Vienna to leave the city within forty-eight hours. I thereupon went again to Mr. Jussen, who protested against the expulsion, claiming a violation of the treaty.

The grounds and reasons handed down to the police from the department of the interior upon which I was to be expelled, were:

“It being evident that the said Hugo Klamer having emigrated to the United States with the sole purpose to evade his military duty as an Austrian citizen, and furthermore, since this might give rise to public scandal, he is, therefore, for all time to come, expelled from Austria.”

The order of expulsion only says that I am expelled forever, because I am found to be a person “endangering public order.”

Now, I was never arrested, was highly respected by everybody, and never talked about my American citizenship, much less bragged about it. Mr. Edmund Jussen claimed that a man like myself, having so much of the most vital importance at stake, and having to conduct the business, the largest portion of the wealth and means to live for the whole bereaved family, was under the circumstances ninety-nine times out of a hundred, compelled under such a pressure, to renounce his American citizenship and become again an Austrian.

But, I think it is Article VIII of the treaty says: “That no attempt shall be made by either party to bring or force a citizen of the other part upon his return to his native country to renounce the acquired citizenship.” The endeavors of Mr. Edmund Jussen, consul-general, and Mr. A. E. Lawton, minister plenipotentiary, but more particularly those of my lawyer, Mr. Johann Letschke, of Vienna, only had the effect to postpone my expulsion up to the 1st of September, 1889. So I am expelled from Austria forever like a criminal, and that for no just reason.

I hope to have convinced your honor that the reasons for my expulsion can not be called reasons at all.

I have at the present time no business interest in Austria, having sold out to my brother, and intend to live in the United States; but my mother living, I might at some time again have to look to my interests, and could not go on account of being expelled.

There are plenty of Austrians that are not citizens, doing business and making money here without ever being molested; then why should an American citizen that has been in this country since his early youth not go over to Austria on a visit, when Austrians as before said live and do business in the United States, and then go back and enjoy their gain in Austria? I am not envious of them, but why should there not be equal right on both sides?

I hope your honor will take notice of this, my appeal to you, to take the shame of being expelled like a criminal from me as an American, law-abiding, and orderly citizen, and give me the hope that I might at least have the right to go over there again when my duties to my mother or my interests demand it.

Hoping to receive your esteemed reply, I take the liberty to annex my address, and beg to remain,

Yours, very respectfully,

Hugo Klamer.
[Inclosure 2 in No. 25.]

Mr. Jussen to Mr. Rives.

No. 301.]

Sir: I have the honor to report that on the 18th day of January ultimo Mr. Hugo Klamer, a naturalized American citizen, applied to this consulate-general for protection against a decree of expulsion issued against him by the imperial royal police directory of this city.

[Page 31]

All the facts in the case, as well as the argument upon which the official protest of this consulate-general was based, will appear sufficiently and clearly from the several inclosures herewith respectfully transmitted.

The time originally fixed for carrying the decree of expulsion into effect expired on January 27th ultimo, and no reply having been received up to the 23d of January from the imperial royal police directory by this consulate-general, I considered it my duty under the regulations to submit all the papers in the case to the United States legation for further action. Since that date I have been favored with an answer from the police directory, from which it appears that an appeal has been taken by Mr. Klamer to the municipal government, and that the original decree, together with my protest has been referred to this tribunal for final decision. Up to this date no definite action has been taken by the city authorities, but I understand that the United States legation has presented the case, together with a copy of the protest, to the imperial royal ministry of foreign affairs. To what extent and purpose the ministry of foreign affairs may influence and control the final decision of the municipal government remains to be seen. Whatever action, however, may be taken in the premises, there can be no doubt that such action will be dependent on the sanction of the ministry of foreign affairs, and a definite construction of the treaty applicable to this case will thus be obtained from the highest authority in the empire.

I trust the Department will approve of the spirit and tenor of my protest, and will concur in the view that it is highly desirable that a clear understanding should be arrived at with reference to the construction of the treaty in question, so that our Government may be fully advised as to the treatment to be expected by naturalized American citizens of Austrian descent when temporarily visiting their old home.

I have, etc.,

Edmund Jussen.
[Inclosure 3 in No. 25.—Translation.]

Mr. Jussen to the imperial royal police directory.

