Papers Relating to the Foreign Relations of the United States, 1920, Volume II

711.842/17

Report of the Consul General at Addis Ababa (Wood), temporarily at Washington³

[Extract]

Conferences with Minister of Foreign Affairs

At my first interview with the Minister of Foreign Affairs I was given the impression that he was deeply gratified with the decision of our Government to send a representative to Abyssinia to succeed Minister Hoffman Philip. He stated that such a long time had elapsed since the death of the late Vice Consul-General Love he had feared that our Government had decided not to send another diplomatic official. He spoke of the trade between our countries and expressed the hope that it might be increased; he also said that he would be pleased to have my advice on international questions that might arise when he learned that I was by profession a lawyer and observed that he felt confident of unbiased opinions on account of the fact that we had no political interests to serve. I stated that it would be a pleasure to render him every possible assistance as far as my position permitted. I then arranged for a day when we could take up the discussion of a new treaty between our Governments. The Minister said that there would be no difficulty in re-newing the old treaty.⁴ I explained that the new treaty, which was desired, bore only a few changes from the old, due to changed conditions. He stated that it would only be necessary to speak to the Prince, observing, however, that if it were not absolutely necessary to sign the treaty at once, it would be better to delay for a month until His Royal Highness should be in a stronger position as there existed considerable political unrest in his country. To this suggestion I readily agreed.

Unfortunately I was stricken down with rheumatic fever three weeks after my arrival in Adis Ababa and was not able to resume the negotiations for three weeks. At the second interview His Excellency was unwell and requested a postponement, but he promised to procure the consent of the Prince and to notify me immediately. I waited in vain for a communication and after two weeks called again. His Excellency was evidently not interested in the discussion of the treaty and finally stated that he was sorry to disappoint me as he realized that I was much interested in procuring a new treaty but he added that he was not convinced of the necessity of entering into any new treaty relations as our countries had always been at peace and he couldn’t conceive of any questions arising that would necessitate the invocation of treaty rights. …

I then stated to him that he had led me to believe the new treaty would be signed without his opposition and that the Prince had already given his consent, that his change of attitude was incomprehensible. I then suggested for his consideration the fact that all the other powers represented in Abyssinia had treaties with his Government and that a failure to conclude and sign a new treaty would be construed as an unfriendly act by my Government. I explained that I did not believe he desired to convey such an impression and that I was sure that the Prince would not approve such a course when he understood the significance of the proposed treaty. I then requested an audience with His Royal Highness for the purpose of explaining why the treaty should be concluded. After a few moments of reflection the Minister said he would examine the treaty section by section and later discuss the matter with the Prince. The only objection he made was in regard to the term of ten years. He stated that it would be necessary to secure the approval of all the Ministers on this point, otherwise the Prince would not sign. I told him that I should prefer to have all the Ministers give their consent before the Royal Seal should be affixed to the documents and that I welcomed the opportunity of meeting the Council for an open discussion of the different articles in the treaty. He replied that it would not be necessary, but asked for a few days in which to examine the old treaty, promising to notify me when the signing would take place. Several days passed without a word from His Excellency.

I sought another interview and learned that the Minister had made no attempt to secure the old treaty from the archives of the Ministry of Finance. Fortunately I had in the meantime discovered a copy of the treaty of 1904 and gave it to him to read. I told him of my desire to leave for a vacation in the early part of June in accordance with the advice of my physician and urged upon him the advisability of setting a day in which to finish the negotiation of the treaty. He replied that I should not worry as everything would be arranged to my satisfaction in a few days. Not receiving any word I decided to bring matters to a crisis by sending our interpreter to the Minister, requesting a pass for myself and guard from the capital to the railroad line as I contemplated departing as soon as possible. He sent word for me to come at once to his office and asked whether I was going on leave or whether I had been recalled by my Government. The reason of this request was evidently due to suspicion on his part because only a few weeks before the Russian Legation had made a demand for an apology on the part of the Minister of Justice, failing which the Minister had been notified the Charge d’Affaires of the Legation would be recalled. I frankly told His Excellency that I was going on leave by permission of my Government, as I had been informed that a residence in Adis Ababa during the summer season would be dangerous to my health. He expressed a keen sense of relief at my explanation. I then stated that I had hoped to have the satisfaction of taking back to America and presenting to the President a new treaty between our countries but that on account of the delay caused by him I should have to leave without it. He said that he could do nothing without the approval of the Council of Ministers and promised to arrange a meeting at which I should explain everything as I had to him. I thanked him for his courtesy and expressed my desire that the conference should take place at the very earliest date possible. …

