Papers Relating to the Foreign Relations of the United States, With the Annual Message of the President Transmitted to Congress December 8, 1908

File No. 1518/172–175.

Minister Rockhill to the Secretary of State.

[Extract]

American Legation,
Peking , September 12, 1908 .

No. 1005.]

Sir: In the legation’s dispatch No. 765, of October 22, 1907,¹ was forwarded to you a copy of an imperial edict of October 17, 1907, concerning the establishment of “provincial deliberative assemblies “and “councils of deliberation” in all the various prefectures, departments, and districts in the Empire. These bodies were to discuss matters relating to the reforms to be introduced in the administration of the country, so far as they affected local interests, and to make recommendations to the high provincial authorities.

On July 22 of the present year imperial sanction was given to a memorial submitted by the bureau for the collation of administrative methods and the constitutional commission jointly, containing a set of regulations, 62 in number, defining the duties of the provincial deliberative assemblies, their membership, the mode of election, the qualifications of voters, their organization, etc. The powers granted these assemblies (VI, sec. 21–30) would be ample to make them valuable aids to the Government in enlightening it on the wants of and conditions in the Provinces, especially as liberty of discussion and personal inviolability are insured the members (XII, 39–40), but the provisions (X, 46–54) place in the hands of the viceroys and governors absolute control over them and their deliberations.

On the same day as that which these regulations were published, July 22, last, there appeared another imperial edict ordering the convening of the provincial deliberative assemblies in every Province of the Empire before July 22, 1909, and directing the bureau for the collation of administrative methods and the constitutional commission to jointly report to the Throne on the question of the basic principles of the so-called constitution, on the methods to be followed in electing members to the Imperial Parliament (to be called in 1917), and on-the general powers to be vested in it. The same edict called for a detailed scheme of the reforms to be put in force throughout the Empire prior to the calling of the Parliament, and the adoption of which is considered an indispensable prerequisite to its successful operation.

The edict and the memorial of the bureau and commission intrusted with this work, which was published on August 27 last, are inclosed, and form a document of the highest interest. The first part of the memorial lays down the fundamental principles which must be followed in shaping all future measures in the work of transforming the Empire, so as “to conserve the power of the Sovereign and protect the officials and people” by the grant to them of certain privileges and rights to be guaranteed by imperial decree. The principle, the only, preoccupation of the memorialists has been to preserve undiminished the autocratic powers of the Sovereign, while bringing him in closer relation with the people through the medium of the provincial assemblies and the Imperial Parliament, which are to be purely consultative bodies without any power whatsoever, not even that of choosing the subjects of their debates. It can not be doubted, however, that the calling into existence by the Government of these assemblies, that the encouragement now given to discussion by the people and their direct representatives of local and national issues, will have ultimately far-reaching effect on the future of the country.

The Government of China has rarely ignored popular opinion. It has accepted its conclusions, even when conflicting seriously with its wishes or interfering prejudicially with its plans.

The second portion of this long document contains the detailed program of reforms to be carried out by the imperial and provincial governments before the convening of the imperial parliament in 1917. They may be classed under five principal heads:

1. Measures dealing with the representative assemblies, local, provincial, and imperial;

2. Measures dealing with finances, including a general census, ascertainment of the revenues and expenses of the Empire, establishing rates of taxation, both local and provincial, and a general method of public accounting;

3. Preparation and revision and publication of codes and establishment of courts;

4. Extension of the national educational system; and

5. Reorganization of the various offices of government, of the banner corps and the imperial clan; also of civil service generally, and perfecting and extending the police forces throughout the Empire.

The year of 1916, the last before the convening of Parliament, will see the promulgation of the constitution, the fixing of a budget, the official system reorganized, and a president of council (or premier) chosen by the Throne; and with that the new era will begin, the rate of literacy being by that time brought up to 5 per cent.

It seems highly probable that before the beginning of the new era many changes in the program of the Government will take place, and that many new regulations will be compiled, sanctioned by the Throne, and published. However that may be, the present program clearly indicates the tendency of the statesmen in charge of the reform movement, the limitations they hope to impose on it, the object they seek to attain, which would seem to be no other than a perpetuation of the existing system under a thin veil of constitutional guarantees.

