Foreign Relations of the United States Diplomatic Papers, 1932, The Far East, Volume IV

793.94/5373

The Consul General at Mukden (Myers) to the Minister in China (Johnson)³⁸

No. 587

Mukden, June 3, 1932.

Sir: I have the honor to enclose herewith a copy of a memorandum containing some suggestions for a solution of the Manchurian question which I prepared at the request of Major-General Frank R. McCoy, American member of the Far Eastern Commission of Inquiry.

Respectfully yours,

M. S. Myers

[Enclosure]

Suggestions for a Solution of the Manchurian Question

The antecedents of the present Manchurian question go back to 1895 and 1905, in which years the Sino-Japanese and Russo-Japanese wars terminated and Japan gained valuable concessions in this territory. Japanese rights were further extended by the treaty and exchanges of notes relating to Manchuria dated May 25, 1915.³⁹ Psychological and physical factors gradually augmented an already complicated situation and naturally the Japanese occupation of Manchuria since September 18, 1931, and the establishment of the so-called independent government of Manchoukuo have well-nigh rendered impossible a practical solution or adjustment of this highly explosive and extremely complex question. However, extraneous factors may carry sufficient weight to permit of a solution or “liquidation”, however temporary, being effected. The basis of any practical solution must be recognition of Chinese sovereignty and of extensive Japanese economic rights.

An agreement on general principles to be entered into directly by China and Japan would seem to be the primary and basic step in the attainment of this object. Such an agreement should be comprehensive but general in character in order to preclude as far as possible a breakdown of subsequent negotiations and a failure in the execution of the measures outlined herein. As is evident, the general stipulations of this agreement would be contained in the recommendations of the League Commission. As its main provisions the following are suggested:

(1) A declaration by Japan recognizing the territorial integrity of China and the principles of the “open door” and equal opportunity and by China recognizing the treaties and agreements which have been entered into between China and Japan and the special rights and interests in Manchuria accruing to Japan from these treaties and agreements.

(2) A declaration that Japan will withdraw its support from the Manchoukuo régime and use its influence to secure the functions of this régime being taken over within a stipulated period by a temporary Chinese administration headed by a Governor General, appointed by Nanking who is persona grata to Japan. The Governor General should have the assistance of six or seven prominent Chinese, preferably some of the leading officials of the existing régime, and foreign advisers whose appointments, if not recommended by the League of Nations, should be notified to it.

An amnesty should be granted all persons connected with the, existing régime.

(3) The establishment, to be proceeded with immediately after the accomplishment of the above step, of a permanent Chinese administration headed by a Governor General and assisted by a Chinese staff and foreign advisers who shall organize and supervise the provincial and municipal governments. This administration shall also organize and maintain provincial and municipal police and constabulary, for the training and supervision of which qualified foreign advisers shall be used. It shall control Chinese financial and other economic institutions and supervise the fiscal system of Manchuria, from which agreed upon contributions for the support of the Central Government and the servicing of Chinese government obligations shall be made. It shall be provided that the Chinese Customs, salt and postal services shall not be interfered with.

(4) The Japanese government agrees to the withdrawal of its military forces to the South Manchuria Railway zone as soon as adequate Chinese forces, police and constabulary, are available for the maintenance of peace and order and the protection of Japanese life and property, the completion of which withdrawal to be notified by both governments to the League of Nations for its information.

(5) The organization of two permanent joint commissions, namely Commission of Communications and Commission of Review. The former, consisting of ten members, four Chinese, four Japanese and two foreign (non-Japanese) advisers, would be charged with the duties of investigating and devising ways and means for the improvement, extension, and coordination of the communication facilities (railways, telegraphs, telephones, radio and motor roads) of Manchuria and make recommendations in regard to all matters relating thereto including rates which may be necessary and appropriate. The Commission of Review, consisting of five members, two Chinese, two Japanese and one foreign adviser, should be charged with the investigation of incidents and disagreements in regard to matters of fact which investigation is needed for the settlement of any controversy. Both commissions should have the right to call for the opinion or testimony of experts.

(6) An agreement to institute negotiations within a stated period of a comprehensive treaty in regard to Manchuria on the basis of the general principles and stipulations contained herein and to negotiate simultaneously a general treaty of commerce in which organized boycotting is declared illegal and a criminal offense (this treaty would necessarily include a settlement of the Shanghai affair).

It is suggested that the treaty relating to Manchuria provide that the Manchurian Administration in consultation with Japan create a joint commission composed of four Chinese, four Japanese and two foreign (non-Japanese) advisers—a larger commission may be advisable—for the purpose of preparing and recommending suitable regulations for implementing the rights and privileges granted to Japan by treaty or agreement, the preparation of which has not elsewhere been provided for, and of preparing special regulations for the development of the mineral, timber and other resources of Manchuria.

The advisers to be engaged by the Manchurian Administration shall either be recommended by the League of Nations or their names and qualifications shall be reported annually to that body.

Copies of all treaties and agreements entered into between Japan and China in regard to Manchuria shall be supplied to the League of Nations.

Note: At this time it seems expedient to treat the military problem by an exchange of notes rather than by stipulations in the treaty itself. China’s note might appropriately be to the effect that China has no intention of stationing part of the army or other branches of its regular military forces in Manchuria but shall maintain peace and order by well-trained police and constabulary forces under the direction and control of the Manchurian Administration. The Japanese reply should contain a commitment to the effect that the Japanese forces in Manchuria will be withdrawn to the Railway zone and reduced to normal strength as soon as peace and order have been restored and adequate protection is afforded to Japanese life and property by the forces of the local Administration and that when conditions warrant all Japanese regular army units will be withdrawn from the Railway zone. Russia’s understanding and adherence should be obtained.

38. Copy transmitted to the Department by the Consul General at Mukden in his despatch dated June 6, 1932; received June 28.
39. Foreign Relations, 1915, pp. 171, 197.