Meeting with Council of Ministers

On June the 4th I rode to the Royal Palace with an escort of four guards and Mr. Tadla, a special Abyssinian interpreter. The Minister of Foreign Affairs welcomed me most cordially and presented me to his colleagues with whom I shook hands. We then seated ourselves around a long table which was covered with green cloth. At the head of the table was a vacant chair occupied by the Prince when he attends a conference of the Ministers, which I am informed is not frequent. I was seated between the President of the Council, the Minister of War and the Minister of Foreign Affairs. The interpreter stood at my left during the entire interview. I then addressed the Council on the subject of the proposed new treaty, pointing out the changes desired and explaining the reasons therefor; I called to their attention the fact that our countries had always been at peace, that all we desired was a simple commercial treaty with the same rights that were granted to other Powers and that I could perceive no reason why they should not advise His Royal Highness to affix his Royal Seal to such a treaty. I spoke twenty-five minutes. The Minister of Foreign Affairs and the Minister of Interior were opposed to the term of ten years. They believed that the new treaty would carry jurisdictional rights under the most favored nation clause in Section III, even after the termination of the French treaty in the year 1918. I endeavored to prove that with the cessation of the French treaty all rights dependent upon it must of necessity terminate. … The conference was conducted in a dignified manner and was quite impressive. The President then informed me that it would be necessary to have a secret session and that I would be informed of its deliberation. After shaking hands with each Minister, I was escorted to the court-yard by the Minister of Foreign Affairs. He asked if I would absolutely refuse to sign for a term of four years. I replied that I had no authority and that it would be necessary to communicate with my Government for instructions. I couldn’t help but feel at a great disadvantage in not speaking the Abyssinian language but I learned that not one of the foreign representatives in Adis Ababa speaks the language.

Audience with Prince Lidj Yassou

On the 6th of June the Minister of Foreign Affairs sent word by our interpreter that the Prince would receive me at his private residence at 4 P.M. Upon my arrival I was received immediately by His Royal Highness. He was seated upon a sofa but came forward and shook hands upon my approach. He wore a pajama suit of white cotton with a black silk bernous reaching his knees. He was in his bare feet and wore no head-dress. We seated ourselves, followed by the Minister of Foreign Affairs upon receiving permission from His Royal Highness. My interpreter remained standing during the interview. The Minister of Foreign Affairs spoke for the Prince and asked me to cable the President requesting as a special favor that the time of the treaty be changed to four instead of ten years. We discussed the treaty but I detected no intelligent comprehension on the part of the Prince until I stated that I had already cabled my Government and that I felt certain that our President would grant the Prince’s request. He then smiled and expressed his thanks. The Minister then spoke practically as follows:—[“]You have satisfactorily explained to me that the consular jurisdiction based upon the most favored clause in Article III of the treaty will cease upon the expiration of the French treaty. Some of the other Ministers do not understand it, but I do. The real reason why I now desire four instead of ten years is that our Government may be in a position to refuse other countries that desire to renew their treaties for a period of ten years. We have no objection to signing a treaty with you for ten years except for this reason; should the Prince sign your treaty for ten years he could not refuse other Powers. We desire to end all consular jurisdiction in four years and the Prince will greatly appreciate the assistance your President may give him. He has had much trouble with the British, French and Italian Governments on account of consular jurisdiction granted in the French treaty and we hope to come to some amicable settlement in 1918.” I replied that I understood the difficulties of the Abyssinian Government and that my Government would never seek to add to its troubles; that our countries had never had any friction and that I felt confident that such a proof of friendship in the granting of the special favor requested by the Prince would be instrumental in promoting the cordial relations between the United States and the Empire of Ethiopia during the reign of His Royal Highness. The Prince was very cordial when shaking hands and thanked me again.