It is instructive to note that a fortnight after the issuing of the edict of July 22, but some days before its publication, another imperial edict appeared commanding the universal suppression of the political society (Chen-wen-ssu) which had come into existence little more than a year ago in agreement with the invitation from the Throne to the nation to submit to the Government schemes of prospective reform and enlighten it on the wishes and wants of the people.

I have, etc.,

W. W. Rockhill.

[Inclosure 1.—Translation.]

Memorial and edict on constitutional government, August 27, 1908.

A memorial in obedience to the imperial command selecting the important points, collecting the general principles of constitutional system, and all the methods of choosing members of a Parliament, together with the preparatory measures to be taken every year before a Parliament has been assembled, carefully planned in sequence and duly set forth awaiting the sacred inspection.

On the 24th day of the 6th moon of the 34th year of Kuang Hsii (July 22, 1908) an imperial edict was issued as follows:

“We have received the command of Ts’u-hsi-tuan-yu-k’ang-i-chao-yu-chuang-ch’eng-shou-kung-ch’in-hsien-ch’ung-hsi, Empress Dowager, that the bureau for the collation of administrative methods, the constitutional commission, and the Princes I-K’uang and P’u-lun, shall jointly memorialize, proposing the regulations for the organization of the provincial deliberative assemblies and the selection of members of Parliament. The provincial deliberative assemblies will choose the places for the deliberative assemblies to meet and the constitutional commission will arrange the different steps to be taken in choosing members of Parliament, and serve as a foundation for a parliament.

“The matter is of great importance and must be arranged with care. The regulations which the princes and ministers have presented have been carefully examined and found satisfactory. Action will be taken on the lines proposed for the manifestation of justice.

“As deliberative assemblies (Tzu I Chü) are to be established in every province for purposes of training, all our officials and people should together exert themselves, all actuated by loving loyalty, pointing out truly profit to be gained and abuses to be remedied in their respective localities. The people should earnestly fulfill all the duties incumbent upon them in the proper order without selfish reservations, which would hinder the public welfare, and without rash impatience which would confuse the regulation, not looking upon the matter as too easy, so that the deliberations become empty wrangling, not failing to understand the limitation of powers, so as to make laws which overstep authority. Above all we hope that our people will not try to keep anything back, but will understand how to respect the authority of the Government.

“Viceroys and governors ought also to cherish the spirit of ‘concentrating thought upon the extension of advantages.’ They must keep in sympathy with the people. They must investigate with unbiased mind and devote themselves to good works. When high and low are in practical unanimity right will gradually prevail.

“In regard to the election of members of Parliament it is important above all that the civil authorities of every place should supervise the matter faithfully, that proper selection may be made. On no account should men of low principles or bad conduct be allowed to hinder the peaceful establishment of government. The plan in these sections proposed by the princes and ministers is very acceptable. As to the sanction regarding the limit of time for the establishment of constitutional government it is an essential feature of the plan. Though it is impossible to force an exact identity with the constitutional arrangements of other nations, the important principle is that executive power belongs to the officials, and deliberative functions to the members of Parliament. And the great principle is that, above, power shall not be arbitrarily exercised, and below, there shall be no obedience. The establishment of constitutional government in China has been by the imperial will. It must be carefully prepared for. The beginning and the end must both be carefully planned. There must be no empty verbiage without real substance. The bureau for the collation of administrative methods and the constitutional commission, and the princes and ministers shall direct those who are skilled in the service of government in the bureau and commission to cull out the good features of other governments, to show discrimination in the establishment of constitutional government, announcing without delay the important features of the constitutional regime as regards the Sovereign and the method of choosing members of Parliament, collating the important points and deciding on the order of the preparatory measures to be taken every year until the time for the opening of Parliament, and memoralizing in detail.

“After the imperial scrutiny the time for opening Parliament shall be publicly announced in order to arrange the action to be immediately taken by our officials and people and satisfy the aspirations of our people in the matter of government, and in order to cause all the people to know that the proper time having arrived the court has the inflexible purpose to change the old methods.”

We look up to our Empress Dowager and Emperor and see that they take the measure of heaven and earth as their measure, and the heart of the people as their heart, they consult the general welfare and ignore self-interests. With such motives all things must turn out right. The onicials and people within the wide seas are reverently grateful.

