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58th Congress, 1 HOUSE OF REPRESENTATIVES. f Document 
 
 3dSessio?i. I \ No. 245. 
 
 PROMOTION OF TRADE INTERESTS. 
 
 MESSAGE 
 
 FROM 
 
 THE PRESIDENT OF THE 
 UNITED STATES 
 
 TRANSMITTING 
 
 LETTER OF ACTING SECRETARY OF 
 
 STATE LOOMIS 
 
 WITH REPORTS FROM DIPLOMATIC AND 
 
 CONSULAR OFFICERS. 
 
 January 19, 1905.— Message and accompanying 
 
 papers ordered printed and referred to 
 
 Committee on Foreign Affairs. 
 
 WASHINGTON: 
 
 GOVERNMENT PRINTING OFFICE 
 
 1905. 
 

 ^ 
 
MESSAGE FROM THE PRESIDENT OF THE UNITED 
 
 STATES. 
 
 To the Senate and House of Representatives : 
 
 I transmit herewith a communication from the Acting Secretary 
 of State, accompanied by reports from the diplomatic and consular 
 officers, upon the feasibility of regular cooperation between the two 
 branches of our foreign service for the better promotion of American 
 industry and trade. Basing his conclusions upon the views ex- 
 pressed in these reports, the Acting Secretary recommends that pro- 
 vision be made for six special agents, with the diplomatic rank and 
 title of commercial attache, to be sent abroad to make practical 
 trial of the proposed plan; to report to the Department of State 
 conditions existing in different countries which might suggest modi- 
 fications or changes in the general scheme; to prepare, for the De- 
 partment of Commerce and Labor, reports upon commerce and 
 manufactures, or upon kindred topics, of a more exhaustive and 
 comprehensive character than is ordinarily obtainable at present; 
 and to visit consulates, examine their workings, and suggest such 
 changes, either to the consular officers or to the Department of State, 
 as would tend to the general improvement and strengthening of the 
 service. 
 
 It is proposed that these agents shall be chosen primarily for their 
 expert knowledge, but shall be not merely specialists, except for par- 
 ticular investigations that might from time to time be required, but 
 practical men of affairs, with the experience best suited to fit them 
 for their executive duties. It is suggested that the consular service 
 might supply the best type of agents desired, and that, for this 
 reason, and also because of the incentive to merit which would thus 
 be provided, appointments should be made preferably from among 
 those consular officers who have demonstrated their special fitness and 
 capacity. 
 
 It will, in my opinion, be found upon examination that, while the 
 measure proposed is a modest and more or less tentative one, in- 
 volving comparatively slight expense, it promises important and far- 
 reaching consequences in the judicious strengthening of our whole 
 foreign service in the interest of trade and the gradual development 
 of capacities in it, but imperfectly available as yet, to make it fully 
 adequate to the demands of our productive energy as a nation. 
 Agriculture in the . United States has long been dependent for its 
 prosperity upon the demand from abroad for its surplus product, and 
 of late years, our manufacturing industries have found that they 
 were outstripping the capacity of even our enormous home market, 
 and are now looking more and more to foreign consumption for relief 
 from accumulating stocks. According to an estimate of the Depart- 
 
4 PROMOTION OF TRADE INTERESTS. 
 
 ment of Commerce and Labor, our exports of manufactures in the 
 calendar year 1904 " will not only exceed the highest figures of any 
 earlier year, but may probably pass the $500,000,000 line, as against 
 434 millions in the high-record year, the fiscal year 1900. 151 mil- 
 lions in 1890. 103 millions in 1880, 68 millions in 1870, and 40 mil- 
 lions in 1860/* The magnitude and steady growth of this export 
 movement from our workshops and factories are such as to suggest 
 the grave importance of providing it with all the official apparatus 
 necessary to its full and free development. 
 
 It is generally admitted that, in recent years, the consular service, 
 whatever may be its defects of system, has developed a commercial 
 utility which has been of great practical value. It would be most 
 regrettable, however, if this improvement, which has been brought 
 about by the zeal and energy of individual consuls, rather than by 
 the efforts of the service as a whole, and also, to a large extent, by the 
 special direction of the Department of State, should be accepted as 
 fully satisfying even present requirements, not to speak of the pros- 
 pective demands of a rapidly expanding commerce. For this reason, 
 I cordially commend to the consideration of the Congress 'the recom- 
 mendations of the Acting Secretary of State, looking to the gradual 
 systematizing and equipment of the whole foreign service, by simple 
 and inexpensive means, as an auxiliary responsive at all points to 
 what may reasonably be expected of it by the great industrial and 
 commercial interests which are so deeply concerned in enlarging their 
 share of the world's trade. 
 
 In view of the interest and importance of the subject to the public, 
 and especially to the business community, I also suggest that authority 
 be given for the printing of a special edition of 5,000 copies of the Act- 
 ing Secretary's letter, together with the appended reports from diplo- 
 matic and consular officers, of which 2,000 copies shall be for 
 distribution by the Department of State. 
 
 Theodore Koosevelt. 
 
 White House, Washington, January 18, 1905. 
 
LETTEK FROM THE ACTING SECRETARY OF STATE. 
 
 Department of State. 
 Washington. January 18, 1905. 
 
 The President : I have the honor to submit for your consideration 
 the advisability of action for combining utilities, more or less latent 
 as yet in our diplomatic service, with those which have been so sig- 
 nally demonstrated by the consular officers, for the promotion of 
 American industry and trade. The development of official facilities 
 for extending foreign commerce has long engaged the earnest effort 
 of this Department, and improvements have been effected from time 
 to time in the collection of trade intelligence from abroad and in the 
 character of the services rendered by consuls to the business interests 
 of the country, which are now familiar to the public. The division 
 of duties, which was effected by the transfer. July 1. 1903, of the work 
 of publishing and distributing the reports of consuls from the Depart- 
 ment of State to the Department of Commerce and Labor, leaving to 
 the former Department, in cooperation with the latter, the general 
 control and direction of the consular officers in the collection of com- 
 mercial and industrial data, has naturally concentrated the energies 
 of the Department of State upon the single object of raising to the 
 highest point of efficiency the machinery for supplying our manu- 
 facturers and merchants with information as to conditions in other 
 countries which tend to advance or to hinder the sale of our surplus 
 products. 
 
 In order that the Department of Commerce and Labor may fully 
 justify the expectations which prompted its creation, by becoming the 
 chief vehicle of information to the business public as to the latest 
 developments in trade and industry, not only in our own country, but 
 throughout the world, it has seemed to the Department of State that, 
 being responsible for the efficiency of our foreign representatives, 
 both consular and diplomatic, as instruments of trade expansion, and 
 in view of its long experience in directing them to that end, it was 
 incumbent upon it to take steps, not merely to meet the immediate 
 needs of the new Department, but to anticipate, and as far as possible, 
 provide for its developing requirements. 
 
 The interdependence of the two Departments in the successful pros- 
 ecution of the work assigned to them in common and the importance 
 of liberal reciprocity of action between them are made clear by refer- 
 ence to the legislation defining their respective duties in the premises. 
 Section 11 of the act of February 14, 1903, reads : 
 
 A person to be designated by the Secretary of State shall be appointed to 
 formulate, under his direction, for the instruction of consular officers, the 
 requests of the Secretary of Commerce and Labor: and to prepare from the 
 dispatches of consular officers, for transmission to the Secretary of Commerce 
 and Labor, such information as pertains to the work of the Department of Com- 
 merce and Labor ; and such person shall have the rank and salary of a chief of 
 bureau, and be furnished with such clerical assistants as may from time to time 
 be authorized by law. 
 
b PROMOTION OF TRADE INTERESTS. 
 
 The final paragraph of the act approved March 3, 1903, making 
 appropriations to supply deficiencies in the appropriations for the 
 fiscal year ending June 30, 1903, etc., under the heading " Department 
 of State,- ' is in part as follows : 
 
 To enable the Department of State to comply with the requirements of section 
 11 of the act to establish the Department of Commerce and Labor, approved Feb- 
 ruary 14, 1903 : Chief of Bureau, .$2,250, etc. 
 
 Under the authority conferred by the foregoing enactments, and 
 after consultation with and assent of the Department of Commerce 
 and Labor, a bureau, with the name " Bureau of Trade Eelations," 
 was established in the Department of State, and this Bureau has, since 
 the 1st of July, 1903, not only performed the duties prescribed by law, 
 with the result that the collection and transmission of consular reports 
 for the Department of Commerce and Labor have proceeded smoothly 
 and expeditiously, but has endeavored in other ways to second the 
 efforts of that Department to broaden the channels of commercial in- 
 formation and to present it to the public with the utmost prompti- 
 tude. The Bureau, in other words, has been made to interpret as 
 fully as possible what was evidently the intent of Congress, viz, that 
 while authority over consular officers was to be reserved to the Depart- 
 ment of State, which is necessarily the only channel of communica- 
 tion with the foreign governments to which consuls are accredited, 
 this authority was to be exercised to the fullest extent, compatible 
 with the maintenance of friendly relations with those governments, 
 to meet the requirements, present and prospective, of the Department 
 of Commerce and Labor. It was felt, moreover, that the perform- 
 ance of the mere letter of the law was not sufficient to discharge the 
 obligation of the Department of State to the business interests of the 
 country, but that, guided by the experience of many years in pro- 
 curing and publishing commercial and industrial data from abroad, 
 it should so direct the consular corps and other sources of information 
 as to make them fully responsive to the demands of our rapidly aug- 
 menting industries. 
 
 In pursuance of this object, steps were taken, immediately upon 
 the transfer of the publication of consular reports to the Department 
 of Commerce and Labor, to provide that Department with all com- 
 mercial and industrial reports from diplomatic officers, as well as 
 from consuls. There is no specific requirement of law for this service, 
 section 11 of the act of February 11, 1903, providing only for the 
 transmission of consular reports, but the Department of State had 
 become so impressed, during the period of its control of the publica- 
 tion as well as the collection of commercial data, with the value of 
 contributions, even though but occasional, and usually voluntary, 
 from embassies and legations, that it felt they should continue to be 
 made promptly available for the business community. 
 
 The possibly further uses of the diplomatic service on behalf of 
 vdiat promised to be the constantly broadening work of the Depart- 
 ment of Commerce and Labor naturally presented themselves in the 
 consideration of means to render the State Department's instru- 
 mentalities as efficiently progressive and modern as possible. In re- 
 cent years, the Department had noted so many instances of valuable 
 service to our trade and industry by zealous heads of embassies and 
 legations, or by the secretaries, that it seemed to it to be at least 
 
PROMOTION OF TRADE INTERESTS. Y 
 
 worth an inquiry as to whether such service might not be systema- 
 tized and to some extent coordinated with similar work by the con- 
 sular corps. A proposition of this sort, being in the nature, ap- 
 parently, of an innovation, might, it was perceived, meet with objec- 
 tion, on several grounds. Chief among these, it was anticipated, 
 were : 
 
 1. The danger of impairing the dignity and usefulness, in its or- 
 dinary functions, of the diplomatic office, by identifying it too closely 
 or too openly with commercial activities which might excite the 
 jealousy of our trade rivals among the nations. 
 
 2. The danger of conflict between the consular and diplomatic of- 
 ficers, if their duties were confused, with the oossible result of im- 
 pairing the initiative and zeal of the individual consul, which have, 
 admittedly, been of much benefit to American industn 7 . 
 
 3. Additional expense to the Government, without guaranty of suf- 
 ficient returns. 
 
 Having duly weighed these and other possible objections, the De- 
 partment reached the conclusion that they were not sufficient to dis- 
 courage further consideration, and in order that it might have the 
 benefit of the views of those immediately concerned it instructed the 
 diplomatic officers, under date of July 29, 1904, to report upon the 
 subject, and in a circular of August 4 following, asked the consular 
 officers for their opinions. The fact of the inquiry and its purpose 
 w T ere also communicated to the Secretary of Commerce and Labor, and 
 it w T as stated that the reports in reply would doubtless provide the 
 basis for the intelligent prosecution, in concert with his Department, 
 of the object sought, should it be found to be feasible. 
 