Inasmuch as the Department’s reply to my cable was in cipher, I was unable to read it in the absence of a Code at the Consulate-General. Later I requested the British Legation to transmit a message in code to the Department through its Embassy at Washington and received a reply on the 20th of June, authorizing me to change the period of the treaty from “ten” to “four” years, with instructions to insert, if possible, an automatic clause for the continuance of the treaty for periods of “ten” years in the absence of official notice on the part of either of the contracting parties of their determination to terminate the treaty, sent one year before the expiration of said treaty. I at once communicated the substance of the cable to the Minister of Foreign Affairs through our interpreter and received from him the following message: “I am very glad to hear the good news and express my many thanks for the trouble you have taken to prolong the friendship between America and Abyssinia. When you desire the treaty to be signed Jet me know and I will appoint a day.”

Diplomatic Incident and Apology by the Minister of Foreign Affairs

His Excellency the Minister of Foreign Affairs was well aware that I desired to leave Adis Ababa at the earliest opportunity but he took no steps to assist me; on the contrary he was seeking in every possible manner to defeat my efforts to secure the new treaty with his country. On the 23rd of June I again called upon His Excellency and urged him to fix a time when we could sign the treaty. He replied that it would be either on the 24th or the 25th of the month. I received word from our interpreter that the treaty would be signed and sealed at 10 o’clock, a.m., on the 25th in the presence of all the Ministers of the Council. Accordingly I rode to the appointed place, near the residence of the Minister of War and found all of the Ministers present except His Excellency the Minister of Foreign Affairs. I waited for over an hour and then addressed the Council. I stated that I had come there by appointment made by the Minister of Foreign Affairs for the purpose of completing the negotiations of the new treaty. I pointed out to them that their absent colleague did not appear to appreciate that he was dealing with a representative of the President of the United States of America; that he was evidently not aware of his responsibilities and that I considered his absence, especially without sending any reason for it, to be a direct affront to my Government and I also added that His Excellency did not seem to have much respect for his colleagues. The President of the Council said that he was sorry the Minister was not present and hoped I would not be angry with them. I hastily observed that my remarks did not apply to any of the Ministers present but on the contrary I desired to express my appreciation at their presence and unfailing courtesy in all of my relations with them. I explained that it would be necessary to inform my Government of this incident and that I couldn’t continue to remain accredited to their country in the absence of proper respect shown my position. The President requested twenty-four hours in which to make proper amends, stating that this was not the first time His Excellency had failed to keep his appointments with them on official business and that they did not seek to condone his offence. I told him that I would wait 24 hours before taking steps to assert the dignity and rights of my office. I then retired after shaking hand[s] cordially with each Minister.

I decided that it was necessary to have an audience with the Prince and explain to him the gravity of His Excellency’s offence. Accordingly my interpreter was sent in advance to arrange an interview and I followed with my guards. When about half way to the residence of the Prince I noticed a large cavalcade and upon drawing near observed His Excellency in the centre surrounded by his servants, soldiers and concession hunters. In fact he is always accompanied by such an escort and most of his business with concession hunters is done on the road in informal conversations. I rode to the left of the center of the road. His Excellency left the escort and approached apparently disturbed. I saluted him not at all cordially and immediately demanded an explanation of his failure to keep the morning’s appointment. I asked him if he knew that he was dealing with a representative of the President of the United States of America upon a matter that required serious consideration. I stated that his conduct was inexplicable and that I couldn’t but regard it as insulting to the dignity of my position. I waited a moment for his reply. He said that he had been unable to find the Keeper of the Royal Seal and so thought it was useless to come to the meeting as the treaty could not be sealed as promised. He acknowledged that he was in the wrong in not sending notice to me and his colleagues. … I then said to him that this incident could only be closed in one way, viz., that he must come at 3.00 p.m., to the Consulate General and there make an apology, otherwise I should be constrained to take the question up with His Royal Highness and my Government and I expressed my opinion that the issue would not be very beneficial to him. He promised to come and said to the interpreter: “For God’s sake, help me out of this difficulty; I did not mean any offence to the Consul-General.” I took leave of His Excellency and returned to our residence. In the afternoon, promptly at 3.00 much to my surprise, the Minister came to the Consulate-General with a large escort which was left at the gate.