The memorialists, in obedience to the imperial command, have directed those skilled in the science of government in the bureau and commission to select and consider carefully the proper measures to be taken. These experts have now made their report, which the memorialists have gone over with painstaking carefulness and they have come to a unanimous decision.

It should be noted that the nations of the East and the West all have established constitutional governments. Some have done so by pressure from below and some under influences from above. All have constitutions and parliaments. Those which have established their constitutions under pressure from below have commenced with strife between sovereign and people and have ended the work by mutual concessions between sovereign and people. Those that have established their constitutions under influences from above have first determined the ultimate authority of the court, and thereafter there has been granted to the people the advantage of inquiring about the affairs of government. The organizations of the various governments differ according as they have been fixed by the sovereign or by the people. Parliaments are single or in two houses. Now the court selects the merits of the different systems to form the rules of procedure. It must look within and study the nature of the government and down to examine the disposition of the people, and when the matured power of the throne is resistless then issue the order.

In most of the nations in which the constitution has been granted from above the origin of all power is in the court. The parliament must grow out of the constitution, not the constitution out of the parliament. The Government of China is to be constitutional by imperial decree. This is an unchangeable principle. Therefore in regard to establishing a parliament, the general principles of the constitution will be settled as a preliminary. When they are announced the parliament may be assembled. The principles of the constitution are the great laws which may not be discussed. Once fixed they may not be lightly altered. They are not like other laws, which may be changed according to circumstances. Therefore in first drawing up these constitutional laws, unless time is taken and unless they are minutely studied into, proper care will not be displayed.

In drawing up these laws, although they can not be finished hastily, yet the broad principles underlying them ought to be first settled, so that all rules drawn up afterwards may be in accord with these principles. Now, the constitution is the fundamental law of the government, to be respected by sovereign and people alike. From the Son of Heaven to the common people, all must respect it and not lightly violate it. The original government of other countries where constitutions have been granted to the people by the sovereign have not been alike, and so the constitutions differ, but if we consider the most important principles, they are only a few in number.

• First. The sacred majesty of the sovereign may not be offended against.
• Second. The sovereign has absolute power, which he exercises in constitutional forms.
• Third. The officials and people, according to the laws, have privileges to which they are entitled to and duties which they owe. All other matters result from these principles as the root. For example, that the government (not this Government) may be criticized by the parliament grows out of the principle that the “sacred majesty of the sovereign may not be offended against.” That the parliament may assist by advice in the making of laws and investigate the public finances grows out of the principle that the people are protected in the exercise of certain privileges and duties. That judges are appointed to exercise jurisdiction in legal matters and the administration of the laws grows out of the absolute governing power of the sovereign. All may be comprised in one sentence. The constitution is designed to conserve the power of the sovereign and protect the officials and the people. The memorialists, making this a fundamental principle, have drawn up articles to embody the general principles of the constitutional government. At the beginning the superior powers are enumerated to show that the sovereign is the basis of support for the officials. Next the privileges and duties of officials and people are enumerated to show that the people are the foundation of the state. Although sovereign and people are included in the scope of the law, yet superior power centers in the court. Although the applicable parts of the laws of other countries have been culled out, yet the original governmental principles of China have not been violated. The rules for the election of members of parliament are an essential part of the constitutional arrangements. In respect to the limitation of the deliberative powers and the conditions of eligibility of election and candidates, unless there are fixed rules, it will lead to confusion as the time approaches, and they must be settled according to correct general principles to insure success. When the imperial sanction has been obtained the memorialists will instruct the officers engaged in this work to draw up detailed rules in accordance with these general principles. But the time must be long for the discussion of all points, that nothing may escape notice. When this work is finished it will be submitted to the imperial inspection, and after it has been approved it will be published. In regard to the preparation to be made for opening parliament there is great confusion and it is necessary to have a definite order of procedure. It is like building a house. Workmen and material must be gathered. The house may then be planned and worked out. The work must be watched day and night without intermission from the beginning to the end, and so it may reach completion. Or it is like making a journey. Clothing, food, boats, and carts must be got ready, and the traveler must press on day after day without stopping for rest, and so he will reach his destination. These are the general principles of action. Certain things must be done from above, as systematizing the government’s finances, for which the census is of the utmost importance. Also the distinction between Manchus and Chinese must be swept away. Official duties must be defined. The laws must be codified. Courts of law in regular gradation must be established. Next, there are matters which must be prepared from below. Education must be extended. The increase of knowledge is of the greatest importance. Practice in self-government is next in importance. If all such important matters are not first attended to, but are left to be settled when parliament is opened, there will be no certain rules for parliament to proceed upon. If there are no statistics of population or wealth, how can the members of parliament be elected? If the laws are not codified, how can government affairs be discussed? If the education of the people is not complete how can they meet the requirements of electors or candidates? If local government has no fixed method, how can the people receive their powers and privileges and assume their duties? So parliament would be an empty name, and would be of no assistance to the government. It would not be built on solid facts.

