893.8007/28: Telegram
The Chargé in China (Mayer) to the Secretary of State
[Received November 18—1:45 p.m.]
1004. 1. Problem of piracy along China coast has caused diplomatic representatives much concern, especially of late, in view of increasing piratical activity and scope. We have frequently discussed matter in diplomatic body meetings to the end that some successful method might be found of dealing with the question. Finally under date of September 21st, 1927, the Senior Minister,65 in diplomatic circular [Page 332] number 142,66 invited attention of his colleagues to the common danger and requested suggestions as to possibilities of joint immediate action by the powers.
2. While no instances of pirating of American vessels on China coast have occurred during recent years the danger and distress of general situation appear applicable to us as well as to powers more immediately concerned since our nationals are constantly travelling and transporting their effects on coasting vessels and are thus directly liable to piratical attack. Furthermore we have been much concerned over the possibility, if not indeed strong likelihood, that with increasing success and activity the pirates would sooner or later attack an American President liner.67 This apprehension is confirmed by a recent discovery at Hong Kong of a plot to pirate such a vessel, the attempt only having been prevented it appears by prompt action taken at Hong Kong.
3. The Kwangtung Chinese authorities have shown an entire unwillingness to cope with the problem although repeatedly and strongly urged. I believe that typically they will follow line of least resistance which as presently constituted means to allow the pirates to have their way. Should these authorities be brought clearly to understand that the foreign nations concerned will no longer tolerate the deplorable state of affairs and wall take steps to protect their nationals if Chinese fail to do their duty in regard to it, the latter may then find the line of least resistance [that they?] themselves suppress piracy.
4. As a result of circular number 142, Senior Minister, at request of all Heads of Legation, appointed the British, French, Japanese and Italian Ministers and myself a committee to draft note to the Chinese authorities concerned which all diplomatic representatives could submit to their Governments for approval. The following is said draft:
“The powers, represented in China by the undersigned, seriously perturbed by the persistent recurrence of piracy in southern Chinese waters, notably in Bias Bay, have given close attention to the problem and feel obliged to make the following communication:
Pirates are recognized as the confederated enemies of the human race and their suppression is an international duty incumbent on the authorities of all civilized countries. In addition, a special obligation devolves on the Chinese authorities in the present case since the pirates operate from bases on China soil, whither they take captured vessels, persons and loot, and themselves retire for refuge.
It is thus clear that the suppression of pirates in Chinese waters is primarily the duty of the Chinese authorities concerned, who will readily recognize that it is in their own interest to fulfill it [Page 333] since the insecurity created by piratical activities is as prejudicial to the interests of Chinese citizens as it is to those of foreigners.
Realizing however their joint interest in the matter, the powers desire not only to draw attention to the existence of the evil and the necessity for its suppression but also to offer their effective cooperation to the local Chinese authorities. They will gladly discuss any suggestions regarding the form of such cooperation that Chinese authorities may care to put forward.
The powers earnestly trust that the Chinese authorities concerned will hasten to respond to their offer. They feel it necessary to declare that, failing early and effective action, with or without foreign cooperation, they will be obliged, in view of the alarming proportions which piracy has assumed and the risk which it constitutes to foreign ships and nationals, to hold the proper Chinese authorities responsible for any loss or damage resulting from the activities of Chinese pirates and, in addition, themselves to take appropriate measures for their own protection.”
The consuls concerned are to present the note either jointly or in identic form, in the discretion of the consuls, to the head of Canton regime, whoever he may be at the moment.
5. The committee also discussed the question of practicable defensive measures with the idea that our Governments would desire to agree as to them before approving the despatch of the note aforementioned. We decided that the only feasible plan was that of a continuous international naval patrol on waters of Bias Bay which we have every reason to believe would be entirely effective for the suppression of piracies. Upon the receipt of the approval of our Governments to despatch of note we purpose to request the admirals concerned to decide how best to carry out the patrol.
6. I respectfully request authority to join in the matter. I believe all the powers will agree to do so but recommend to the Department its adherence to the suggested method of treatment for the suppression of piracy here even should only Great Britain, France, Japan, and Italy agree. It was a foregone conclusion that British will agree, the French and Italian Ministers expect approval and as Japanese Minister is heartily favorable his Government’s prompt adherence would appear likely. The drafting committee decided to submit the matter to their Governments [to] seek their approval before placing the proposed draft note before the Heads of Legation as a whole. In the circumstances an early reply is respectfully requested.
7. Above repeated to commander in chief, United States Asiatic Fleet,68 for his confidential information.