 Copies of the letter to the Secretary of Commerce and. Labor, of his 
 reply, and of the instruction to diplomatic officers and the circular to 
 consuls will be found in an appendix to this report, prefacing the re- 
 sponses to both instruction and circular. 
 
 In the instruction to diplomatic officers, the Department sought to 
 make clear the fact that it was no part of its purpose to do more than 
 raise the question whether the special advantages enjoyed by the em- 
 bassies and legations, located as they are at the capitals of nations 
 and in close touch with all the official centers of information, might 
 not be utilized to complement and make more accurate, as well as 
 more comprehensive, the admirable work on behalf of American com- 
 merce and industry which is being done by our consuls in nearly all 
 the important trade regions of the world. Care was taken, it was 
 thought, to aA^oid asking of the diplomatic officers the assumption of 
 any new duties inconsistent with the proprieties of their positions, 
 or indeed any duties essentially different from such as some of them 
 are already performing with great acceptability to the Department 
 and with generally recognized benefit to our business interests. The 
 powers of initiative and independence of action of consular officers, 
 within their proper bounds, were also, it was believed, fully safe- 
 guarded. 
 
 On these points, the instruction to embassies and legations reads : 
 
 Would it be practicable for you to transmit to the consular officers in the 
 country to which you are accredited instructions from the Department of State, 
 from time to time, for particular inquiries, noting in your dispatch of trans- 
 mission any suggestions that may occur to you, from your sources of information 
 
8 PROMOTION OF TRADE INTERESTS. 
 
 at the capital, which would facilitate the inquiry or help to make it more com- 
 prehensive or more exhaustive? 
 
 If the consular officers should be directed to transmit their answers to such 
 instructions through you, could you undertake to have their reports revised, 
 with annotations indicating errors of fact or judgment, or portions to* be elimi- 
 nated as likely to give offense or to cause you embarrassment in your diplomatic 
 capacity ? 
 
 You will appreciate the fact that, to prevent friction with the consular corps 
 and to preserve the spirit of initiative, which is one of the most valuable fea- 
 tures, the Department must reserve the right to determine whether a report 
 shall be amended or suppressed, in whole or in part, and that the annotations 
 made by diplomatic officers are for its guidance in reaching a decision. The 
 Department would always appreciate the fullest complementary information 
 from an embassy or legation, whenever a report or a series of reports seemed 
 to be defective or misleading. It is to be understood that the Department would 
 continue to communicate directly with consular officers as to matters pertaining 
 exclusively to their districts. 
 
 The embassies and legations were also asked to state whether there 
 was such cooperation as that outlined in the instruction between the 
 diplomatic and consular services of the countries to which they were 
 accredited, and whether those countries had any commercial or in- 
 dustrial attaches. If they had such attaches, information as to their 
 duties, diplomatic status, pay, etc., w T as requested; also an expression 
 of opinion as to whether similar attaches w r ould be useful for the 
 United States. 
 
 The replies to this instruction, together with the views of the consu- 
 lar officers, are appended in order that, if it be deemed advisable to 
 bring the matter to the attention of Congress, the considerations 
 which suggest themselves to both branches of our foreign service may 
 be given full expression. The reports have been arranged in geo- 
 graphical groups, in the order of relative importance of the great 
 trade divisions, so that a comprehensive view of the conditions in 
 each may be obtained. 
 
 As was to have been expected from so large a body of officials scat- 
 tered all over the world and affected by widely differing conditions, 
 a great variety of opinions and suggestions is presented, but it is 
 encouraging to the Department's general purpose to be able to state 
 that a spirit of zealous readiness to assist in devising a practical 
 scheme of cooperation between the diplomatic and the consular 
 branches animates most of them, including even some of those who 
 urge the strongest objections to the particular methods proposed. Of 
 the objections, some arise from purely local conditions, such as the 
 absence of diplomatic representation in a colony or other depend- 
 ency, or the lack of need for more than consular activity in countries 
 of limited area or trade importance — conditions which would, of 
 course, have regulated the Department's action in carrying out the 
 details of a general plan. Objections of a graver character will, it is 
 believed, be found to rest upon a broader construction of the Depart- 
 ment's purpose than it meant to convey, or than, in fact, is expressed 
 in the language of its instruction. 
 
 These objections proceed mainly, on the one hand, from apprehen- 
 sions lest the diplomatic service may be hampered in the discharge of 
 its ordinary duties by being forced to give too much attention to 
 details of trade and industry, which now devolve upon the consular 
 officers; and on the other hand, from the mistaken idea that the 
 activity of the consuls might be repressed or at least circumscribed 
 by the arbitrary interference of diplomatic officers. Neither of these 
 
PROMOTION OF TRADE INTERESTS. tf 
 
 results is a necessary or even probable consequence of the plan as 
 actually defined, but in order to remove all objections, the Depart- 
 ment has decided to waive any prepossessions it may have had, and 
 to confine its recommendation to what it finds to be the consensus of 
 the best opinion among the diplomatic and consular officers them- 
 selves. 
 
 There are but few of the reports that do not concede the desir- 
 ability of some expedient for strengthening and improving our 
 official machinery for promoting trade. Many of them indorse the 
 Department's proposals most strongly, and offer valuable suggestions 
 for giving them full effect. In a number of instances, consular offi- 
 cers themselves point out deficiencies in their own service and urge 
 the importance of a better system of supervision and control. Those 
 who oppose any material change base their arguments mainly on the 
 very marked progress which the consular service has shown in recent 
 years as an instrument of trade and the danger of making it worse 
 m seeking to make it better. Leaving out of consideration the weak 
 places revealed by the statements of their less optimistic colleagues, 
 a sufficient answer to such objectors is found in the fact that, as has 
 been pointed out by the Department in a number of reports upon the 
 subject, the improvement has been largety fortuitous and the result 
 of the native adaptability and energy of average Americans who 
 happened to be chosen for consular positions rather than of concerted 
 effort. Such direction as this improvement has had has come from 
 the Department itself, which has always sought to encourage con- 
 sular zeal and initiative, and would be the last to disparage their 
 achievements. 
 
 If, with such aid as the Department could give, 'the consular service 
 has more or less casually evolved distinctive merits of its own, is it 
 not reasonable to conclude that, with a system carefully devised with 
 reference to its special capabilities and needs, and with the great 
 advantage of diplomatic channels open to it, it could be made an 
 instrument strong in all its parts and likely to be equal to any strain 
 upon it from the growing demands of our industrial development? 
 
 Just seven years ago, in December, 1897, the Department deter- 
 mined upon a step not unlike the one now under consideration for the 
 improvement of its service of commercial intelligence from abroad. 
 Prior to that time, the Consular Iieports had been published but once 
 a month, except in cases of special exigency. It was decided that the 
 public should be put in possession more promptly of the great variety 
 of information of value to trade and industry contained in consular 
 dispatches, and accordingly, in January, 1898, the publication of the 
 report every day, except Sundays and legal holidays, was begun. 
 The result was that the consular service was at once brought into 
 close and frequent touch with the business world, and a strong im- 
 pulse was given to consular zeal and effort. The consuls soon real- 
 ized that they had been provided with a means of getting the results of 
 their work before the public with the utmost promptitude and in the 
 most practical form, and that their efforts were sure of speedy and 
 generous recognition by the great business community whom it was 
 their chief duty to serve. In order to give full effect to the change, 
 official rules and routine in this particular branch of the Department 
 machinery were relaxed or modified, so that the work might not be 
 obstructed by formalities, indispensable elsewhere, but involving, in 
 
10 PROMOTION OF TRADE INTERESTS. 
 
 this instance, unnecessary delays. The effect of these improvements, 
 slight in themselves, but regarded at the time in some quarters as 
 radical and even hazardous innovations, was not only to impart a 
 powerful stimulus to consular activity, as many consular officers 
 have testified, but for the first time, to concentrate the public intelli- 
 gence upon the consular body as a practical trade agency, and to im- 
 press it with a sense of the usefulness of the service in various direc- 
 tions, which more than compensated for the shortcomings frequently 
 alleged against it. 
 
 The action iioav contemplated by the Department is merely in the 
 same direction of giving greater practicality to the energies of our 
 foreign service. It has been preceded by efforts to raise the general 
 standard of personnel by means of increased care in making appoint- 
 ments and in the promotion of individuals on the ground of merit. 
 If. to these betterments, can be added judicious measures for combin- 
 ing the special utilities of the two branches of the service — the diplo- 
 matic and the consular — for the greater benefit of our material in- 
 terests, it is believed that any cost to the Treasury, which meed not be 
 considerable, will be many times repaid, and that neither the diplo- 
 matic nor the consular officers will have reason to complain of in- 
 fringement upon their proper rights or functions, but that both will 
 reap the benefit of added consequence as more efficient agents of their 
 country's progress. 
 
 The apprehensions expressed in some quarters that such action may 
 be interpreted by foreign nations as contemplating an aggressive cam- 
 paign for tracle. and may consequently have the effect of intensifying 
 the hostility already excited by our so-called " commercial invasion," 
 of Europe especially, would scarcely seem to be entitled to much 
 weight in view of the fact that the more advanced industrial coun- 
 tries have for some time been openly equipping themselves for pre- 
 cisely such effort, and as the governments of some of them are in 
 the forefront of this movement, employing diplomatic as well as con- 
 sular agencies in direct and often detailed action on behalf of trade 
 interests, it is not to be supposed that serious objection would be made 
 to or ill feeling aroused by similar activity on our part. 
 
 In order, however, to provide against even so unlikely a contin- 
 gency, and also to give full weight to the various considerations 
 urged by the diplomatic and consular officers in their replies to the 
 Department's interrogatories. I have the honor to propose that the 
 Congress be asked to authorize the trial of a plan which, it is be- 
 lieved, will reconcile the Department's general object with all the 
 recommendations of practical importance from both branches of the 
 service, and at the same time, avoid the possible complications upon 
 which some of the representatives of each branch lay particular stress. 
 
 As has been indicated, there is a consensus of opinion among 
 those who have correctly interpreted the Department's instruction of 
 July 29 as to the need of concentration and intelligent direction of 
 effort upon the part of all our officials abroad who are capable in any 
 way of contributing to our general equipment as an exporting nation 
 in trade knowledge and in the tools and appliances for making the 
 best use of it. They differ only as to the means and methods to be 
 employed. The DeiDartment deems it but proper to defer, in this 
 particular, to the judgment of men whose actual experience in the 
 work gives them a special right to consideration; but as there is no 
 
PROMOTION OF TRADE INTERESTS. 11 
 
 general agreement among them upon a definite line of action, it is 
 obviously necessary to endeavor first to harmonize their differences, 
 and by consultation and comparison of views, to work out a practical 
 scheme. This might be accomplished, it is true, by the Department 
 itself, acting on its best judgment, after careful review of all the 
 facts set forth in the answers to its interrogatories ; but it is believed 
 that a solution of the problem much more satisfactory to the whole 
 consular and diplomatic body, to the Congress, and to the country 
 would be found if the plan to be finally pursued were the result of 
 special inquiry and experiment by a staff of capable agents, acting 
 for the Department of State, and through it, for the Department of 
 Commerce and Labor, in personal contact and association with the 
 diplomatic and consular officers in the more important trade regions. 
 
 It will be observed that, in many of the answers to the Department's 
 instruction, the creation of a staff of commercial experts is strongly 
 urged, either as adjuncts of the diplomatic or the consular corps, or 
 as intermediaries between them. In the opinion of the Department, 
 they would be most useful as intermediaries. As such, they could be 
 given the rank of attaches to embassies or legations, with facilities 
 of access to official and other sources of information which are to be 
 enjoyed only by persons having diplomatic status. Their duties, how- 
 ever, being declaredly commercial, and only such as are already exer- 
 cised by diplomatic officers of other Governments, they would in no 
 way compromise the embassy or the legation in the exercise of its 
 special functions. With the benefit of free access to all the executive 
 departments of a government, and with the support and cooperation 
 of the embassy or legation, such an official would occupy a position of 
 peculiar vantage, which should enable him to extract all that is 
 valuable to his country's industries and commerce from the opportuni- 
 ties which, the Department believes, exist in the diplomatic service, 
 but which now necessarily lie more or less fallow. 
 