In regard to the period of time required. From 3 to 5 years would be the shortest time for completing all this and 10 years would be the longest time necessary. The memorialists have agreed that, reckoning from the thirty-fourth year of Kuanghsu (1907–8) as a beginning to the forty-second year, these 9 years will be sufficient to get everything in readiness. They have respectfully prepared a schedule. The time for convening parliament should be fixed by imperial decree. The memorialists also earnestly beg that, as the condition of the country is perilous and the hearts of the people uneasy, trouble within and calamity from without, danger threatening, and no parliament at the side to investigate matters, urgent measures may be taken to overcome half-heartedness and procrastination, that there may be peace above and completion below. Nothing is more important than systematizing the laws of government, bringing about sincere mutual confidence.

The general principles laid down by the memorialists with the limitations of power may not be changed in the least particular. The program for the work of the nine years should be given to the officials in Peking and the provinces to be carried out honestly, without the least evasion. It is necessary to beg that an imperial edict warn officials and people throughout the Empire to respect the regulations and stimulate each other to move forward cautiously but per-severingly, each doing his utmost to secure good government. So there will be boundless daily improvement. The general principles of the constitution, rules for the parliament and for the election of members of parliament, and the preparatory work of each year are now respectfully presented for the imperial examination, and the imperial will as to the date for convening parliament is reverently awaited. May the “silken sounds “descend to inform the Empire and fix the road for ten thousand years, comforting the hopes of myriads who long for peace.

The memorialists have carried on their work with the greatest care. The bureau for the collation of administrative methods has revised the draft in consultation with the constitutional commission. This detailed report is drawn up in obedience to the imperial order and respectfully submitted for the approval of Their Majesties the Empress Dowager and the Emperor.

The general principles of government, of the organization of parliament, and the general rules for the election of members of parliament, drawn up in obedience to the imperial will, are as follows (the detafed regulations will be issued when methods of government are considered). It is reverently noted that in the form of constitutional government established by the sovereign all power belongs to the sovereign making the laws, the executive work of the Government and the administration of the laws are all his general prerogative. In making laws the parliament will advise. In the executive work of government the Government (officials) will assist. The judiciary department will administer the laws in accordance with the statutes. From the Throne to the officials and common people, all will act in accordance with the constitution established by the imperial will. It is hoped that this will be observed forever without any encroachment of authority. With this idea as the root the following (constitutional) laws are respectfully submitted:

the powers of the sovereign.

1. The Ta Ch’ing Emperor will rule supreme over the Ta Ch’ing Empire for one thousand generations in succession and be honored forever.

2. The sacred majesty of the sovereign may not be offended against.

3. Laws shall be made and promulgated by the sovereign, and he has the power to determine what may be assigned to others for deliberation. (Laws which have been passed by the parliament shall not become operative until approved and promulgated by the sovereign.)

4. The sovereign has the power to convoke, to open and to close, to suspend and to extend the time of, and to dissolve parliament. (On the dissolution of parliament the people shall be called upon to elect a new parliament. The members of the old parliament shall be classed with the common people. If any of them commit offenses they shall be punished by the proper court according to circumstances.)

5. The sovereign has power to appoint all officials and fix their salaries, and to degrade or promote them. (The power to use men rests with the Emperor. The parliament may not interfere with this.)

