File No. 893.01/88

Minister Reinsch to the Secretary of State

No. 931

Sir: I have the honor to report that, as an engagement had been made for me to see the President on Thursday, January 20th last, I took occasion at that time to present to His Excellency the message from the President of the United States, communicated in your telegram of January 17, 5 p.m.4 President Yuan Shih-kai received this courtesy with a warm expression of his appreciation of the friendship of the American President, Government and Nation.

I also have the honor to enclose, for your information, a memorandum of a conversation, concerning a constructive policy for China, which took place on the occasion of this visit; together with a copy of an informal memorandum, regarding the use of foreign experts in the Chinese administration, which I dictated at the request of President Yuan and for his use, to embody the substance of part of the conversation.

I have [etc.]

Paul S. Reinsch
[Inclosure 1]

Memorandum of conversation between His Excellency, President Yuan Shih-kai and the American Minister on January 20, 1916

After communicating to President Yuan the message of President Wilson, and receiving a warm expression of his cordial appreciation thereof, the conversation turned upon the need of a constructive policy, energetically pursued, in order to gain the support of all parts of China and to render the Government efficient. The American Minister expressed quite frankly the impression which he had gained from confidential reports from the south and center of China, that there was widespread dissatisfaction with the Government: he stated that, in his opinion, the only way to overcome this feeling lay in the early creation of a representative Parliament, and the pursuance of a truly [Page 57] constructive policy in the public administration. The President stated that the Committee that was engaged in drawing up a Constitution was following the injunction of President Goodnow that the Constitution of an Oriental State should be adapted to the character and the traditions of its people, and that, for that reason, he had designated Professor Ariga, the Japanese Adviser, to assist the Committee on the Constitution with systematic suggestions. The President expressed himself as fully convinced of the necessity of the early formation of a Parliament, and he signified assent when the American Minister dwelt on the two-fold usefulness of a Parliament in a modern State, as a source of information through which the Government could ascertain the real needs and desires of the public and as an organ through which the measures of the Government, after full discussion, could be explained and rendered acceptable to the people, thus gaining for the Government a broad basis of support. While the President is always inclined to hark back to the failure of the first Parliament, he has apparently become convinced of the necessity of instituting a legislative body with real power and responsibility, from which, however, it is likely that he would desire to withhold full budgetary authority, as is the case in Japan.

The conversation then turned upon methods of administrative efficiency, especially auditing and accounting reform, and the need of thoroughly overhauling the system of taxation, with due regard to simplifying the forms and guarding the incidence so as not to discourage the development of commerce. The President was inclined to fall back on the usual argument that as long as China was not permitted to raise a larger amount of revenue through import duties, a thorough reform was impossible and the Government was forced, through its necessities, to take recourse to every available form of taxation. He admitted, however, the faultiness of the present system, and agreed that a thorough reform of the land tax, together with a simplified system of consumption and stamp taxes should be established, with a view to eliminating all taxation on the movements of commerce within the country which now does so much to retard development. The importance of a great practical program of improvements in the fundamental conditions of life, through the building of more railways and better roads, through the development of forestry and agriculture, and the reclamation of various areas subject to floods, was then touched upon.

The conversation then turned upon the use of foreign experts in China. The American Minister stated that the failure of the foreign-educated Chinese to make the most of their education for the benefit of China lay in the fact that when they returned from abroad they did not find in responsible positions any men trained in the practical administration of public and economic affairs, according to modern standards of science and efficiency. Therefore, having only a theoretical education in so far as its application to China is concerned, they were unable to do really efficient service. The remedy must be sought in using high class foreign experts in all the technical branches of the administration: such as accounting and auditing, railway administration, mining, and scientific agriculture. These men should be animated with a desire to serve China and to train the younger Chinese for leadership in efficient administrative work. A further summary of this part of the conversation is contained in a separate memorandum.

(His excellency, Mr. Liang Tun-yen, Minister of Communications, stated to Mr. Reinsch subsequently that the President had fully discussed the matter of employment of foreign experts in a cabinet meeting early in February.)

[Inclosure 2]

Memorandum on the use of foreign experts by the Chinese Government

The Need:

The efficient organization of the methods and processes of the Chinese Government, and the training of younger officials in these methods of efficiency require the presence in the Chinese administration of thoroughly trained foreign experts. There is no other way in which the Chinese administration can be organized to fulfil the needs of modern government, and thus to preserve the power and integrity of the Chinese State. Foreign experts serving in [Page 58] China should be devoted primarily to the interests of the Chinese Government and should aim to educate men among the younger and older officials to take the place of such foreign experts in the shortest possible time.

The Use of Experts:

In order that definite and fruitful use of experts may be made, the following method is suggested: Foreigners are employed for various purposes under the designation of “Foreign experts in the service of the Chinese Government.” When the qualifications of such an expert have been ascertained, he will be assigned by special order, which may be confidential, to give his attention and assistance primarily to a certain official, ministry, department or bureau. He is provided with a good interpreter, and is held responsible for seeing that the affairs of the bureau to which he is assigned are conducted in accordance with the standards of modern administrative efficiency. The Chinese official in charge, to whom he is assigned, would be instructed to invite the full cooperation of the foreign expert, to discuss with him all matters of organization, work and personnel, and to accept his mature advice unless specific reason could be assigned for not so doing. The foreign expert will receive instructions to cooperate in the same complete and frank way with the official in charge and, at stated intervals, to make a report on the organization and workings of the department to the Ministry, the Secretary of State, or the Head of the State himself.

In this manner great assistance might be rendered, for instance: in the organization of municipal services, the stamp tax, the land tax, electric water power, river conservancy, codification of laws, systematic accounting, technique of railway management, etc.

Result:

Official responsibility and efficiency will be developed. The official in charge knows China, its special conditions and needs; the expert knows methods of efficiency necessary in modern government. The combination of the two will give to the Chinese Government the organization it requires. Younger officials will be trained.

Direct Employment of Foreigners:

Foreigners may also be employed directly, as Chinese executive officials. Foreigners knowing China and the Chinese language intimately, and having the other necessary qualifications may be employed directly with good results as officials in various departments. Technical experts, dealing with details of scientific method and management could be employed in subsidiary positions as, for instance, mechanical and mining engineers, mint assayers, health experts, etc.

Method of Employment:

The experts should not owe their appointment to the foreign Legations at Peking, nor feel any special responsibility towards them, although in special cases the Legations might be consulted. The following would recommend itself as a general system for selecting experts: The Chinese Legations in the capitals of the principal countries should put themselves in touch with the great institutions of learning and technical associations (such as engineering associations, associations for economic and statistical work, etc.). The Legation should endeavor to discover men of exceptional training, with a spirit of devotion to their work and an interest in the welfare of China. Such men should have in all cases the recommendation of the first authorities in their respective subject or line of work. When the Legation has satisfied itself on these points, it should notify the home Government of its selections, who might then be employed as occasion demanded. The Government might also have in Peking a number of trusted foreigners in high positions, who might be informally consulted as to the character and qualifications of men considered for expert service. In some countries there are organizations such as, for instance, the Carnegie Endowment for Peace at Washington, which have the means of being helpful to the Chinese Government in making proper selections.

  1. Reply of President Wilson to President Yuan’s congratulation on the occasion of President Wilson’s marriage. Not printed.