 The usefulness of such an agent would not be so great, however, 
 in his diplomatic capacity, or even in making comprehensive reports 
 upon commercial and industrial subjects, as in the service he could 
 render by means of personal association with consuls and actual 
 experience of their work. The observation of conditions on the 
 spot by a competent and reliable representative could not fail to be 
 of the utmost value to the Department in adjusting its action to the 
 requirements not onJy of particular cases, but of the service as a 
 whole. His assistance and advice, based, as it would be, upon excep- 
 tional sources of information, might be expected to greatly facili- 
 tate the work of a consular officer in many instances, and in course 
 of time, he would, in all probability, be able to contribute his full 
 share toward the working out of a system of efficient cooperation 
 between the two branches of the service which would have intelli- 
 gent regard for the proper interests of both. In the meantime, 
 being, it is assumed, primarily a commercial expert, he would also 
 be employed in supplying for the Department of Commerce and 
 Labor information of a character, for comprehensiveness and accu- 
 racy, not to be expected of either consular or diplomatic officers who 
 lack the special equipment for such work. 
 
 There are a number of consular officers, however, who may be 
 classed as " commercial experts," as is demonstrated by the charac- 
 ter of their reports, and, other things being equal, it would be of 
 
12 PROMOTION OF TRADE INTERESTS. 
 
 great benefit if the proposed new officers could be chosen, preferably, 
 from among them. It mar. doubtless, be advisable to select special- 
 ists for temporary purposes, as. for example, to report upon a par- 
 ticular industry or a passing phase of trade conditions, but for the 
 general purposes of trade promotion and the strengthening of our 
 commercial representation abroad, the men best suited would seem 
 to be those who have demonstrated their capacity and energy in the 
 actual work of the consular corps. There is another reason, and, as 
 it seems to the Department, a very strong one. for giving consuls the 
 preference in making these appointments in the encouragement and 
 incentive it would offer to the whole service for the. most strenuous 
 effort. 
 
 A capable consular officer, rewarded with the post of commercial 
 attache, would be a living example and object of emulation for every 
 aspiring man in the service: and to no other type of official, prob- 
 ably, could consular officers look with the same confidence for encour- 
 agement and help as to one who had been chosen for merit from 
 among themselves. To none, it may be assumed, would they submit 
 their own opinions so cheerfully or the business of their offices for 
 inspection with a greater degree of assurance that full justice would 
 be done them. As a graduate, so to speak, of the consular corps, and 
 therefore in sympathy with his former associates, but officially inde- 
 pendent of them, a commercial attache charged with such duty 
 could be depended upon to hold the scales even between the indi- 
 vidual and the Government, and with his consular experience to 
 guide him. to reach conclusions fair to all interests and of practical 
 and permanent value to the public service. 
 
 A well-defined and stable system of consular inspection is the sim- 
 plest and surest means of maintaining the proper standard of con- 
 sular morale and efficiency, which has been so often sought in 
 propositions to Congress for legislation, based, in some instances, 
 upon alleged defects that have been remedied, or upon considerations 
 of an academic or social character that commended themselves, at 
 one time, to several of the European nations, but are now regarded 
 either as obsolete or subsidiary to other requirements, developed by 
 modern trade competition. Such a system of well-ordered super- 
 vision would probably be most welcome to the consular service, con- 
 sisting as it does, in the main, of a body of typical Americans, with 
 those instincts of zeal for their country and earnest desire to advance 
 its interests which are so strikingly characteristic of our people. 
 
 Consular inspection, hitherto, has been of an occasional and neces- 
 sarily partial character, owing to the fact that it could be undertaken 
 only by special provision of Congress. The reports which have 
 resulted from such inspection have undoubtedly been of value for both 
 legislative and administrative purposes, but a steady, unrelaxing. and 
 thoroughly well-informed supervision, such as has been indicated, 
 is the only sure means of protecting the interests of the Government, 
 of preventing lapses and abuses, of developing the full capacities of 
 the service, and of securing to individuals the proper measure of 
 their deserts. Xo consular officer fit for his position need fear such 
 scrutiny, and all would feel that they had solid ground for encour- 
 agement to do their best. 
 
 The considerations which have thus been drawn from the reports 
 of diplomatic and consular officers, herewith presented, seem to the 
 
PROMOTION OF TRADE INTERESTS. 13 
 
 Department to warrant a recommendation to Congress for the crea- 
 tion of a staff of special agents, with the diplomatic rank and title 
 of commercial attache, as provided in the tentative draft of para- 
 graphs to be inserted in the diplomatic and consular appropriation 
 bill, which I have the honor to submit (inclosure) . It will be observed 
 that the number of proposed commercial attaches is limited to six. 
 At first, and for some time to come, the scheme must be regarded 
 as more or less experimental, and it is believed that six attaches will 
 be sufficient to test its value. A smaller number would be inade- 
 quate to cover the ground which it is desirable to occupy, if a fairly 
 comprehensive trial is to be made. Under the terms of the proposed 
 legislation, the six attaches, to be appointed by the President, pref- 
 erably from the consular staff, are to be assignable at the discretion 
 of the Secretary of State. Of the six. it is proposed that five shall 
 be distributed so as to cover the following trade divisions: 
 
 1. Austria-Hungary, the Balkan States, Germany, Switzerland, 
 Russia, and other countries of northern Europe. 
 
 2. France, Italy, Portugal, Spain, and other countries bordering 
 on the Mediterranean. 
 
 3. Great Britain and dependencies. 
 
 4. Mexico, Central America, the West Indies, South America. 
 
 5. Asia — more particularly Asiatic Russia, China, and Japan. 
 
 6. At large — i. e., one attache to be held in reserve, either for spe- 
 cial service in the Department of State, as occasion may require for 
 advisory or other purposes, or for particular missions to any part 
 of the world. 
 
 It is not proposed that any of the attaches should have a fixed resi- 
 dence at a particular capital, but that they shall be transferable from 
 point to point as circumstances dictate. Their tenure should obvi- 
 ously be secure, so long as they fulfill their duties satisfactorily, if we 
 are to offer sufficient inducements to really capable men to make such 
 a service what it ought to be — a career. For the same reason, and 
 because of the exceptional qualifications demanded, a salary of $5,000, 
 with adequate allowance for traveling expenses, is believed to be the 
 least that could properly be offered. The total cost of such an estab- 
 lishment, which is placed at $50,000 per annum, is insignificant com- 
 pared with the results which, it is confidently expected, would soon 
 begin to appear in the character of the information which the 
 Department of Commerce and Labor would be able to furnish to 
 manufacturers and exporters, and in the greater utility to our trade 
 interests of the combined energies of the diplomatic and consular 
 officers intelligently directed to a common end. 
 
 If the importance of the proposed action is not sufficiently appar- 
 ent from what has been said, it ought to be obvious when considered 
 as a step in the direction of providing the United States with the 
 official machinery which, sooner or later, will be imperatively 
 demanded by our congested industries to aid them in finding outlets 
 for their surplus products. As was pointed out in the Annual Review 
 of the World's Commerce issued by this Department as long ago as 
 April, 1898, and reiterated in the same publication by the Depart- 
 ment of Commerce and Labor for the calendar year 1903, the pro- 
 ductive capacity of American workshops and factories is increasing 
 at such a rate that, to keep pace with it, we must obtain a commen- 
 surate share of foreign consumption. " Foreign markets," we are 
 
14 , PROMOTION OF TRADE INTERESTS. 
 
 told in the Review for 1908, " are as necessary (to this) as the home 
 markets were ten or fifteen years ago. In some lines our production 
 in six or eight months is sufficient to cover the home demand of a 
 year. The production of the other four months must be marketed 
 outside the United States. Xor will it do to go into the foreign mar- 
 kets with any less zeal and effort than is used to secure home markets. 
 In fact, a much greater effort may be needed in the one than in the 
 other." 
 
 Whatever form such effort on the part of our business interests may 
 take, it must be evident that it can be greatly facilitated by the most 
 efficient representation by government agencies in the countries to 
 which we wish to sell our surplus products. It is neither practicable 
 nor desirable for the representatives of the Government in foreign 
 countries to attempt to make trade. The actual business must always 
 be left to the individual energy and tact of those engaged in it ; but 
 unlike the home market, the foreign market presents peculiar con- 
 ditions, often fluctuating, as to which the American exporter has, in 
 most instances, no reliable means of information except ihe reports 
 of diplomatic and consular officers. It is but just to the consular 
 service to say that, upon the whole, it has kept well abreast of, and not 
 infrequently has been in advance of the demand for such information ; 
 but as our productive energy increases and the necessity for seeking 
 foreign markets becomes more stringent, it is to be expected that the 
 requirements of the business community for reliable, well- digested, 
 and practical details as to trade conditions abroad, and for advice 
 and help in exploring unknown markets, will tax the best official 
 machinery that can be devised. It would seem to be but the part of 
 ordinary prudence not to wait for the emergency, but to set to work 
 at once to perfect such machinery while there is still time for experi- 
 ment and trial. 
 
 Respectfully submitted. 
 
 Francis B. Loomis, Acting Secretary. 
 
 Draft of paragraphs proposed for insertion in the act making appropriations for 
 the diplomatic and consular service for the fiscal year ending June 30. 1906. 
 
 SALARIES OF COMMERCIAL ATTACHES OF EMBASSIES AND LEGATIONS. 
 
 For six special agents of the Department of State, with the diplomatic rank 
 and title of commercial attache, to be appointed by the President, preferably 
 from the consular service, and to be assigned, subject to transfer, at the discre- 
 tion of the Secretary of State, to embassies and legations, or to particular trade 
 regions or to such occasional service in the Department of State, as may be 
 deemed advisable by the Secretary of State, who shall make regulations pre- 
 scribing their duties, which shall include inspection of consulates, and shall 
 require such cooperation by diplomatic and consular officers as may be necessary 
 and judicious, at $5,000 each, $30,000. 
 
 For necessary traveling expenses and cost of clerk hire, books of reference and 
 periodicals, stationery, typewriting machines, telegrams, etc.. for official pur- 
 poses of such commercial attaches. $20,000. 
 
 Total, $50,000. 
 
APPENDIX. 
 
 REPORTS 
 
 OF 
 
 DIPLOMATIC AND CONSULAR OFFICERS 
 
 ON 
 
 PROMOTION OF TRADE INTERESTS. 
 
 15 
 
INSTRUCTION TO DIPLOMATIC OFFICERS. 
 
 [Circular.] 
 
 Promotion of Trade Interests. 
 
 Department of State, 
 
 Washington, July 89, 190Jf. 
 To the Diplomatic Officers of the United States: 
 
 Gentlemen : I have to request that you will cause to be prepared 
 at your earliest convenience for the information of the Department a 
 memorandum upon the capabilities of the diplomatic service for the 
 promotion of our trade interests in the country or countries to which 
 you are respectively accredited. The Department is prompted in 
 making this inquiry by two considerations which have been impressed 
 upon it in the course of years in the collection of commercial and 
 industrial data for publication in the Consular Keports. 
 
 The first of these considerations is that our embassies and legations, 
 as shown by their frequent efforts to assist the spread of trade in- 
 telligence among our people, would seem to need only a definite plan 
 of action and proper instruments to become powerful auxiliaries in 
 the great and constantly growing work of equipping our manufac- 
 turers and exporters for effective competition in the world's com- 
 merce. 
 
 The second consideration is the limitation upon the consular 
 service in its lack of diplomatic status in obtaining official informa- 
 tion at first hand. Such information can be secured by a consular 
 officer only through the cooperation of our diplomatic agents or by 
 courtesy of an official of the country in which he is located. More- 
 over, a consul-general in the capital city of a country may be, and 
 usually is, a local officer, whose jurisdiction and influence do not ex- 
 tend beyond a particular district. It has sometimes happened that, 
 when the Department has sought to obtain through the consular 
 officers a group of comprehensive reports upon some subject of gen- 
 eral interest and importance, serious omissons have occurred from the 
 inability of those officers to reach the center of official information — 
 i. e., the ministerial department of a government specially charged 
 with the matter. Fortunately, in most instances, this difficulty is over- 
 come by the assistance rendered to the consuls by our diplomatic 
 representatives or by the good offices of some bureau of a govern- 
 ment with which a consul may have established friendly relations. 
 