6. The sovereign has supreme command over the army and navy, with power to make all regulations concerning them. (The sovereign may dispatch armies and fix the number of soldiers. In this his power is absolute. The parliament may not interfere in military affairs.)

7. The sovereign has power to declare war and to make peace, to make treaties, to appoint and receive ambassadors. (Foreign relations will be controlled by the sovereign, without the advice of the parliament.)

8. The sovereign has power to take repressive measures, and in times of emergency to deprive officials and people of their personal liberty.

9. The sovereign has the power to confer distinctions and to issue pardons. (Mercy is from above. Officials, below, may not arrogate it to themselves.)

10. The sovereign has supreme power over the administration of the laws and the appointment of judges, but he will act in accordance with the imperially sanctioned laws, and not make changes arbitrarily. (Power to administer the law rests with the sovereign. Judges are appointed by the sovereign to act for him in the administration of the laws. Changes will not be made by the sovereign arbitrarily, because the interests at stake in law cases are important, so that imperially settled laws must be treated as final to avoid confusion.)

11. The sovereign has powers to issue “imperial orders “or to cause them to be issued, but in the matter of laws which have already received the imperial sanction he will not change or abrogate laws which have already received the imperial sanction without first obtaining the advice of parliament and acting on its memorial. (Statutes proceed from the power of the sovereign to administer the laws. Imperial orders proceed from the power of the sovereign to carry on government. The two powers are distinguished. Therefore “imperial orders” may not be used to abrogate statutes of law.)

12. When parliament is not in session, in case of urgent necessity, the sovereign may issue emergency orders to raise funds which may be necessary. But the next year when parliament meets he shall refer such matters to the parliament.

13. The expenses of the imperial household shall be fixed by the sovereign and taken from the national treasury without reference to parliament.

14. In the great ceremonies of the imperial household the sovereign shall have supreme authority over the imperial clan and shall appoint ministers to settle such affairs. The parliament may not interfere.

powers, privileges, and duties of the officers and people.

1. All officers and people who have the qualifications prescribed by law are eligible for appointment as civil or military officials and members of parliament.

2. Officers and people who keep within the law will have freedom of speech, of the press, and of assembly.

3. Officers and people shall not be liable to arrest, restrictions, or punishments except as prescribed by law.

4. Officers and people may appeal to the judiciary officials to judge their cases.

5. Officers and people can be judged only by those specially appointed to act as judges.

6. Officers and people shall not be disturbed without cause in their possession of property, nor interfered with in their dwellings.

7. Officers and people have the obligation to pay taxes and render military service as the law may prescribe.

8. Officers and people shall continue to pay taxes at the rate now assessed until the law has been changed.

9. Officers and people have the duty of obedience to the law of the land.

general laws concerning parliament.

1. The parliament has only deliberative powers. It has no executive power. Measures which have been decided upon by parliament shall not be carried out by the Government until after the imperial sanction has been obtained.

2. Measures brought up for discussion in parliament must be such as relate to the welfare of the whole nation and not local matters affecting one Province only.

3. Regular annual expenditures which have been determined by imperial fiat, or which are required by law, shall not be abolished by parliament except in consultation with the Government. (The exact figures must be arrived at by proper accounting methods.)

4. Parliament shall assist in estimating the annual budget of revenue and expenditure.

5. If any higher officer of the Government is guilty of violating the law, parliament may impeach him only. The power to retain or dismiss rests with the sovereign. Parliament must not interfere with the right of the Throne to promote and degrade officials.

6. After measures have been agreed upon by the upper and lower houses of parliament they may memorialize the Throne and the measures will be put in force after they have received the imperial sanction.

7. When parliament memorializes the Throne it shall be done through the presiding officer of the parliament.

8. Members of parliament shall not speak disrespectfully of the court or slander others. Violation of this law will be punished.

9. When parliament is in session, the presiding officer shall have the power of directing, conducting judicial examinations, and keeping order. When any member offends against parliamentary rules the presiding officer may silence or expel him.

10. If any member of parliament does not have the proper qualifications, when the presiding officer shall have clearly established the fact, the name of the member shall be immediately expunged.