No. 4122.]

The Consulate-General of the United States of America begs leave to inform the honorable police directory that Mr. Hugo Klamer, a naturalized American citizen, has this day claimed the protection of his Government against the decree of expulsion issued against him by the honorable imperial royal police directory, a true copy of which decree is hereunto annexed.

Mr. Klamer has exhibited his American passport and his certificate of naturalization to this consulate-general, and the said documents were found to be genuine and valid in law. According to his statement, the truth of which, as I am informed, is not questioned by the honorable police directory, Hugo Klamer was born in Vienna in 1859, and emigrated in the year 1873, when he was in his fourteenth year, to the United States of America. The superior court of New York issued his certificate of naturalization on the 20th day of August, 1883, and he returned to Vienna, in the year 1885 for the purpose of visiting his father and of remaining here for a limited time.

His father died in 1887, and his death was the direct cause of the prolongation of Hugo Klamer’s sojourn in Vienna. He foresaw that the settlement of his father’s estate would require considerable time, and as he desired to fortify himself against all possible question as to his rights as an American citizen, he made the required application for a passport at the office of the United States legation in Vienna, and his passport was duly issued to him on the 16th day of February, 1888, after Mr. Klamer had affirmed in writing, under oath, that he intended to return to the United States of America, to fulfill his duties of an American citizen, as soon as his business in Vienna was arranged. Mr. Klamer now states with positive certainty that he expects to be able to return to the United States in the month of August of the current year.

It appears from the annexed decree of expulsion, and Mr. Klamer has been moreover officially informed, that the expulsion has been decreed in accordance with the provisions of the penal code of the year 1852 (paragraph 323), and that the imperial royal authorities regard Klamer as a fugitive, who emigrated to America for the sole purpose of avoiding military service, and who became an American citizen without first having obtained the consent of the imperial royal government.

According to the provisions of the treaty concluded between Austria-Hungary and the United States of America the reasoning upon which the expulsion is based does not seem tenable. The consent of the imperial royal government is only required in case the Austrian subject is held to military duty at the time of his emigration, in accordance with Article II of the treaty. But Hugo Klamer, emigrating as a boy at [Page 32] the age of fourteen years, was not subject to military duty, and can, therefore, according to the express language of said Article II, not be held to punishment for non-fulfilment of that duty, not even then, if it was proven that he emigrated for the purpose of evading military service in the future because Article II provides that the Austrian emigrant, naturalized in the United States, can, on his return, be held liable to punishment only if at the time of his emigration he was either a recruit enrolled for service, or stood under the flag, or belonged to the reserve or the militia, after a a public proclamation requiring his appearance had been issued, or after war had broken out.

Moreover, the assertion is hardly maintainable that a boy who emigrates at the age of fourteen years, who resides twelve years uninterruptedly in the United States and acquires American citizenship during his residence there, and then returns to his old home for the purpose of a visit, and is compelled by circumstances to prolong his visit, but declares under oath that he intends to return to the United States at an early day, has emigrated for the purpose of evading military service.

All the facts contradict this assertion and disprove the reasons advanced for issuing the decree of expulsion.

Nevertheless, Hugo Klamer, who has the undoubted right to be treated as an American citizen, is now to be held liable to punishment by the Imperial Royal Government because he failed to fulfill a condition which is not recognized in the treaty. Ho is to be expelled because he did not obtain the consent of the Government to his emigration, although such consent was not required in his case. He is to be punished because, it is alleged, he emigrated to avoid military service, although the facts prove that be emigrated to make the United States his permanent home, and although such punishment is not admissible under Article II.

As a consequence of this argument the great majority of all naturalized American citizens of Austrian descent might expect immediate expulsion on visiting their old home.

This consulate-general also respectfully begs leave to call attention to Article IV of the treaty in question, which provides:

“The emigrant from the one state who, according to Article I, is to be held as a citizen of the other state, shall not, on his return to his original country, be constrained to resume his former citizenship, yet if he shall of his own accord re-acquire it, and renounce the citizenship obtained by naturalization, such a renunciation is allowable, and no fixed period of residence shall be required for the recognition of his recovery of citizenship in his original country.”