 It will be apparent to you, however, that if the United States is 
 to gain and hold its proper place among the industrially competing 
 nations in the world's markets nothing should be left to such chances, 
 
 H. Doc. 245, 58-3 2 IV 
 
18 PROMOTION OF TRADE INTERESTS. 
 
 but that the machinery for collecting information as to business con- 
 ditions in other countries should be made as efficient and as safely 
 automatic as the means will allow. As you are aware, the consular 
 service has made a general and very marked advance in its utility 
 in this direction in recent years, so much so, in fact, as to have be- 
 come the object of imitation and emulation on the part of the more 
 prominent industrial nations; and it is believed that, if the diplo- 
 matic service could be brought into closer and more active coopera- 
 tion with it, the United States would possess an instrument of trade 
 expansion which it would be difficult to rival. 
 
 In view of the fact that the extension of commerce, in its many 
 forms, with a multitude of subsidiary interests, has admittedly be- 
 come one of the chief aims of world diplomacy, and the further 
 fact that some nations already have diplomatic representatives, 
 known as ;; commercial ataches," charged with the special duty of 
 collecting industrial and trade information, it is assumed that no 
 serious question of propriety could arise from the assumption by 
 an embassy or legation of the functions which have been indicated 
 as a part of its regular duties. 
 
 Your opinion is therefore requested on the following points : 
 
 1. Would it be practicable for you to transmit to consular officers 
 in the country to which you are accredited instructions from the 
 Department of State, from time to time, for particular inquiries; 
 noting in your dispatch of transmission any suggestions that may 
 occur to you, from your sources of information at the capital, which 
 would facilitate the inquiry or help to make it more comprehensive 
 or more exhaustive? 
 
 If the consular officers should be directed to transmit their answers 
 to such instructions through you, could you undertake to have their 
 reports revised, with annotations indicating errors of fact or judg- 
 ment, or portions to be eliminated as likely to give offense or to cause 
 you embarrassment in your diplomatic capacity? 
 
 You will appreciate the fact that, to prevent friction with the 
 consular corps and to preserve the spirit of initiative, which is one 
 of its most valuable features, the Department must reserve the right 
 to determine whether a report shall be amended or suppressed, in 
 whole or in part, and that the annotations made by diplomatic officers 
 are for its guidance in reaching a decision. The Department would 
 always appreciate the fullest complementary information from an 
 embassy or legation, whenever a report or series of reports seemed 
 to be defective or misleading. It is to be understood that the 
 Department would continue to communicate directly with consular 
 officers as to matters pertaining exclusively to their districts. 
 
 2. Is there such cooperation as that outlined above between the 
 diplomatic and consular services of the country to which you are 
 accredited ? If so, describe it as fully as you % can. Has the Gov- 
 ernment any commercial or industrial attaches? If so, define their 
 duties, diplomatic status, pay, etc. Would such attaches, in your 
 judgment, be useful for the United States? 
 
 3. What additional assistance, if any, would be needed to enable 
 you to carry into effect the programme described under question 1 ? 
 
 Any suggestions that may seem, from }^our consideration of the 
 foregoing, to be likely to further the object sought — viz. the coordi- 
 
PROMOTION OF TRADE INTERESTS. 19 
 
 nation and improvement of existing facilities for the collection of 
 commercial intelligence, with the possible result of legislation by 
 Congress, to make them still more efficient — would be welcomed by 
 the Department. 
 
 The principal consular officers will be furnished with a copy of 
 this instruction for an expression of their views upon the subject. 
 I am, gentlemen, your obedient servant, 
 
 Francis B. Loomis, 
 
 Acting Seretary. 
 
 CIRCULAR TO CONSULAR OFFICERS. 
 
 [Circular.] 
 
 Promotion of Trade Interests. 
 
 Department or State, 
 
 Washington, August ^, 1901],. 
 To the American Consular Officers. 
 
 Gentlemen : I inclose, for your information, a copy of a circular 
 to the American diplomatic officers in regard to a plan for the coor- 
 dination and improvement of existing facilities for the collection of 
 commercial intelligence and the promotion of American trade inter- 
 ests abroad. 
 
 The Department desires an expression of your views upon the 
 subject as early as practicable. 
 
 I am, gentlemen, your obedient servant, 
 
 Alvey A. Adee, 
 Acting Secretary. 
 
 letter to secretary of commerce and labor. 
 
 Department or State, 
 
 Washington, August 1, 1904. 
 Sir: I inclose herewith copy of an instruction to our diplomatic 
 officers, calling for an expression of their views as to the practica- 
 bility of a systematic cooperation on their part with the consular offi- 
 cers in collecting commercial and industrial information for publi- 
 cation in the Consular Eeports. It is believed that such cooperation 
 on the lines indicated in the instruction might result in greatly 
 strengthening and improving our facilities for supplying fresh and 
 reliable data as to trade conditions and industrial progress in for- 
 eign countries to our manufacturers and exporters, and thus promote 
 the sale of American goods abroad. Eeplies to this instruction will 
 doubtless provide the basis for an intelligent prosecution of the plan, 
 in concert with your Department, should it be found to be feasible. 
 I have the honor to be, sir, your obedient servant, 
 
 Francis B. Loomis, 
 
 Acting Secretary. 
 The Secretary of Commerce and Labor. 
 
 Inclosure. 
 
20 PROMOTION OF TRADE INTERESTS. 
 
 REPLY OF SECRETARY OF COMMERCE AND LABOR. 
 
 Department of Commerce and Labor, 
 
 Office of the Secretary, 
 Washington, August 2, 1904- 
 Sir : I have the honor to acknowledge the receipt of your letter of 
 the 1st instant, inclosing a copy of a circular letter issued to our dip- 
 lomatic officers calling for an expression of the views as to the prac- 
 ticability of systematic cooperation on their part with the consular 
 officers in collecting commercial and industrial information for publi- 
 cation in the Consular Keports. 
 
 Your letter and inclosure will be forwarded to the Bureau of Sta- 
 tistics for its information. 
 
 Respectfully, V. H. Metcalf, 
 
 Secretary. 
 The Secretary of State. 
 
REPORTS OF DIPLOMATIC AND CONSULAR OFFICERS BY 
 GRAND TRADE DIVISIONS AND COUNTRIES. 
 
 EUROPE. 
 
 AUSTRIA-HUNGARY. 
 
 Report from the Embassy. 
 
 American Embassy, 
 
 Vienna, September 9, 1904. 
 
 The embassy is of the opinion that, in many cases where the De- 
 partment desires particular information, it would be entirely practi- 
 cable for it to transmit to the consular officers within its jurisdiction 
 the Department's instructions, noting in the dispatch of transmission 
 such suggestions as, from our sources of information at the seat of 
 government, would materially expedite the inquiry desired and help 
 to make it more comprehensive. Should such a course, however, be 
 adopted as the invariable rule, it is easily possible to conceive of cases 
 in which the embassy's intervention might lead to unwarrantable 
 delay. 
 
 Regarding the second paragraph of the Department's question, I 
 do not see how the embassy could undertake to revise the reports of 
 consular officers in reply to such instructions as above indicated, if 
 transmitted through the mission, without practically making a sepa- 
 rate report of its own, which would naturally entail much delay — 
 that is, so far as regards errors of fact. As regards errors of judg- 
 ment, in cases where reports come from consular officers at a distance 
 from the seat of the mission, it seems safe to assume that the official 
 making the report and being on the spot is better qualified than the 
 embassy to express an opinion. In the rare cases where portions of 
 reports would cause embarrassment to the embassy or give offense 
 here, it could well be indicated that such was the opinion of the 
 mission. 
 
 Such cooperation as that above outlined does not exist between the 
 diplomatic and consular services of Austria-Hungary. That is to 
 say, all consular reports are transmitted through their diplomatic 
 representatives; but I am informed by the second chief of section at 
 the foreign office such a course is largely formal, and only in special 
 cases where the mission happens to be fully acquainted with the sub- 
 ject in hand is any revision ever made. 
 
 The Austro-Hungarian Government has no commercial or indus- 
 trial attaches. To supply this want, however, they have stationed in 
 most of the large capitals of Europe experts appointed by the depart- 
 ments of commerce and agriculture. These experts have no diplo- 
 
 21 
 
22 PROMOTION OF TRADE INTERESTS. 
 
 matic or consular rank and are in no way subordinate to either branch 
 of the service. They are usually, upon their arrival at a new post, in- 
 troduced by their diplomatic representatives to the various depart- 
 ments of the government, viz, the ministries of commerce, agriculture, 
 and interior, but have no further connection with the mission. All 
 their instructions are sent to them direct from the ministry by which 
 they have been appointed — never through the foreign office — and their 
 reports are made in the same way. They do not confine themselves 
 to the capitals of the countries where they are stationed, but travel, 
 and by personal observation keep themselves thoroughly informed 
 of the general commercial and industrial conditions prevailing 
 throughout their sphere of action. 
 
 The English commercial attache is the only one at Vienna. He 
 has the dipk-matic rank of second secretary of embassy and is 
 accredited al^c* ^o Rome. Athens, and throughout the Balkans, though 
 he spends most of his time here. He was, upon his arrival in 
 Vienna, officially introduced by the British ambassador in person 
 at the several ministries, and is in a position to obtain expeditiously 
 full and reliable information. His salary is £1,000 per annum. In 
 a general way it is his duty to draft all notes to the foreign office 
 and dispatches to his home government dealing with politico- 
 commercial matters as well as the making of special reports. The 
 British Government has such representatives also in Berlin, Paris, 
 and St. Petersburg. They are appointed by their foreign office, and 
 usually are young men who have been in the consular service and 
 have shown signs of marked ability. 
 
 Such a man would, in my opinion, be needed to enable the embassy 
 to thoroughly carry into effect the programme described under your 
 question 1, but whether the possibilities of our trade expansion in 
 Austria -Hungary would warrant such an appointment seems prob- 
 lematic. 
 
 Chandler Hale, 
 Charge d' Affaires ad Interim. 
 
 Opinions of Consular Officers. 
 
 BUDAPEST. 
 
 American Consulate- General, 
 
 Budapest, September 12, 1904- 
 
 From Hungary's point of view any more supervision by the dip- 
 lomatic officers of the Hungaro-Austrian monarchy of the Hungaro- 
 Austrian consuls' reports than the simultaneous receipt by them of 
 copies of all communications of political importance made to the 
 foreign office in Vienna is groundless and vexatious to all concerned. 
 
 The ordinance Xo. 2873/H, of March 1, 1868, issued by the Hun- 
 garo-Austrian minister of foreign affairs to the consuls of the mon- 
 archy directed the transmission of consular reports as follows : 
 
 (a) The yearly reports shall be sent at the end of March through 
 the consulate-general and the diplomatic mission. 
 
 (b) The periodic weekly and monthly reports of consuls in 
 Europe and the quarterly reports of consuls in the other continents 
 
PROMOTION OF TRADE INTERESTS. 23 
 
 of the globe shall be sent direct to the ministry of foreign affairs 
 in Vienna. 
 
 (c) The special urgent reports made by all consuls shall be sent 
 direct to the respective ministers of commerce in Budapest and 
 Vienna. 
 
 (d) The .requested reports awaited by either of the two ministers 
 of commerce shall be sent direct to the requesting minister, but a 
 copv shall be sent simultaneously to the diplomatic mission. 
 
 In 1886 (ISTo. 24,707/10, of April 30) another ordinance of the 
 minister of foreign affairs instructed the consuls to reply direct to all 
 requests for reports made by either of the two ministries of com- 
 merce; and in the printed instructions as to the rendering of con- 
 sular reports issued in 1895 (sections 10, 32) no mention is made of 
 the obligation to send a copy of the yearly and requested reports to 
 the diplomatic mission. Consular officers may also telegraph direct 
 to the two ministers of commerce urgent openings for goods, etc. 
 