11. Societies for the study of parliamentary methods which may be organized in the Provinces shall respect the laws for societies and assemblies, and shall not take advantage (of their organization) to collect money and practice extortion. The local officials shall punish any violation of this rule.

general rules concerning elections.

1. Elections for members of parliament shall be presided over by the prefects, subprefects, and department and district magistrates.

2. Those who lack the legal qualifications shall not vote nor stand as candidates. (These are, men of bad character, bullies, men who have been convicted of crimes, men whose professions are not respectable, men who have been involved in dishonorable business transactions, men regularly accused of crime whose cases have not yet been adjudicated, users of opium, those having mental infirmity, those whose family record is not unblemished, and the illiterate.)

3. On election days inspectors shall be appointed, who shall strictly scrutinize the casting and counting of ballots, to prevent fraud.

4. Special penalties will be decided upon for election frauds (such as casting illegal ballots or falsifying the election returns) and fines will be imposed according to the gravity of the offense.

5. Election by ballot will be by plurality of the votes cast. Formerly the choice of head men has been called election, but whether the officials have handed down the decision or the influential gentry have recommended, there has been fear of giving offense, and no confidence that the wish of the people had been gained. Now the ballot system has been adopted and will be carried out strictly, in the hope that all these abuses may be done away with.)

6. Those who have not been residents of their native places for one year or more before the time of election shall not have the right to vote or to stand as candidates.

the program for the measures to be carried out every year until parliament is convened.

Kuanghsu 34th year (1908)

1. The establishment of provincial deliberative assemblies by viceroys and governors.

2. Publishing the rules for local self-government in all cities, market towns, and villages. (The board of the interior to cooperate with the constitutional commission.)

3. Publishing the rules for reorganizing the financial system. (By the board of revenue.)

5. Asking an edict for the establishment of a banner reorganization office, for devising means for the support of the eight banners, and the fusing of banner-men and Chinese. (By grand council.)

6. Composing lesson books for the easy learning of written characters. (By board of education.)

7. Composing lesson books for the compulsory use of the people. (By board of education.)

8. Revision of the criminal code. (By board of law.)

9. Publishing municipal laws, mercantile laws, rules of court procedure in civil and criminal cases. (By the commissioner for the revision of the laws.)

Kuanghsu 35th year (1909)

1. The election of members of the provincial deliberative assemblies to be carried on in every province. (By viceroys and governors.)

2. Publishing the rules for the constitutional commission and holding elections for the same. (Constitutional commission to cooperate with viceroys and governors.)

3. Establishing local self-government bureaus in every walled town, market town, and village. (The board of the interior to cooperate with viceroys and governors.)

4. Publishing rules for self-government for the independent subprefecture (T’ing), departments (chou), and districts (hsien). (The board of the interior and the bureau for the collation of administrative methods to cooperate.)

5. Taking a census of every province. (Board of the interior and viceroys and governors to cooperate.)

6. Estimating the annual revenues and expenses of every province. (Board of revenue and the viceroys and governors to cooperate.)

7. Determining the functions of the Peking officials. (The bureau for the collation of administrative methods to cooperate with the Government council.)

8. Fixing the rules for the examination of civil officials, appointments, and salaries. (The bureau for the collation of administrative methods to cooperate with the Government council.)

9. Publishing the methods of organization of the high law courts. (The bureau for the collation of administrative methods to cooperate with the commissioner for law revision.)

10. Arranging the law courts of the provincial capitals and the treaty ports. (The board of law to cooperate with the viceroys and governors.)

11. Drawing up the new criminal code. (The bureau for the collation of administrative measures.)

12. Publishing textbooks for the easy learning of characters, and establishing schools for the easy learning of characters in the subprefectures, departments, and districts. (The board of education.)

13. Publishing textbooks for the compulsory use of the people. (The board of education.)

14. Drawing up of general rules for the police in the subprefectures, departments, and districts. (The board of the interior to cooperate with the viceroys and governors.)

Kuanghsu 36th year (1910)

1. Collecting the members of the provincial assemblies and opening the assemblies. (The constitutional commission.)

2. Continuing the measures for self-government in the walled towns, market towns, and villages. (The board of the interior to cooperate with the viceroys and governors.)

