120.0084/35
Mr. Ralph J. Totten, Consul General Detailed as Inspector, to the Secretary of State
Sir: I have the honor to refer to the Department’s instruction of February 16, 1926,1a directing me to proceed to Adis Abeba,1b Abyssinia, and to remain there as long as might be deemed necessary for the purpose of investigating the desirability of establishing American diplomatic or consular representation in Abyssinia.
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Section D. Need for American Diplomatic or Consular Representative
Reasons For. In 1906 an American Consul General served at Adis Abeba. From 1906 to 1909 we had a Vice Consul in charge. In 1909 there was a Minister Resident and Consul General. From 1910 to 1913 there was a Vice Consul General in charge. Since that date we have had no representative in Abyssinia, our interests being looked after by the British who have a combined Legation and Consulate General at Adis Abeba and Consulate at seven other points in Abyssinia.
Protection of American Interests. There are many reasons in favor of reestablishing representation in Abyssinia. Present American interests are few and unimportant as yet. The American-Ethiopian Mica Mines Concession, the American hospital, the American school, the exploration concession of the Anglo-American Petroleum Company and the Arabian Trading Company, with the protection of the interests of the few resident Americans and tourists are the most important. I am convinced, however, that these interests will steadily increase within the next few years. Within the last twelve months about thirty five Americans have visited Adis Ababa, including several [Page 585] writers, sportsmen, tourists and business men. Several new books and articles have been written about Abyssinia and each of these will cause a certain number of added visitors. In each case these American visitors have been, and will be increasingly, a burden on the British representatives who are charged with the protection of American interests. Two cases may be mentioned. Mr. Frank Hippie, an American citizen representing the American-Ethiopian Mica Mines Concession in Abyssinia, died at Dire Dawa in April of this year. He left the business of his company without a head and also left some personal effects. The British Minister has had to attend to the inventory of personal effects and the carrying on of the concession through a representative in Dire Dawa. The result has been that the British representative has been put to considerable trouble without getting the settlement of Mr. Hippie’s affairs very much advanced. The Field Museum of Natural History of Chicago proposes sending an expedition to Abyssinia in October of this year to remain from six to nine months for studying and collecting the fauna of the country. The British Legation will have to attend to all arrangements for free entry of the scientific material, for visaes for the personnel and assist them in many different ways during their entire stay in Abyssinia. As their work will take them to the wilder districts of the country it is almost certain that they will need assistance quite frequently enough to cause considerable trouble to the British representatives. In the past some Americans of the adventurer-concession hunter type have reached Abyssinia and as the country becomes better known, the advent of this type will almost certainly increase. The prestige of America and Americans is at present unusually high. The presence of an American representative would probably help to avoid loss of prestige through this class of adventurer. The protection of the Abyssinians, who are now disposed to believe anything American to be absolutely trustworthy, from unreliable persons is just as important as the protection of the interests of those Americans entitled thereto.
Extension of American Trade. American trade with Abyssinia is at present indirect and relatively unimportant. Formerly we supplied most of the cotton sheeting which is an important article of trade in Abyssinia but the Japanese cotton piece goods have supplanted the American. Sewing machines, motor cars, kerosene, phonographs, toilet articles, typewriters and a few agricultural implements of American manufacture are to be seen in the stores in the larger cities. As explained above it seems reasonably certain that with increased production of coffee and other agricultural and natural products the purchasing power of the people will become greater. The demand for European or American types of automobiles, office and household furniture, [Page 586] carpets, curtains, lamps and oil stoves, gramophones, player pianos, cotton and woolen piece goods, hats, toilet articles, perfumery, watches, china, glassware etc. is undoubtedly increasing. An American who left Adis Abeba while these notes were being made sold his furniture, rugs and household equipment for as much or more than its original cost. The Prince Regent’s trip to Europe, with his suite, and the constantly increasing number of Abyssinians who are going abroad tend to cause an interest in the simpler conveniences and necessities of modern civilization. There are at present some fifty young Abyssinians being educated in Europe and the United States who will bring back modern ideas to the country. All of these factors will combine to raise the scale of living in this country and to increase the need for imported merchandise. This is a country with an area about equal to that of Germany and France combined, with a population larger than that of Canada; with a cool, equable climate, abundant rainfall and soil which will produce almost everything from tropical to cold climate crops; with potential and untouched mineral resources; and, which is as yet almost totally undeveloped. When it is remembered that in addition to the facts just stated the country has an intelligent, progressive and ambitious young ruler, it is impossible to be other than optimistic as to its immediate future.