 The particular attention of Austrian business circles has been 
 drawn to the result of the written agreement between the Hungarian 
 and Austrian ministries, signed by ex-Prime Ministers Banffy and 
 Bacleni in 1898 (incorporated in Article X of the proposed new cus- 
 toms and commercial convention between Hungary and Austria, 
 which still awaits passage by the two Parliaments). By the said 
 agreement Hungary and Austria arranged for autonomous Hun- 
 garian and Austrian commercial and agricultural commissioners to 
 reside in foreign countries and to be reported to the foreign govern- 
 ments, but not accredited and attached as diplomatic or consular 
 officials. Until 1898 the consular reports found their way to public 
 notice quicker in Vienna than in Budapest; but the Hungarian 
 ministers of commerce have lately, in concrete cases, effected a reform 
 in the transmission and publication by which Hungary now publishes 
 .such reports quite as promply as Austria. 
 
 In consequence of the foregoing state of things in Hungary, which 
 is a rival of America both industrially and agriculturally, and has 
 just established closer commercial navigatory relations with the 
 United States of America, the gain won by raising the American con- 
 sulate at Budapest to a consulate-general will immediately be lost by 
 putting it under the embassy in Vienna. Not only will the old loss 
 of time in transmission occur, but the old narrowing reflections of the 
 Austrian standpoint will renew themselves. Any special experts in 
 commercial or agricultural fields should be sent separately to Hun- 
 gary and Austria, reported through the embassy in Vienna to the 
 Hungaro- Austrian ministry of foreign affairs, but instructed to reside 
 and hold office in or near the respective consulates-general in the two 
 countries. The same is true of immigration, river and harbor, and 
 all other special experts or commissioners sent out from Washington. 
 
 The attention of the Washington Government is called to the fre- 
 quent sending to Europe of experts in city administration, sugar 
 manufacture, prison supervision, State education, and other govern- 
 mental and economic matters by single States and cities of the Ameri- 
 can Union. Such unaccredited persons frequently call upon the 
 embassy or the consulates for letters to the State and local authori- 
 ties, in Hungary as well as in Austria, and obtain information and 
 deference of treatment which ought to be paid, first of all, to national 
 officers sent out from Washington. 
 
24 PROMOTION OF TRADE INTERESTS. 
 
 In place of commercial attaches, the United States should, in the 
 opinion of this office and of its Fiume agency, first provide salaries 
 for deputy consuls and consular agents, making them responsible for 
 the routine official work of certifying invoices, viseing passports, 
 etc. The principal officers would then be free to devote the greatest 
 part of their time to the preparation of consular reports, replies to 
 merchants, handling of samples and catalogues, etc. The presence of 
 commercial attaches would then be necessary only in countries where 
 technical reports are especially desired at certain junctures in the 
 trade and manufacturing in certain lines. 
 
 Diplomatic annotation of consular reports of a purely commercial 
 nature is everywhere in the world considered unnecessary. On the 
 other hand, the Bureau of Trade Relations ought to require consular 
 officers to confine their reports to information regarding their respec- 
 tive districts. At present consuls in Germany are allowed to report 
 on both Hungary and Austria, and it is not seen how the embassy in 
 Vienna or in Berlin could prevent their transmission for publication. 
 
 Frank Dyer Chester . 
 
 Consul-General. 
 
 KEICHEXBEKG. 
 
 In accordance with circular instructions of August 4, 1904. I beg 
 to report that the plan for the promotion of trade interests outlined 
 in the circular to diplomatic officers of July 29. 1904. can not. in my 
 judgment, be too strongly indorsed. 
 
 From my own experience, and especially in Austria, I believe that 
 the plan, which is so comprehensively set forth in the circular as to 
 obviate any repetition of reason or argument, would result not only 
 in a simplified but a greatly expedited service. The difficulties that 
 consular officers meet in securing, and especially from official sources,' 
 accurate and prompt information have not been too strongly stated, 
 while such information, if called for through diplomatic channels, 
 would be immediately forthcoming. It would also, I think, be a 
 relief to every consular officer to be called upon for specific facts 
 obtainable within the boundaries of his own district, instead of for 
 general information, which frequently comprehends the technical 
 and commercial details of a subject national in its scope and extremely 
 puzzling as to what should be its proper treatment by a district officer. 
 
 S. C. n McFarlaxd. Consul. 
 
 Rek hexberg, August 31. 1904- 
 
 TRIESTE. 
 
 I have the honor to acknowledge the receipt of the Department's 
 circular, dated August -1. 100-1. requesting an expression of the views 
 of consular officers in regard to the plan for the coordination, and 
 improvement of existing facilities for the collection of commercial 
 intelligence and the promotion of American trade interests, outlined 
 in the circular to diplomatic officers of July 29, 1904. 
 
 In response to these instructions. I beg to say that there can be no 
 doubt that diplomatic officers have facilities for collecting commercial 
 
PROMOTION OF TRADE INTERESTS. 25 
 
 and industrial data which consular officers do not possess. The large 
 majority of our consuls are located in provincial toAvns, and in coun- 
 tries with a centralized form of government. It is often exceedingly 
 difficult to obtain from provincial officers any information relating 
 to the affairs of their respective offices without the express permission 
 of the Government. 
 
 To exemplify : A few days ago, while preparing my report on ware- 
 houses for storage of merchandise in transit or in bond, I had occa- 
 sion to request the local warehouse authorities to favor me with a 
 statement of their aggregate receipts and expenditures. The super- 
 intendent promptly replied that he regretted his inability to comply 
 with my request ; that the regulations of the service required him to 
 observe absolute secrecy concerning the financial affairs of the ware- 
 houses, and that the data which I requested could be obtained only 
 from the minister of commerce. 
 
 Consuls in provincial towns, as a rule, are compelled to draw their 
 material for commercial reports from private sources and the metro- 
 politan newspapers. As regards my own case, I have to rely chiefly 
 en the leading Vienna papers for all really important items concern- 
 ing the commerce and navigation and even the sanitary condition of 
 this port. 
 
 A few years ago I was greatly surprised one morning to find in a 
 Vienna paper the statement that there was a case of plague in Trieste. 
 No mention of it had been made in the Trieste papers or in the bulle- 
 tin of the local health board. To get at the truth of the matter I 
 interviewed one of the physicians of the city hospital. This gentle- 
 man reluctantly admitted that ten days before a Greek sailor had died 
 at the hospital under rather suspicious circumstances; that the sur- 
 geons who performed the autopsy were convinced that the disease 
 which caused the man's death was plague, but that under existing 
 regulations portions of the diseased tissues had to be sent for a final 
 examination to Vienna, whence any announcement concerning the 
 case would have to proceed. 
 
 I at once reported to the Department by cable the appearance of 
 plague at Trieste. Had it been reported from Vienna as soon as it 
 was announced there — that is to say, the day before — I might have 
 been suspected of dereliction of duty. 
 
 I merely make mention of these cases to show how much easier it is 
 for diplomatic officers accredited to a country with a centralized form 
 of government to obtain industrial, commercial, and sanitary infor- 
 mation than it is for consular officers located in provincial towns. 
 
 By the earnest yet judicious cooperation of our diplomatic and con- 
 sular officers, much could be done for the expansion of our foreign 
 trade which at present must needs remain undone. If, for instance, 
 the diplomatic representatives would refer all important commercial 
 and industrial information obtained at the capital to the consuls of 
 the district to which it relates, with the request to investigate it and 
 report thereon either to the legation or embassy or directly to the 
 Department, both branches of our foreign service might by concur- 
 rent efforts often accomplish results which neither could accomplish 
 single handed. 
 
 The transmission through the embassies or legations of the Depart- 
 ment's instructions to the consular officers for special inquiries, as well 
 as for the consular reports prepared in response thereto, would, I 
 
26 PROMOTION OF TRADE INTERESTS. 
 
 believe, with a fairly stable diplomatic personnel, result in supplying 
 our merchants and manufacturers with more comprehensive and "per- 
 haps also more reliable information as to commercial and industrial 
 conditions in foreign countries. 
 
 On the other hand. I am clearly of the opinion that much would be 
 gained if consuls were permitted under certain circumstances to 
 transmit commercial reports prepared on their own initiative directly 
 to the Department, and not, as the Consular Kegulations require at 
 present, under open cover through their respective consuls-general. 
 
 The Department's circular of December 15. 1903. requires con- 
 sular officers to report promptly all opportunities in their respective 
 districts for supplying material for or obtaining contracts in the 
 construct on of public or semipublic works. As in Austria, the 
 period during which proposals for contracts are received is usually 
 limited to thirty days from the day public notice thereof is given. 
 American contractors do not often have an opportunity to compete 
 unless the notice is brought to their attention with all possible haste. 
 Letters sent from here to Washington via England often reach their 
 destination in ten days, while my official dispatches, when trans- 
 mitted via Vienna and Bremen, are probably not less than two 
 weeks in transit. Other consuls doubtless labor under similar dis- 
 advantages. 
 
 I would, therefore, respectfully suggest that consular officers be 
 permitted to send all dispatches reporting notices of contracts to be 
 let or transmitting plans and specifications relating thereto by direct 
 mail. 
 
 Fredk. AY. Hossfeld. Consul. 
 
 Trieste. September 14- 1904. 
 
 VIEXN'A. 
 
 Replying to circular dated August I, " Promotion of trade inter- 
 ests," I beg to express my concurrence in the proposition to bring the 
 diplomatic service into closer and more active cooperation with the 
 consular service. Consular officers, more particularly in capital 
 cities, where the presence of diplomatic representatives places con- 
 suls in the background, are handicapped in their efforts to obtain 
 information from official sources. It is extremely difficult "to secure 
 good results from applications for information when they pass 
 through the hands of the diplomatic representative. This is doubt- 
 less due to the lack of personal agency in presenting such requests. 
 as by the present method the requests are probably merely trans- 
 mitted without any further attention being bestowed upon them. 
 In order that adequate and prompt replies be given to inquiries of 
 this nature, care should be taken that they be placed before the 
 proper officials, and it would be well also to discuss the subjects 
 personally. It would be most advantageous if the consular officials 
 could themselves be enabled to meet the government officials and 
 were introduced at the different departments for this purpose. If 
 this is not possible, such cooperation by the diplomatic representa- 
 tives as will insure proper consideration of applications for informa- 
 tion is most desirable. This appears to be the one point by which 
 
PROMOTION OF TRADE INTERESTS. 27 
 
 a great improvement could be brought about in the present system 
 of collecting information. 
 
 W. A. Eublee, Consul-General, 
 
 Vienna. September 14, 1904- 
 
 BELGIUM. 
 
 Report from the Legation. 
 
 American Legation, 
 Brussels, September 5, 1904. 
 
 In reply to circular of July 29, 1904, on the subject of the " Pro- 
 motion of trade interests," I have the honor to inform the Department 
 that the system of collecting and transmitting data relating to trade 
 and industrial conditions by the Belgian diplomatic and consular 
 representatives abroad is as follows: 
 
 The principal consular officers (consuls of career) make reports 
 from time to time on local trade conditions, especially in regard to 
 possible markets for Belgian products. The chiefs of the diplomatic 
 missions make reports on the general trade and industrial conditions 
 of the country and transmit to the home Government commercial and 
 industrial data of an official nature. The material for these reports 
 is obtained from official information furnished by the Government, 
 but more particularly from data collected from official and other 
 sources by the secretaries of the mission, who have, on account of 
 their diplomatic rank, access to the special departments of the Gov- 
 ernment, which are denied to the consular officers. But in addition 
 to official data, the secretaries of legations, who have had years of 
 experience in the diplomatic service, who possess a thorough knowl- 
 edge of the language and customs of the country, and who have 
 generally established personal and friendly relations with individuals 
 holding positions of importance in the official, commercial, and 
 industrial world, are thus in a position to obtain much valuable 
 material for such reports, which, under other conditions, would be 
 unattainable. 
 