3. Organizing self-government for the subprefectures, departments and districts. (The board of the interior to cooperate with the viceroys and governors.)

4. Reporting the census of every province. (Board of the interior to cooperate with the Viceroys and governors.)

5. Devising methods for recording native place of all inhabitants. (Bureau for the collation of administrative methods to cooperate with the Government council.)

6. Reckoning again the annual revenues and expenditures of every province. (Board of revenue to cooperate with the viceroys and governors.)

7. Fixing the local taxation rate. (Board of revenue to cooperate with viceroys and governors and bureau for the collation of administrative methods.)

8. Trial of the system of estimated budget in every province. (Board of revenue to cooperate with the viceroys and governors.)

9. Fixing organization of provincial officials. (Bureau for collation of administrative methods to cooperate with the Government council.)

10. Publishing rules for the examination of civil officials, for appointments, and salaries. (Bureau for the collation of administrative methods to cooperate with the Government council.)

11. The establishment within the year of courts of law at the provincial capitals and treaty ports. (Board of law to cooperate with viceroys and governors.)

12. Publishing new criminal code. (Bureau for the collation of administrative methods to cooperate with the commissioner for the revision of the laws.)

13. Extending the schools for easy methods of learning characters in the sub-prefectures, departments, and districts. (Board of education to cooperate with viceroys and governors.)

14. Finishing preparations for police in the subprefectures, departments, and districts within the year. (Board of revenue to cooperate with viceroys and governors.)

Kuanghsu 37th year (1911).

1. Continuance of measures for self-government in the walled towns, market towns, and villages. (Board of the interior to cooperate with viceroys and governors.)

2. Continuance of measures for self-government in the subprefectures, departments, and districts. (Board of the interior to cooperate with viceroys and governors.)

3. Drawing up of the census of every province. (The board of the interior to cooperate with the viceroys and governors.)

4. Fixing methods of keeping public accounts. (Bureau for the collation of administrative methods to cooperate with the board of revenue.)

5. Estimating revenue and expenses for the whole Empire. (Board of revenue.)

6. Publishing laws for local taxation. (Bureau for the collation of administrative methods, the board of revenue and the viceroys and governors to cooperate.)

7. Fixing rules for imperial taxation. (Board of revenue, the customs administration, the viceroys and governors, and the bureau for the collation of administrative methods to cooperate.)

8. Putting in operation the rules for the examination, appointment, and salaries of civil officials.

9. Arranging for the establishment of courts of law of different grades in provinces, prefectures, subprefectures, departments, and districts. (Board of law to cooperate with viceroys and governors.)

10. Opening schools for easy methods of learning characters. (Board of education to cooperate with viceroys and governors.)

11. Arranging for the police in villages and market towns. (Board of the interior to cooperate with viceroys and governors.)

12. Drawing up the codes of municipal and commercial law and rules of procedure in civil and criminal actions. (Board of the interior to cooperate with viceroys and governors.)

Kuanghsu 38th year (1912).

1. Completing within the year the general arrangement for self-government in the walled towns, market towns, and villages. (Board of the interior to cooperate with the viceroys and governors.)

2. Continuation of measures for self-government in the subprefectures, departments, and districts. (Board of the interior to cooperate with viceroys and governors.)

3. Reporting the census of every province. (Board of the interior to cooperate with the viceroys and governors.)

4. Publishing methods for recording the native place of residents. (The Bureau for the collation of administrative methods to cooperate with the board of the interior.)

5. Publishing the taxation laws of the Empire. (Bureau for the collation of administrative methods, the board of revenue, and the customs administration to cooperate.)

6. Publishing new official organization for Peking and the Provinces.

7. Perfecting within the year the general arrangements for courts of different grades in the Provinces, prefectures, subprefectures, departments, and districts. (Board of laws to cooperate with viceroys and governors.)

8. Extending the schools for the easy learning of characters in the villages and market towns. (The board of education to cooperate with the viceroys and governors.)

9. Extending the police arrangements in the villages and market towns. (Board of the interior and the viceroys and governors to cooperate.)

Kuanghsu 39th year (1913).