His Excellency approached the house very slowly with down-cast head, evidently absorbed in thought. I met him at the door and escorted him to the reception hall. I then waited for him to speak. He then made a dignified and appropriate apology and expressed the hope that I would not bear any malice toward him. I assured him that the incident was closed and commended his spirit in settling the matter so quickly. We shook hands and he appeared to be greatly relieved. I was greatly pleased with the successful outcome of my demand and felt that I would have no more trouble with His Excellency. It was agreed that the treaty should be signed at a meeting of the Council of Ministers on the 26th of June 10.00 a.m., in a tent near the residence of the Minister of War.

Meeting with the Council of Ministers

Promptly at ten o’clock on the 26th of June I met the Council of Ministers. It is to be noted that it is not customary in Abyssinia for the Ruler to sign his name to a treaty or other official document. The Royal Seal is affixed by the Keeper of the Royal Seal upon the express and direct order of His Royal Highness. A failure in the performance of his duty brings the penalty of death to the Keeper of the Royal Seal. I produced the two copies of the proposed treaty, written in Amharic and English, side by side, the Abyssinian text coming first in the copy for the Abyssinian Government and the English text first in the copy for our Government.

The Minister of Finance read aloud the entire treaty, article by article, to which the Ministers gave a most attentive and respectful hearing. He then began an attack upon the automatic clause in Art. VI, whereby the treaty would continue for a period of ten years in the absence of official notice of the intention to terminate the treaty, sent one year before the expiration of the proposed treaty in four years. He contended for a four-year treaty, absolute and unconditional. He pointed out that after two years the automatic clause would be forgotten and no notice would be sent. The Minister of Foreign Affairs replied that the foregoing remarks reflected upon his personal ability and integrity to guard the treaty rights of his country; he added that he would have His Excellency the Minister of Finance know this was a matter for the Foreign Department, which he was capable of conducting without any assistance. There was an ominous silence. The enmity between these Ministers is of common knowledge. Fortunately there was this friction, otherwise I believe it would have been necessary to have stricken out the said automatic clause.

Art. VII. Two of the Ministers objected to the term of one year in which to give notice of ratification to His Royal Highness. I am informed by our interpreter that the Amharic text of our former treaty read “six months” while in the French text it was “one year”. This an explanation why one of the Ministers held out for “six months”. The other Minister, however, said that if the treaty were not ratified for a year it would mean that the four-year treaty practically continued five years, thus extending a year beyond the time for the termination of the French treaty. I attempted to show that the period of one year was a provision for an emergency and that my Government would ratify the treaty at the earliest opportunity. I stated that I couldn’t believe the Ministers would lay any stress upon such an immaterial point, especially after the President had granted them a favor by changing the term of the treaty to “four” years. These Ministers could not be changed and as I desired unanimous vote on the treaty I consented to the term of six months, believing that there would be no difficulty in getting notice to His Royal Highness within that period of time. It was, therefore, necessary to re-write the texts of the treaties.

I told the Ministers that I had come to the meeting, confident that the treaty would be signed and sealed on this day. I stated that I had made all arrangements for my departure on the following day, that my caravan was waiting and that it would be a great inconvenience if I should be compelled to remain any longer. They all exclaimed: “Come tomorrow morning at 8.00 o’clock and the treaty will be signed. You can then proceed at once on your journey; come dressed for the trip on your mule”. I replied that I should take them at their word. I then thanked them for their courtesy and expressed the hope and confidence that the new treaty would bring with it an increased trade between our countries and a re-newed continuance of our cordial relations.

Signing and Sealing of the Treaty

The summer rains had already commenced and I feared that my delay might bring on again an attack of rheumatism with serious consequences, but I was determined not to leave without this treaty, signed and sealed.

During the entire night of the 26th, the rain fell incessantly. On the following day, therefore, the roads were in a very bad state and the streams were swollen. It was necessary to ride two hours in a heavy rain, to cross several brooks and ford three streams, to climb four hills before reaching the home of the President of the Council, where it was arranged the treaty should be signed and sealed.