 As far as I can learn, the diplomatic and consular services of 
 Belgium work independently in this regard, the latter devoting its 
 energies more especially to local trade conditions and favorable 
 markets. My experience proves that much of the official information 
 furnished by foreign governments through the usual diplomatic 
 channels is often incomplete. As an example, I may refer to official 
 information which the Belgian Government furnished for a number 
 of years to this legation, at the request of the Department, on the 
 subject of sugar bounties granted in this country. The information 
 was correct as far as it went, but incomplete. The material for my 
 report to the Department on this subject, dated December 28, 1899, 
 Avas obtained from official sources and publications, from conversa- 
 tions with individuals having a special knowledge of the subject, 
 engineers, members of commercial bodies, and exporters, as well as 
 from personal visits to the sugar factories. 
 
 The question of having commercial attaches at the Belgian lega- 
 tions abroad was broached a few years ago, and even brought before 
 
28 PROMOTION OF TRADE INTERESTS. 
 
 the Parliament, but was withdrawn for reasons of economy. The 
 minister for foreign affairs informs me that it is again being agitated. 
 
 I have seen much valuable work accomplished by the British com- 
 mercial attaches abroad, having diplomatic rank, possessing a thor- 
 ough knowledge of the country and its language, and who are sta- 
 tioned for a number of years in one country, thus having the means 
 at their disposal of obtaining special, unusual, and valuable informa- 
 tion. In my opinion, if Congress would provide for such commercial 
 attaches abroad, the efficiency of the diplomatic service would be en- 
 hanced. 
 
 If this plan should not meet the views of Congress, or in case it 
 should be considered unnecessary to have a commercial attache at this 
 legation, much valuable data and information of a commercial or 
 industrial nature might be collected by an active young attorney, 
 provided he were to receive a fixed annual compensation. The 
 British legation in Brussels has such a man who collects for the lega- 
 tion much valuable information and data on these subjects not obtain- 
 able through the usual diplomatic channels. 
 
 Referring to the three interrogatories included in the circular in 
 question, I have the honor to say that in my opinion it would be en- 
 tirely practicable for me to transmit to the consular officers in this 
 country instructions from the Department containing particular 
 inquiries, noting any suggestions which may occur to me, and adding 
 any official data on the subject in question which the consular officer 
 might not be able to obtain, except through diplomatic channels. I 
 would also be very glad to receive the answers to such special inquiries 
 from the consular officers, when the Department so instructs, and to 
 attach any amendments or additions thereto for the further informa- 
 tion and consideration of the Department. 
 
 There is no cooperation between the diplomatic and consular 
 officers of Belgium similar to the above plan, as proposed by the De- 
 partment. They work independently of each other ; but, as I have 
 before stated, the more important consular officers of Belgium, consuls 
 of career, who are obliged, before appointment, to have passed the 
 special commercial examination of universities and to have received 
 the degree lately instituted of " commercial engineer," make very com- 
 plete reports on industrial and commercial conditions^in their respec- 
 tive districts, for which work they are especially fitted by their edu- 
 cation and the special examinations which they are required to pass. 
 
 If Congress were to provide for a legal adviser or counsel of the 
 legation, it would be all the additional assistance I should require to 
 carry out the programme of cooperation, as described under question 1. 
 
 Lawrence Townsend, Minister. 
 
 Opinions of Consular Officers. 
 
 ANTWERP. 
 
 Returning from leave of absence, I find Department circular letter 
 " Promotion of trade interests," under date of August 4, which Vice- 
 Consul-General Haine, in charge, deferred answering, referring the 
 same to me. 
 
 
PROMOTION OF TRADE INTERESTS. 29 
 
 In reply, I have to state that the change suggested meets my most 
 hearty approval, and that closer relations for the purpose designated, 
 and along the lines proposed, between the diplomatic and consular 
 representatives abroad, could not, in my judgment, prove otherwise 
 than advantageous to the manufacturing and trade interests of our 
 country The plan is practical and on business lines, and I hope to 
 see it inaugurated, although I am free to say that, during my eight 
 years' experience in the consular service in Italy, England, and Bel- 
 gium, requests for information desired from ambassadors or ministers 
 have been cheerfully and promptly complied with. 
 
 Church Howe, Consul- General. 
 Antwerp, December 9. 190. %. 
 
 BRUSSELS. 
 
 In reply to Department circular requesting the expression of views 
 upon the plan for the coordination and improvement of existing fa- 
 cilities for the collection of commercial intelligence and the promo- 
 tion of American trade interests abroad, I have the honor to say that 
 I am of the opinion that if the cooperation of our diplomatic and 
 consular officers could be carried out in the kindly spirit of mutual 
 assistance, it would be a valuable aid in promoting the object of the 
 circular in question and would undoubtedly assist in our future com- 
 mercial expansion. Consular officers are frequently handicapped in 
 transmitting full reports to the Department through difficulty in ob- 
 taining some desired official data, due to existing conditions. Per- 
 sonally, I have been generally fortunate, through the kind courtesy of 
 officials with whom I enjoy friendly relations, in procuring informa- 
 tion which the Department has instructed me to secure. 
 
 I am inclined to believe that much of the usefulness desired by tne 
 Department by the proposed cooperation would be destroyed if dip- 
 lomatic agents are instructed to have revision and annotations made 
 of consuls' reports transmitted through them, as the revision and an- 
 notations would probably be done by a clerk attached to the embassy 
 or legation who in all likelihood had collected similar data, and might, 
 to the prejudice of the absolute authenticity of information contained 
 in the consul's report, revise same if it conflicted with data presented 
 by the clerk. 
 
 George W. Eoosevelt, Consul. 
 
 Brussels, August 2h~^ 1904. 
 
 GHENT. 
 
 Pursuant to the Department's circular " Promotion of trade inter- 
 ests," I have the honor to state that, in my opinion, the assistance and 
 cooperation of the American diplomatic officers with the American 
 consular officers in Belgium would not improve or facilitate the col- 
 lection of commercial intelligence for the promotion of American 
 trade interests in this consular district. 
 
 The courtesy of Belgian officials in this district has always been 
 cordially extended, as has that also of the different departments of 
 
30 PROMOTION OF TRADE INTERESTS. 
 
 the central government at Brussels, whenever I have had occasion to 
 request official information at first hand. This information has been 
 disappointing, however, in two respects, namely, the delay in trans- 
 mission and meagerness in detail. 
 
 It is impossible to obtain commercial reports that are entirely sat- 
 isfactory. The chief obstacle that prohibits the free procurement of 
 complete and reliable information on the industries and commerce of 
 this district is the reticence of the parties who are directly engaged in 
 them. The general feeling is that such information is a part of the 
 good will of the business or stock in trade, to be in every respect zeal- 
 ously guarded lest a competitor profit thereby. This has defeated 
 several attempts to make reliable reports, the information obtained 
 proving unreliable on further inquiry. 
 
 As to a commercial attache. I do not believe he would be in any 
 better position than this consulate with respect to procuring reliable 
 commercial and industrial information in this district. If. how- 
 ever, on the other hand, this Government should establish a com- 
 mercial information bureau, in each province, with a competent of- 
 ficer in charge whose investigations and researches would" be available 
 to its local members and to the members of the consular body, accu- 
 rate information on the conduct of industries and the commercial de- 
 mands of the district could be obtained. Otherwise, present condi- 
 tions do not permit consular officers in this district to learn the facts 
 to make complete and accurate reports. Certain detailed informa- 
 tion on some subjects is obtainable indirectly. The best method to be 
 employed is for American salesmen to compete on the ground with 
 the salesmen of other countries, who thus sell the goods, wares, and 
 merchandise of their respective countries. 
 
 Frank K. Mo week. Consul. 
 
 Ghent, September 5, 190 !±. 
 
 LIEGE. 
 
 In reply to Department's circular ;i Promotion of trade interests,*' 
 I beg to say that, in my judgment, diplomatic officers, enjoying 
 privileges in advance of consular officers which offer ready facilities 
 for obtaining authoritative commercial and industrial information 
 direct from the ministerial departments of the Government, have a 
 valuable capacity for furnishing statistics and other useful data. 
 
 In Belgium, the provinces in which the various American consu- 
 lates are located have departments fashioned after the ministerial 
 departments of the parent Government. These departments make 
 annual detailed reports covering the various heads within their juris- 
 diction, which reports are forwarded to the Government offices at 
 Brussels, as well as to the consuls throughout the Kingdom. These 
 provincial reports are later classified and the aggregate computation 
 is published, and the consuls are supplied with a copy. 
 
 It will therefore be seen that unless the report is a special gov- 
 ernmental one, the nature of which I can not determine, and con- 
 cerning which no special publication has been made, the consular 
 officer Is as thoroughly equipped with statistical information as the 
 diplomatic officer can possibly be. The publication of bare statistics 
 without a relative explanation is oftentimes not susceptible of a clear 
 
PROMOTION OF TRADE INTERESTS. 31 
 
 interpretation. The powers of the diplomatic officer could furnish 
 the aggregate result of the provincial reports, beyond which, with- 
 out a supplemental 7 consular report touching the articles manu- 
 factured or produced in the various consular districts, such report 
 would lack the necessary detail to give it value. A consular officer, 
 being abroad in a commercial capacity, is surrounded with opportu- 
 nities that a diplomatic officer does not enjoy. He has his valuations 
 and the methods of reaching the same as presented in the consular 
 invoices passing through his hands to guide him. He enjoys an in- 
 timacy by reason thereof with the shipper, who supplies him with in- 
 formation touching the details of the manufacture of articles in 
 which he is interested, as well as market conditions, both existent 
 and in expectancy. Consuls are on the ground and in daily con- 
 versation with some dealers or shippers and can better note a demand 
 for American goods than can the diplomatic officer who never has oc- 
 casion to visit the consular districts. 
 
 With the commercial and industrial publications issued by the Gov- 
 ernment at hand, consular officers are as well equipped, from a statis- 
 tical standpoint, as is the diplomatic officer, with the further advan- 
 tages as noted above. The diplomatic officer would be compelled to 
 call upon the consular officers for a detailed report of the special pro- 
 ductions of their districts, and apart from the modification of certain 
 statements that might be harshly construed by the Government to 
 which he is accredited, he could do no more than supply to the report 
 the information compiled by the ministerial departments, which in- 
 formation is already in the hands of the consular officers. 
 
 I believe, therefore, that consular officers are more capable of com- 
 piling reports on commercial and industrial matters than diplomatic 
 officers, for the reasons above mentioned. This, of course, applies to 
 Belgium as well as to articles produced specially in the consular dis- 
 tricts therein. 
 
 As diplomatic officers would have to depend upon the consuls for 
 +heir matter, it would appear that the present system of forwarding 
 direct to the Department would save time. The diplomatic officer 
 could be requested to supplement anything required from Government 
 sources. 
 
 James C. McXally, Consul. 
 
 Liege, September 3 : 190 J^. 
 
 DENMARK. 
 
 Report from the Legation. 
 
 American Legation, 
 Copenhagen, October 13, 190 Jf. 
 Replying to the Department's circular of July 29 last, I would say 
 that, during my incumbency of the office, this legation has considered 
 it to be one of its legitimate functions to assist in promoting our trade 
 interests by independent efforts as well as by cooperation with the 
 American consul in this country. Care has been taken to avoid 
 friction that might result from undue usurpation of duties that 
 would naturally devolve upon consular officers, and no -jiffioulty has 
 been experienced on account of such lirjloniatic work &« you suggest. 
 
32 PROMOTION OF TRADE INTERESTS. 
 
 Whenever the consul has found it necessary to apply for information 
 from the Danish Government through the legation, the request has 
 received prompt and courteous attention. It is to be remembered in 
 this connection that we have but one consulate in the Kingdom, 
 namely, at Copenhagen. This, of course, facilitates such cooperation 
 as that indicated in your circular and makes some of the difficulties 
 mentioned inapplicable to Denmark. 
 
 With reference to the specific points on which you desire my 
 opinion, I find nothing under Xo. 1 that would prove impracticable 
 or embarrassing if intrusted to this office. 
 
 Xo. 2. Denmark has no such cooperation as that outlined, nor has 
 it any industrial or commercial attaches. 
 