1. Full carrying out of recording the native places of residents.

2. Trial of the budget of variable expenses for the Empire. (Board of revenue.)

3. Establishing the supreme court (?) (Hsing Cheng Shen Pan Yuan). (Government reform bureau to cooperate with the bureau for the collation of administrative methods.)

4. Establishing the courts of law for the prefectures, subprefectures, departments, and districts (located in principal city) of all the provinces. (Board of law to cooperate with viceroys and governors.)

5. Arranging for lower courts of law in the villages and the market towns. (Board of laws to cooperate with viceroys and governors.)

6. Full carrying out of the new criminal code.

7. Publishing the new codes of municipal and commercial law and the rules of procedure in civil and criminal cases. (The government council to cooperate with the bureau for the collation of administrative methods.)

8. Establishment of self-government in the walled towns and market places and villages. (Board of the interior to cooperate with the viceroys and governors.)

9. Settlement within the year of the general rules for self-government in the subprefectures, departments, and districts. (Board of the interior to cooperate with the viceroys and governors.)

10. Settlement within the year of the general rules for the police in the villages and market towns. (Board of the interior to cooperate with the viceroys and governors.)

Kuanghsu 40th year (1914)

1. Trial of the budget of fixed expenses for the Empire. (Board of revenue.)

2. Publishing of the system of national accounts.

3. Trial of the new official organization for Peking and the provinces.

4. Full establishment of self-government for the subprefectures, departments, and districts. (Board of the interior to cooperate with viceroys and governors.)

5. Settlement within the year of the general rules for the lower courts in the villages and market towns. (Board of laws to cooperate with viceroys and governors.)

6. The proportion of literacy should be brought up to 1 in 100.

Kuanghsu 41st year (1915).

1. Fixing the amount of the expenses of the imperial household. (The comptrollers of the imperial household to cooperate with the bureau for the collation of administrative methods.)

2. Arranging the organization of the banners. (Bureau for changing the banner organization.)

3. The establishment of the comptroller’s office (?) (Shen Chi Yuen). (Government reorganization bureau to cooperate with the bureau for the collation of administrative methods.)

4. Putting into operation the system of public accounting.

5. Complete establishment of the lower courts of law in the villages and market towns. (Board of laws to cooperate with the viceroys and governors.)

6. Putting into complete operation the code of municipal and commercial law and the rules of procedure in civil and criminal cases.

7. Full completion of arrangements for the police of villages and market towns. (Board of the interior to cooperate with viceroys and governors.)

8. The proportion of literacy should be brought up to 1 in 50.

Kuanghsu 42nd year (1916).

1. Promulgation of the (full) constitution. (Bureau for the collation of administrative methods.)

2. Promulgation of the laws of the imperial clan. (The imperial clan court to cooperate with the bureau for the collation of administrative methods.)

3. Publishing parliamentary rules. (Bureau for the collation of administrative methods.)

4. Publishing rules for the election of members of the upper and lower houses of parliament. (Bureau for the collation of administrative methods.)

5. Putting into operation the rules for the election of members of the upper and lower houses of parliament. (Board of the interior to cooperate with the viceroys and governors.)

6. Determining the expenditures to be provided by consultation and the fixed annual charges. (Board of revenue.)

7. Making up the budget for the coming year to lay before parliament. (Board of revenue.)

8. Permanent establishment of the reorganized official system for Peking and the provinces.

9. Appointing a premier (?) (Pi Te Yuan Ku Wen Ta Ch’en). (The Government council to cooperate with the bureau for the collation of administrative methods.)

10. The proportion of literacy should be brought up to 1 in 20.

[Inclosure 2.—Translation.]

Imperial edict.

issued august 13, 1908.

We now learn that on the rivers and seacoasts of the northern and southern Provinces there have been established cosocieties called “Chung Wen She” (societies for investigating methods of government), which are seditious in intention, collecting funds and organizing into a party. In name the effect to be for investigating current affairs, but in reality they are organized for rebellion and for overturning the Government. If these societies are not rigorously suppressed the public welfare will suffer. The board of the interior, the viceroys, and governors of each Province, the commandants and the governor of Peking, are ordered to search out secretly and vigorously these societies and suppress them. All members of these societies are to be arrested and punished without mercy, so as to avoid future trouble.

1. See Foreign Relations, 1907, p. 197.