The return therefore of the Austrian emigrant after his naturalization in the United States seems to be provided for and his right thereto guarantied. The inevitable and logical consequences of the privileges granted in this article are that the Austrian naturalized in the United States may return to the country of his nativity without being either directly or indirectly compelled to resume his former citizenship, and that he is entitled to a temporary sojourn in Austria.

The threat of expulsion, however, is equivalent to a compulsory measure and may make it expedient for the Austro-American citizen temporarily sojourning hero for the purposes of business to resume his former citizenship as the only refuge against expulsion.

For these reasons and in view of the provisions of the treaty heretofore cited this consulate-general believes it to be its duty to protest against the expulsion of Hugo Klamer.

Aside, however, from the reasons stated, other causes exist which argue against the expediency of the enforcement of so draconic a measure by the imperial royal authorities.

In the United States and especially in the port of New York reside hundreds of Austrian subjects who have, for a long series of years, been engaged in the importation of Austrian merchandise and have never harbored the intention to acquire American citizenship. These Austrians have in course of time increased the export of Austrian manufactures to the United States to the sum of 25,000,000 florins per annum. They are very successful competitors of the American importer as well as manufacturer, and monopolize almost completely the trade in Vienna specialties. Most of these gentlemen return to their old home to enjoy their fortune after they have amassed it in the United States. These foreigners are of no particular benefit to the United States; on the contrary, they impair the business interests of the American importer and manufacturer.

In view of these facts the question arises in what manner the action of the American authorities would be judged here in Austria, in case they should suddenly expel these foreign importers from the country and thus injure the export trade of Austria and especially that of the city of Vienna. And yet such action would only be in the nature of a retaliatory measure if the proposed expulsion of Hugo Klamer is carried out.

My Government has always made the most liberal concessions to foreigners, Even [Page 33] during the civil war, when a general conscription was ordered, the United States did not disturb the foreigners, although many of them, Austrians included, were transacting lucrative business, and were exempt from military duty, while the American stood in the field under arms and protected the persons remaining at home in their possessions.

An expulsion was not even thought of in those agitated times and much less carried out. How long these liberal and extremely humane views will prevail if expulsion of American citizens like the one in question is decreed here can not be predicted.

After submitting these facts and considerations, this consulate-general respectfully requests the honorable imperial royal police directory to answer this communication at its earliest convenience, and to inform the undersigned whether the honorable police directory is disposed to rescind the said decree of expulsion, or whether it affirms its decision. In the latter case the duty would devolve upon the consulate-general to submit the question, together with the correspondence relating thereto, to the United States legation at Vienna, for the purpose of obtaining a final decision on the part of the imperial royal ministry of foreign affairs, and thus giving my Government positive and final information with reference to the treatment which naturalized American citizens of Austrian descent may expect on the part of the Imperial Royal Government.

Inasmuch as the expulsion of Hugo Klamer is ordered for the 27th instant, this consulate-general begs to be favored with an answer by the 23d instant. If no answer should be received up to that date this consulate-general will be in duty bound to report the case at once to the United States legation, so that the question may be submitted to the Austro-Hungarian ministry of foreign affairs before the time fixed for expulsion expires.

With the assurance, etc.,

Edmund Jussen.
[Inclosure 4 in No. 25.—Translation.]

Decree.

The imperial royal police directory hereby issues the following decree, granting the right of appeal, upon the basis of the law of July 27, 1871, R. G. Bl. 88, paragraphs 1, 2, and 5:

Hugo Klamer is hereby, in accordance with the provisions of the penal code of the year 1852 [paragraph 323], permanently expelled from all the kingdoms and countries represented in the Diet (Reichsrath), and this from considerations of the public order, arid on the ground of the provisions of paragraph 2, chapter 5, of the law of July 27, 1871, R. G. Bl. 88.

Krauss, M. P.

This is a correct copy.

[seal.]
L. Wahber.

[Inclosure 5 in No. 25.—Extract.]

Mr. Jussen to Mr. Lawton.

Sir: In pursuance of consular regulations I have the honor to transmit herewith a copy of the protest addressed by this consulate-general to the imperial royal police directory of Vienna in re Hugo Klamer, together with a translation of the same.

The facts upon which the protest is based appear, I think, sufficiently clear upon the face of the protest.