 It occurs to me that the United States Government would profit 
 and our consular service would be improved by the appointment of 
 commercial and industrial experts, to be distributed throughout the 
 world at such centers as would be considered most advantageous, hav- 
 ing regard to trade zones and similarity of commercial activities and 
 interests. The work assigned to them would be of such- nature that 
 diplomatic representatives could not well undertake it; and though 
 consular officers may have general qualifications for discovering and 
 developing markets for American goods, they have not, as a rule, the 
 special training or knowledge of an expert. Such an auxiliary as I 
 have in mind would be of great value to our consular body as an 
 educator, a counselor, and an inspiring guide. By covering a com- 
 paratively large field, over which he would be required to travel fre- 
 quently, he would become the disseminator of knowledge among the 
 officials in his territory and be able to contribute^ much toward bring- 
 ing about better system and articulation in their work. Personal 
 contact and exchange of ideas is of inestimable value in all work per- 
 taining to commerce, and a medium such as indicated would, in my 
 opinion, do much to perfect our consular service. The value of the 
 independent work that would be carried on by such experts is obvious. 
 Their appointment and tenure of office should be made as independ- 
 ent of political exigencies and party changes as could be devised. 
 
 To question 3. I have to say that no additional assistance would be 
 needed to enable me to carry into effect the programme described 
 under question 1. 
 
 Laurits S. Swexson, Minister. 
 
 Opinions of the Consul. 
 
 COPENHAGEN. 
 
 Replying to Department circular " Promotion of trade interests," 
 I have to state that I have read the Department instruction of July 
 29, 1904, addressed to the diplomatic officers of the United States, 
 and I most cordially indorse the plan therein outlined. 
 
 I may add that the general propositions laid down in said circular 
 of July 29 are in perfect harmony with views I have frequently 
 expressed to the American diplomatic representatives at this post in 
 discussions of the subject of the promotion of our trade interests 
 abroad. There is no doubt that the social as well as the official pres- 
 
PROMOTION OF TRADE INTERESTS. 33 
 
 tige enjoyed by diplomats places them in a position to obtain more 
 reliable and more valuable information on many subjects of interest 
 to our commercial people than consuls can obtain. This is especially 
 true where the information sought is of an official or semiofficial 
 nature. 
 
 There is no excuse for the minister and the consul at a foreign capi- 
 tal not cooperating enthusiastically in the plan outlined or in any 
 plan which has for its aim the enhancing of our commercial power. 
 
 Many of our legations could be converted into positive forces of 
 incalculable value to our commercial interests were some such proposi- 
 tion as is outlined in the circular of July 29 carried into effect. 
 
 Raymond R. Frazier, Consul. 
 
 Copenhagen, August #0, WOJf. 
 
 FRANCE. 
 
 Report from Ambassador Porter. 
 
 American Embassy, 
 Paris, October 6, 1904. 
 
 In reply to the circular of July 29 last, requesting information re- 
 garding the capabilities of the diplomatic service for the promotion 
 of our trade interests in France, etc., I have the honor to submit the 
 following considerations : 
 
 There is no doubt that diplomatic officers should realize the fact 
 that this is essentially a commercial age, and that a representative 
 abroad can not serve his country better than by directing his efforts 
 toward improving and enlarging its trade relations. With this 
 object in view, there has been in this country a close and effective 
 cooperation between this embassy and the consulate, and any com- 
 mercial information the latter desires to obtain from the French 
 Government is transmitted cheerfully and promptly through the 
 diplomatic channel of the embassy, although it at times greatly 
 taxes the limited force available for such work. This method of 
 cooperation has been found very satisfactory. 
 
 My observation teaches me that the consular service has visibly 
 improved from year to year, and if our best and most experienced 
 consuls be retained in office, these good results will, I am sure, con- 
 tinue to make themselves felt. 
 
 I shall answer the questions in the circular in their numerical 
 order. 
 
 Question 1.- — It would be practicable for this embassy to transmit 
 to consular officers in France instructions from the Department of 
 State making particular inquiries ; to send them such suggestions as 
 might be of service ; to receive their answers and to forward them to 
 Washington with such annotations as might be dictated by diplo- 
 matic or other considerations. This would, of course, create some 
 delay in the transmission. One objection to such a course would be 
 that it might suppress somewhat the ardor of consuls who always 
 like to communicate directly with the Department of State, and 
 might lessen their initiative by causing them to feel that their re- 
 H. Doc. 245, 58-3 3 
 
34 PROMOTION OF TRADE INTERESTS. 
 
 ports, after being prepared with great care, were liable to comment. 
 alteration, and criticism by another branch of the foreign service. 
 The other objection is the increased expense that would be entailed, 
 as set forth hereinafter. 
 
 Question 2. — As above stated, there is at all times the most cordial 
 cooperation between the diplomatic and consular services in all 
 commercial matters. The consuls secure ail the information they 
 can from outside sources, and when they wish any facts that can be 
 better obtained from the French Government, the embassy, acting in 
 its diplomatic capacity, makes the necessary requests, which are 
 nearly always cheerfully complied with by the Government. 
 
 The French Government has no commercial attaches. One or two 
 special ones have been at times appointed at Peking and at St. 
 Petersburg, for instance, but not regularly attached to the diplo- 
 matic stall' of the embassy. 
 
 As to whether commercial attaches to an embassy would be useful 
 in our service, in my judgment the usefulness would depend almost 
 entirely upon the character of the appointees and the facilities placed 
 in their hands. If the attache were a man of practical commercial 
 experience, possessing a knowledge of the language of the country, 
 and were allowed ample clerical assistance to aid in collecting infor- 
 mation, collating, translating, annotating, and forwarding reports. 
 etc., he could undoubtedly be of great assistance, as his diplomatic 
 quality would enable him to communicate with certain officials, and 
 with proper tact, he could cultivate intimate relations with subordi- 
 nates charged with certain branches of the business who could render 
 him useful aid. The valuable reports of military and naval officers 
 assigned to embassies are examples of the important information and 
 suggestions which can be obtained through attaches possessed of the 
 requisite technical knowledge and devoting their labors to a particular 
 subject. 
 
 To command the serA T ices of men competent for such places, there 
 would have to be ample compensation, and it would be necessary to 
 establish a well-equipped bureau. All this would form quite an 
 item of expense. 
 
 Question 3. — If the embassy should undertake the work embraced 
 in this question, there would be required one additional secretary, 
 selected for his familiarity with commercial affairs, and having a 
 thorough knowledge of the French language; a stenographer and 
 typewriter capable of writing the two languages, and one or two addi- 
 tional office rooms. The expense, therefore, would be about as great 
 as if the position of commercial attache were created, and my judg- 
 ment is that, if a change be made in the method now pursued, it would 
 be better to assign commercial attaches. 
 
 Horace Porter. 
 
 Opinions of Consul-general at Paris. 
 
 Xo memorandum on the subject of Department's circular of July 
 29 last, addressed to the diplomatic officers of the United States, on 
 the subject of " Promotion of trade interests." would be complete 
 were I not to acknowledge, with sincere respect, the unvarying cour- 
 tesy, attention, immediate cooperation, and conscientious execution 
 
PROMOTION OF TRADE INTERESTS. 35 
 
 of all requests which this consulate has received at the hands of Gen. 
 Horace Porter, American ambassador at Paris, and the secretaries of 
 that embassy. If at any time, there has been any delay in obtaining 
 information through the embassy it has been no fault of the ambassa- 
 dor or his able and courteous secretaries. The requests, however, have 
 been confined to the fewest possible number, and the embassy has been 
 spared, so far as this consulate is concerned, all unnecessary trouble. 
 In another part of this dispatch, reference is made directly to the 
 embassy in connection with obtaining special information. It gives 
 me pleasure, however, to testify to the very pleasant relations which 
 exist between this consulate-general and the American embassy in 
 Paris. 
 
 Inquiries received at this consulate-general are of all descriptions, 
 but those referring to business can be classified into four different 
 groups. They come from citizens desirous of selling their products 
 in France (sellers) ; from citizens desirous of purchasing French 
 goods (purchasers) ; then we have American manufacturers, etc., 
 Avho are anxious to learn certain processes of manufacture, etc. ; to 
 these I shall refer as " manufacturer." Other citizens will ask for 
 certain statistics, laws, and regulations (either governmental or 
 municipal) ; also certain facts concerning corporations, etc. 
 
 When a seller applies to this office for special information, the 
 best source from which to seek material for reply is, of course, the 
 trade interested in the article he wishes to sell. Facts desired will 
 cover the approximate business, maximum and minimum; what 
 goods are likely to compete with our American product; whether 
 said goods are of home manufacture or imported — if homemade, 
 whether the first material is imported or obtained in the country of 
 production ; price of first material, comparative quality, if imported, 
 cost of transportation, duty, and other expenses. Then it will be 
 calculated what chances our article would have against the similar 
 article already in the market. The question of packing and how 
 payments are made are also interesting points. 
 
 There is no need of diplomatic help in the case of a seller, and 
 the consul, on account of his daily contact with wholesale and retail 
 dealers, business agents, agents of sellers and of purchasers, is in 
 the best possible position to get at facts. 
 
 In the case of purchasers, the task is much easier yet. To discover 
 the best house, obtain catalogues, prices, conditions, etc., is somewhat 
 easy. Diplomatic channels are entirely useless, again, in this case. 
 
 As to manufacturers who wish to obtain inside information, among 
 the numerous business men surrounding a consul he can always pick 
 out several who are placed to get the facts. The consul has many 
 occasions to be- of service to those who help him, and in the course 
 of time the advantage is reciprocal. Diplomatic intervention in 
 this case would be valueless. A government would not give, and 
 could not consistently give, any information likely to injure the 
 business of any of its citizens. Should the diplomatic channel be 
 used, the demand would have to be made in writing, and this demand 
 would then go from bureau to bureau, studied all the way quite 
 closely, and 90 per cent of the answers would be so incomplete that 
 the} 7 would be of no practical service. But governments know 
 nothing of the private affairs of manufacturers. The trades here 
 are protected by their Chambres Syndicales. These are very active — 
 
36 PROMOTION OF TEADE INTERESTS. 
 
 at their meetings all matters interesting their trade are discussed — 
 and there is no doubt that the creation of a commercial attache to 
 an embassy would be noticed and criticised, with the result that 
 the alarm would be given from Paris to all parts of France. The 
 infancy and adolescence of our country are things of the past. In 
 its full-grown commercial maturity, it can and does serve as a 
 model to its European parent stem. Many articles which used to 
 be exported to America are now manufactured there with prospects 
 of being imported here. France has lost a great portion of her 
 trade, and the French manufacturers and dealers are jealously 
 guarding their secrets from foreigners, but more particularly in 
 the case of America and Germany. 
 
 When inquiries are made touching statistics, laws, regulations, 
 etc., it may happen (although very rarely) that answers will have 
 to be obtained through the embassy. It is rare, because most of the 
 statistics, all laws, and most regulations are printed and published. 
 It is only when other means have failed that, as a last resort, the 
 good offices of the embassy are requisitioned. 
 
 This consulate-general corresponds freely and directly with the 
 Direction Generale des Douanes (the custom-house officials in Paris), 
 all chambers of commerced all Chambres Syndicates, all prefects, 
 mayors, directors of institutions, all departmental and municipal 
 offices, and sometimes with chiefs of bureaux of various ministers. 
 
 It must be remarked that, in most cases, information which is 
 important for us to obtain is equally important for the local industry 
 interested to keep from us, and it is always by going quietly about it 
 that something can be obtained. 
 
 The Department very judiciously says : 
 
 The consular service has made a general and very marked advance in its 
 utility in this direction in recent years. So much so, in fact, as to have become 
 the object of imitation and emulation on the part of the most prominent indus- 
 trial nations, etc. 
 
 This is very fair to the consular service, and it would not be sur- 
 prising at all to find among our imitators some of the nations who 
 have a " commercial attache." 
 
 In fact, a commercial attache would be held in suspicion, and for 
 the same reason that a Government would not furnish any vitally 
 valuable information on military or naval affairs to a military or 
 naval attache, they would keep carefully away from a recognized 
 " commercial attache " what they might realize to be secret con- 
 cerning national industry. 
 