Ras Tafari’s Desire. The earnest desire of Ras Tafari, the Prince Regent, for an American representative in Abyssinia, as shown by his many requests made in personal letters to the President and indirectly through the American Consulate at Aden, is not to be doubted. His reasons for this are entirely from the point of view of helping his country, and contain little that could be used as an argument from the American standpoint. It does prove, however, that we would not be sending a representative to a country which is indifferent or actually opposed to receiving our mission, but to a country and ruler who really want an American representative. The Prince Regent states in no uncertain terms that at least three of the great powers who have representatives in the country, namely Great Britain, France and Italy, are too closely interested in Abyssinian affairs, because they possess contiguous territory, to be unprejudiced. There is no doubt but that the Prince hopes to receive unprejudiced advice and assistance from our representative, if one is sent. He also hopes that it may later become possible to interest American capital in certain projects for the development of the country. He has discussed the employment of Americans for several purposes, such as a business manager for a commercial company with banking activities in which he is interested; a hydraulic engineer to study water power, irrigation projects, etc.; and a geologist to study the mineral resources of the country. In the letter from the [Page 587] President to the Prince Regent which I presented to His Highness are found the following statements:2
“To His Imperial Highness,
Ras
Taffari,
Prince Regent of Ethiopia.
“Great and Good Friend:
“It affords me great pleasure at this time to convey to Your Imperial Highness the expression of my friendship and good wishes for your personal happiness and for the continued prosperity of your country, as well as to recall Your Highness’s desire, expressed during the administration of my distinguished predecessor, the late President Harding, and equally shared by him and by myself that the question of the reappointment near the Government of Ethiopia of an official representative of the United States might be considered”.
“In addressing Your Highness in these matters, I desire again to assure you of my own good wishes and of my earnest hope that the present mission will result in a strengthening of the ties between Ethiopia and the United States”.
There is no doubt but that to the oriental mind accustomed as they are to circumlocution and veiled meanings, this would be considered as most hopeful. In a letter to President Coolidge the Prince Regent says in part:3
“Your Excellency,
May peace be with you.
“The absence of the Legation of the United States of America, a Legation which existed formerly, has for a long time caused me much regret, Mr. President, and makes me fear that the friendship between our two governments might seem to be diminishing. I wrote to this effect to your beloved and lamented predecessor, President Harding, a letter which Your Excellency had the kindness to acknowledge after President Harding’s death.4 However nothing worth while can ever be realized until the right moment, and, in my happiness in feeling and hoping that that moment seems to be drawing near when my efforts and hopes may be crowned with success, there is an [e]special pleasure in the thought that this may come about during your administration.
“I was very much pleased to learn from your letter of December 17, 1925 that Mr. Totten, your envoy, occupies a high position under the Secretary of State, a fact which fully proves that you are genuinely interested in Ethiopia and that you have a real desire to see reestablished and augmented the friendship between our two countries”.
If we do not send a representative to Abyssinia or take active steps showing our intention to do so within the six months following my [Page 588] visit I am convinced that the Prince will lose faith and interest in America and will be cold and indifferent to any one who might be sent at some later date.
Contrary Arguments. The small total foreign trade of the country, and especially that with the United States, the relative unimportance of our relations with, and interests in, Abyssinia, and the possible lack of stability of the present Government are the most apparent arguments against the need for an American representative.