Upon my arrival at 8:15 in the morning of the 27th of June, I was met by Mr. Leon Chefneux, a Frenchman who has been connected with the Abyssinian [court?] for many years. I believe he was of considerable assistance to Consul-General Skinner in the negotiation of our first treaty with the Ethiopian Empire. It is a pleasure to acknowledge my appreciation of his valuable encouragement and suggestions at times when I believed it useless to continue negotiations …

The Minister of War was awaiting me, seated on a raised platform covered with rugs, in a very large, high-posted building containing only one room. It was the place where he dispensed justice. One felt as if being in a sanctuary; the light was dim and there was a chill in the air,—some glowing wood-coals in a brazier in the center of the room gave out a little warmth. I talked with His Excellency, while awaiting the arrival of the Minister of Foreign Affairs with the Keeper of the Royal Seal. An hour passed and he did not come. I sent my interpreter to the residence of the Prince with instructions not to return unless he brought the Minister. In an hour the Minister arrived but made no comment upon his lateness. I said nothing to him but told the interpreter to look for the Keeper of the Royal Seal. I felt that something was about to happen to again delay the signing of the treaty. In a half hour the interpreter returned with the Keeper of the Royal Seal. He reported that the Keeper of the Royal Seal informed him that the treaty would not be sealed except at the residence of His Royal Highness, who had so ordered it. In the meantime the French Minister had called by appointment and was having a conference with the Ministers of War and Foreign Affairs.

I waited several minutes, then sent my card to the Minister of Foreign Affairs with a message to the effect that my appointment preceded that of the French Minister and that if His Excellency did not at once return I should be compelled to return to my residence. He broke off the conference with the French Minister and came to me. I sat at a table with pen in hand as if to sign the treaty. The old Keeper of the Royal Seal beckoned the Minister of Foreign Affairs and spoke a few minutes with him, evidently explaining that he could not affix the Royal Seal except at the residence of the Prince. The Minister was not [at] all surprised and I have wondered whether it was not a part of his plan to postpone again the signing with the hope that my patience would be exhausted and that I would depart without the treaty. The President was informed that the Prince desired that the Treaty be signed and sealed at his residence; he at once gave his approval. It was decided that we ride at once to the Hot Springs where His Royal Highness was then taking a cure.

I had rather given up hope of securing the royal seal that day and was prepared to hear a new excuse for postponement. I was wet and covered with mud when we reached the group of buildings that served as the temporary residence of the Prince. A small bedroom was placed at my disposition where I might rest until the Prince could be seen; it had a small bed and one chair in it.

Mr. Chefneux and my interpreter accompanied the Minister of Foreign Affairs and the Keeper of the Royal Seal to the House of the Prince. He was at that time taking the cure and could not be disturbed. When he was able to receive them, he gave orders to the Keeper of his Royal Seal to affix it to the two copies of the treaty. This was carried out in the room where I had been waiting for an hour. I then signed the two documents and handed one to the Minister of Foreign Affairs. There were present His Excellency the Minister of Foreign Affairs, the Keeper of the Royal Seal, Mr. Leon Chefneux who assisted the Keeper in making the impress of the Royal Seal on the treaties, Mr. Tadla, the interpreter and myself. The time was twenty minutes before one o’clock. The translation of the Amharic characters on the Royal Seal is as follows: Yassou Son of Menelik II King of Kings of Ethiopia.

The Minister of Foreign Affairs said that he hoped I was not angry at him for all the annoyances he had caused me. I replied that whatever feelings I had entertained during the negotiations, were now forgotten with the final completion of our work. I wished him a long and prosperous life. I requested him to express my sincere thanks to His Royal Highness for continuing our treaty relations, which had been initiated by the great Emperor Menelik II, his grandfather and our former President, Theodore Roosevelt. I asked him to also convey my regrets that His Royal Highness was not in good health, but that I hoped he would soon be well and have a long, happy and successful reign in the Empire of Ethiopia. We then shook hands most cordially and exchanged farewell greetings.

. . . . . . . . . . . . . .

John Q. Wood

Washington, September 1, 1914.

3. Covering despatch of the same date not printed.
4. For text of treaty signed Dec. 27, 1903, and proclaimed Sept. 30, 1904, see Foreign Relations, 1904, p. 298.