I desire to state that I am fully aware of the inherent power vested in all governments to expel foreigners from their respective domains without any cause or provocation whatever, and that I am also informed as to the exceptional extent of power granted and exercised by the police authorities of this Empire. But in the case under consideration the expulsion is based upon a penal law, and the American citizen to be expelled has been officially notified that he is regarded as a fugitive from military service and to be punished as such. Against this position, and against this untenable basis of the draconic measure proposed, I believed it my official duty to protest.

In my protest I had asked the favor of an answer by the 23d instant, because the time fixed for expulsion expires, according to official notice served on Mr. Klamer, [Page 34] on the 27th instant. The honorable police directory has not seen fit to comply with my request, and having failed to obtain the desired redress from the local authorities I now beg leave to submit the whole question to you for the purpose of obtaining a final decision at the hands of the imperial royal ministry of foreign affairs. Inasmuch as it is not to be expected that the ministry of foreign affairs will render a final decision by the 27th instant, I would most respectfully suggest that a temporary stay of proceedings be applied for, in order to forestall the probability that Mr. Klamer be transported across the lines as a quasi criminal while his rights as an American citizen are held under consideration by the imperial royal minister of foreign affairs.

I am, etc.,

Edmund Jussen.
[Inclosure 6 in No. 25.]

Mr. Jussen to Mr. Lawton.

Sir: In my letter of this date, inclosing my protest in the case of Hugo Klamer, I omitted to call your attention to the fact that the proposed expulsion is permanent for all time to come, so that, if the decree is affirmed, Mr. Klamer can never again visit his old home, no matter what the exigencies of his business or his family relations may require.

The decree could not possibly be more sweeping and cruel unless confiscation of the property inherited from his father was added to the expulsion.

I think the proceeding is unusually harsh and certainly calls for an energetic protest.

I am, etc.,

Edmund Jussen.
[Inclosure 7 in No. 25.—Translation.]

Mr. Krauss to Mr. Jussen.

Sir: Referring to your esteemed communication of the 18th instant, No. 4122, in regard to the expulsion decree issued against the American citizen Hugo Klamer, under date of January 15 instant (No. 350), I beg leave to inform you that the said Klamer has, under date of January 21 instant, appealed from this decree, of which he was notified on January 18 instant.

The expulsion decree has, therefore, not as yet gone into effect, but will, together with the documents thereto appertaining, and with the motion for appeal annexed, be submitted to the honorable municipal government (Statthalterei) as appellate tribunal for competent decision.

The time for the eventual enforcement of the decree can, therefore, not be fixed before this decision is rendered, and the belief that the 27th of January instant was fixed for the carrying out of the decree, as stated in your esteemed communication, is based upon a misunderstanding.

I have forwarded your esteemed communication, together with the motion for appeal, to the honorable municipal government (Statthalterei) for further action.

With the assurance, etc.,

Krauss.
[Inclosure 8 in No. 25.—Translation.]

Mr. Jussen to Mr. Krauss.

Sir: I have the honor to acknowledge the receipt of your esteemed communication of the 22d instant, which was, however, not delivered to me until to-day, and I respectfully beg leave to inform the honorable imperial royal police directory that, in pursuance of the provisions of consular regulations, I have already transmitted a copy [Page 35] of the protest entered by this consulate-general against the proposed expulsion of Hugo Klamer to the United States legation, under date of the 24th instant, because I was under the impression that the said protest had been rejected by the honorable police directory, as I had not the honor to be favored with an answer to the same by the 23d instant.

As regards the statement contained in the esteemed communication, namely, “that the belief that the 27th day of January instant was fixed for the carrying out of said decree was based upon a misunderstanding,” I respectfully beg leave to say that Mr. Hugo Klamer informed this consulate-general that at the time when said expulsion decree was served upon him he was notified by the imperial royal police officer making such service that said decree would be enforced on the 27th instant.

Inasmuch as this consulate-general regarded this verbal notice as official, and as no date for the enforcement of the decree was noted upon the face of this document, this consulate-general thought it proper to be guided in its action by the verbal notice referred to.

With the assurance of my grateful appreciation of your esteemed communication and of the explanation with reference to the mode of procedure in the case under consideration,

I have, etc.,

Edmund Jussen.