As explained above it is believed that the foreign trade of Abyssinia will increase considerably within the next few years. If this prediction proves correct then the extent to which we shall share in this increase depends upon ourselves. Certainly we shall have little chance to benefit thereby unless we have an agency to report on commercial conditions and opportunities for the extension of American trade. It has also been explained that there are reasons to believe that our general interests in the country and the number of our citizens coming here will steadily increase as the country becomes better known.
The last reason, that is the possible instability of the government, is the most important. The Prince Regent and Heir to the Throne, Taffari Makonnen, is either directly or indirectly responsible for almost everything in the way of progress, education and modern civilization in Abyssinia. The Empress is largely a figure-head who has neither the education nor intelligence to enable her to decide things for herself. She is to a great extent dominated by the priesthood, and the old conservative element headed by the Hapta Giorgis, the aged Minister of War, who are against all progress. If anything should happen to Ras Taffari, or if he should be deposed, the country would go back a few hundred years in a few weeks and it would take long time to recover. It is the general belief, however, especially among foreigners that the Prince Regent is gaining rather than losing in popularity and the confidence of his people. His attractive personality, his intelligence, and, his evident honesty and loyalty to his country seem to be winning friends and adherents. As the better educated, younger generation, especially those educated abroad, come to manhood and to positions of trust it is thought that most of the danger of retrogression will have passed.
Section E. Rank or Representative
Rank of Representatives of Other Countries. Great Britain, France, Italy, Belgium, Germany and Turkey have legations at Adis Abeba. Soviet Russia is sending a representative but his rank is not yet known. Austria, Greece, Sweden, Egypt and several other countries have honorary consular officers. The representatives of the five [Page 589] countries first mentioned have the local rank at least of Envoy Extraordinary and Minister Plenipotentiary. (See Enclosure No. 1 showing cards of British, Italian and German Ministers).5 In the case of the British representatives it is known that the rank of Envoy Extraordinary and Minister Plenipotentiary is a local one. The rank of the present incumbent under the British Foreign Office is believed to be Minister Resident and Consul General and it is quite probable that some of the others are full ministers only by local rank and from their own service standpoint have a lower classification. The fact remains, however, that all, with the exception of the Turkish representative who is a Chargé d’Affaires have the local rank of Envoy Extraordinary and Minister Plenipotentiary.
Rank of American Representative. As far as his usefulness to our country and his influence and standing with the Prince Regent is concerned it would not make the slightest difference whether the American representative were a Consul General, Diplomatic Agent, Minister Resident or a full Minister. It would, however, make a considerable difference in his dealings with other representatives; in the effect on Abyssinians other than Ras Tafari; and, in the personal pride of the incumbent. Great Britain, France, Italy, Belgium and Germany would be given precedence at all official functions and public ceremonies. It is believed that if it be possible, the American representative to Abyssinia should be an Envoy Extraordinary and Minister Plenipotentiary. If this should not be feasible then an able and efficient Minister Resident or even Diplomatic Agent should be sent, letting the question of rank and precedence take care of itself and telling our representative to make a place for himself by his own initiative and intelligence. It is believed that our representative should have diplomatic status of some sort to avoid any complications and difficulties in regard to customs charges, duties, taxes, etc. Except for this a Consul General would be my next choice after a Minister.
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Section J. Recommendations
After the most careful and conscientious consideration, my recommendation is that an American representative be sent to Adis Abeba, and that, if it be possible he be given the rank of Envoy Extraordinary and Minister Plenipotentiary in order to rank with the representatives of England, France, Belgium, Italy, Germany, Turkey and Russia. If it be considered impracticable to send a full Minister, then a Minister Resident or a Diplomatic Agent should be [Page 590] sent. For many reasons a Consul General would be next best after the full Minister but it would be of great value to our representative to have diplomatic status in connection with customs and tax exemptions. As explained in Section E, from the Abyssinian point of view it is not believed that it would make a great deal of difference what rank we decide to give to our representative provided the right kind of man be sent but in his intercourse with other foreign representatives and in certain ways hereinbefore explained it would make a very considerable difference to the person we send.
I also recommend that our representative be sent as soon as possible after the receipt and study of this report.
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I have [etc.]