 The foregoing remarks concern inquiries from American citizens 
 desiring reports on special subjects. A consul is the best American 
 authority to make a report on any matter touching the trade or 
 industry of his district, and it is not clear how a commercial attache 
 stationed, for instance, at Paris, could undertake to correct reports 
 from St. Etienne on ribbons, from Calais on laces, from Eoubaix on 
 woolens, from Grenoble on gloves, or Lyons on silks. 
 
 The Department continues: 
 
 You will appreciate the fact that, to prevent friction with the consular corps 
 and to preserve the spirit of initiative, which is one of its most valuable fea- 
 tures, etc. 
 
 It is obvious that, to feel that his report goes direct to the Depart- 
 ment, encourages a consul to put forth his best efforts, while the idea 
 
PROMOTION OF TRADE INTERESTS. 37 
 
 that his report must be forwarded to Paris to an official who, out of 
 honest zeal or simply personal pride in justifying his official existence, 
 may cut out portions of the reports or change them to suit his indi- 
 vidual ideas, is not a system calculated to stimulate his spirit of 
 initiative. 
 
 From my daily experience in collecting information for the Depart- 
 ment, and replying verbally and by letter to the numerous applicants 
 for information, I have never had but one view of the matter under 
 report. In my relations with business men of various nationalities, 
 I have heard nothing but unqualified praise of the consular system 
 of the United States. It is, indeed, regarded as a model auxiliary to 
 trade interests. So thoroughly is the position of an American consul 
 understood in France in this respect that questions as to trade matters 
 rarely if ever excite suspicion in the mind of Frenchmen of business. 
 No fear of political motive is ever evinced, and confidence, I am glad 
 to say, is always shown in the Government I have the honor to repre- 
 sent as a consul-general by the business community of Frenchmen 
 who are in my consular district. Were any changes in the s}^stem 
 as at present in operation to be made, I should, as a consul and as an 
 American, be greatly afraid that the change would not be for the 
 better. On the contrary, it seems clear that the change more acutely 
 necessary to benefit the promotion of trade interests is in the direc- 
 tion of enlarging the clerical staff of the American consulates abroad, 
 and more particularly in the large towns, where trade interests are 
 centered and where the clerical staff of the consulates is notoriously 
 inadequate. 
 
 This is the plan for the coordination and improvement of exist- 
 ing facilities for the collection of commercial intelligence and the 
 promotion of American trade interests abroad, which I have the 
 honor to respectfully recommend and urge : 
 
 If, however, a commercial attache to the embassy be created, then 
 it seems to me that such an officer would fulfill his mission to the best 
 advantage as a separate official, working independently, directing his 
 own staff, and responsible alone for the satisfactory performance of 
 the system without reference to the present consular system. 
 
 If such an officer were to be attached to the consular service, instead 
 of being connected with the diplomatic corps, the change would, in 
 my opinion, be less abrupt, less likely to excite suspicion, and have 
 the merit, among other things, of seeming to follow in principle, at 
 least, the American plan of a more effective consular trade informa- 
 tion bureau, rather than be an experimental imitation of the system 
 of another power, how T ever friendly and sympathetic that power 
 may be. 
 
 John K. Gowdy, Consul-General. 
 
 Paris, September 23, 1904. 
 
 Opinions of other Consular Officers. 
 
 BORDEAUX. 
 
 I have the honor to acknowledge the receipt of your circular, " Pro- 
 motion of trade interests," asking my opinion as to the advisability 
 of making the consular service an appendage of the diplomatic corps. 
 
38 PROMOTION OF TRADE INTERESTS. 
 
 The consular service of the United States is. in my opinion, already 
 the most overworked and poorly paid of any branch of our civil 
 service. Aside from the necessary supervision of the State Depart- 
 ment, it is subject to the behests of the Treasury Department, the 
 Agricultural Department, and the Department of Commerce and 
 Labor. 
 
 The work of this consulate, for instance, has been more than 
 doubled by the action of the Agricultural Department under the 
 pure-food law, without an increase of clerical force. It was about 
 all we could stagger under before, and this additional labor has 
 necessitated great neglect of the regular work of the office. Every 
 increase in the number of Departments which have the right to com- 
 mand the services of the consul of necessity greatly increases his 
 labors. The union of the consular and diplomatic services would 
 give the consul in every commercial country two or three new 
 superintendents. ■ At present, the consul has some power of self- 
 protection, not being required to undertake to answer inquiries which 
 would interfere with the regular work of his office. Thus when the 
 consul at Bordeaux was asked to report in horsepower units the im- 
 proved and unimproved water power of all the streams in this con- 
 sular district, embracing the myriad rivers and rivulets flowing north- 
 ward from the Pyrenees. I felt quite justified in replying that, unless 
 given a scientific equipment equal to that required for the Xica- 
 raguan survey, a year's time, and some millions to defray the ex- 
 pense. I could not undertake the task. There are thousands of other 
 inquiries not so all embracing as the one mentioned above, perhaps, 
 but of a nature to require the time of one clerk to gather the proper 
 data for replying thereto. 
 
 It should not be forgotten that the success of our consular service 
 is mainly due to the individual initiative of our American consular 
 officers, not to any system of clerical control. That it is infinitely 
 superior to scientifically elaborated systems of machine-made officials 
 nobody pretends to deny, and the chief reason of this superiority is 
 the individual independence and initiative o| the officers comprising 
 our consular force. 
 
 I recognize the temptation which confronts everyone connected 
 with the administration of an official organization to reduce its parts 
 to interdependent regularity, but the consular service is exceptional in 
 its character, and it forever must be dependent for its success on its 
 unrelated units. The conditions under which it acts are not under 
 the control of our Government. Consuls have no authority to en- 
 force any demands they may make in the name of their Government. 
 They must rely for success upon their individual power to induce 
 the subjects of other governments to cooperate with them. Such 
 work can not be systematized and plotted in advance any more than 
 can the labors of a judge or lawyer. If the American consul is re- 
 duced to the position of a mere clerk, the efficiency of our consular 
 service will, in my opinion, be greatly reduced. Xothing needs 
 revision more than this service, but it can not be done through imita- 
 tion of foreign services, which, under infinitely more favorable con- 
 ditions, have resulted in less efficiency. 
 
 In France, at least (I do not speak of other countries, but believe 
 the same to be true throughout Europe, except Russia and Turkey), 
 there is another reason why commercial inquiries should not be con- 
 
PROMOTION OF TRADE INTERESTS. 39 
 
 ducted through Government channels, which any connection with the 
 embassy would entail. In France there is a universal apprehension 
 that Government inquiries may result in increased taxation, which 
 makes it easier for a consul to obtain specific commercial information 
 on his personal responsibility than for the French Government to do 
 so. The reason is plain. The French merchant or manufacturer has 
 no fear of increased taxation from the consul's inquiry. 
 
 From these and other not less patent considerations, I am clearly of 
 the opinion that the attachment of the consular to the diplomatic serv- 
 ice of the United States would result in the gravest injury to Ameri- 
 can commercial interests. 
 
 Albion W. Tourgee, Consul. 
 
 Bordeaux, November 2. 190 Jp. 
 
 CALAIS. 
 
 In reply to Department's circular, tC Promotion of trade interests," 
 I beg to submit the following : 
 
 After six and one-half years' experience at this consulate I am en- 
 abled to say that I have never had any difficulty in obtaining any 
 information that I sought in compliance with a request from the 
 Department. However, questions might be put that would necessi- 
 tate the assistance of the embassy, but for the present I can only say 
 that no such situation has arisen. I know of no information that 
 might be sought in this consular district Avhere even the assistance of 
 the embassy would be of value, as, for instance, manufacturers have 
 their secrets in fabrication that no force can make them yield up. 
 When I have applied for statistical information, it has always been 
 graciously furnished. 
 
 In writing this report I am aware of the fact that other conditions 
 may exist in other consulates, but I can only report as to this one. 
 
 This consulate is one which has a large export of machine-made lace 
 to America, but has little or none in the way of imports from America, 
 and I think that an American consul at this port who is ambitious to 
 promote trade interests in the way of imports from America will find 
 little gratification for his ambition. 
 
 James B. Milner, Consul. 
 
 Calais., October 1%, 1904. 
 
 GRENOBLE. 
 
 In reply to circular, " Promotion of trade interests," I beg to say 
 that, to this consulate, the proposed action of bringing the diplomatic 
 and consular services into closer relationship in common effort to 
 gather commercial statistics and further the expansion of American 
 trade, seems to be both important and opportune. 
 
 The constant increase of our trade in the world's markets, the car- 
 rying of our surplus products into all open fields, the spreading of 
 new methods and new appliances in betterment of the world's condi- 
 tion, call for continuous and persistent efforts in every direction and 
 in the best possible ways. To further this end and to accomplish 
 even more than is being done at present, it would seem to be eminently 
 
40 PROMOTION OF TRADE INTERESTS. 
 
 practicable that the Government utilize all the resources at its com- 
 mand through the diplomatic as well as the consular service. 
 
 This consulate stands ready to comply with any instructions and to 
 follow up to the best of its ability any suggestions that may come to 
 it from the American embassy in Paris, thus working together for the 
 common end. 
 
 For the most part, the French officials and business houses of the 
 three departments comprised in this consular district have been cour- 
 teously disposed to furnish us such information and statistics as we 
 have from time to time sought of them, the only exception being in 
 the case, two years since, of the prefect of the Department of the 
 Upper Savoy, who declined giving information as to dairy machinery, 
 etc., on the ground that it might interfere with their own special 
 industry. A personal interview with this official, whom I had not 
 met, might have resulted otherwise. 
 
 C. P. H. Nason, Consul, 
 
 Grenoble, October <26, 190 J^. 
 
 HAVRE. 
 
 The cooperation of the American diplomatic and consular services 
 in the promotion of our trade interests in foreign markets would un- 
 doubtedly increase the efficiency of the machinery now in use by 
 which our manufacturers and exporters are kept informed of the 
 business conditions of other countries. 
 
 If there were a diplomatic officer attached to our most important 
 embassies and legations whose duties were confined to commercial 
 matters, he not only would be of great assistance to our consular 
 officers in the preparation of their reports by obtaining quickly full 
 and up-to-date official statistical data at the fountain head, but he 
 would also be in a favorable position to gather commercial and indus- 
 trial information of vital interest to our manufacturers and exporters. 
 
 In France, the official publications, with the exception, perhaps, of 
 those relating to the operations of the custom-house, generally contain 
 statistics one or two years old. When a consular officer is in need of 
 late data or of official information not published, he must, under the 
 present conditions, avail himself of the services of the embassy at 
 Paris, which are always cheerfully and readily given, but owing to 
 the delays which arise in the Government bureaus, a long time must 
 elapse before a repty is received. A commercial attache, however, 
 who had established friendly relations with the French bureau offi- 
 cials in a personal visit could not only procure the information de- 
 sired quickly, but it would be more exhaustive than if it were written 
 in an official communication. 
 
 Paris may be said to be the center of the French economic world, 
 for in the capital city most of the industrial and commercial establish- 
 ments of the country have either their head offices or are represented 
 there by agents. Therefore, as remarked above, an American com- 
 mercial attache would have the facilities for getting valuable infor- 
 mation or at least suggestive hints, which could be investigated either 
 by himself or by the consular officers in whose districts the manufac- 
 turers or principal houses are located. In Paris, also, a commercial 
 attache would have access not only to the most complete public libra- 
 
 
PROMOTION OF TRADE INTERESTS. 41 
 
 ries in France, but also to those of commercial, industrial, and scien- 
 tific institutes like the Musee Social, the American Chamber of Com- 
 merce, etc., and to those of the principal trade and industrial 
 syndicates. 
 
 In the event of the Department deciding to appoint commercial 
 attaches, I would suggest, in order that their work be effective, that 
 they be given the title of secretary — second, third, or fourth, as the case 
 might be. This would be almost a sine qua non whenever they were 
 obliged to apply for information for statistics to any government 
 official, ministry, or department. 
 
 The attache or secretary should be a man of good address and pos- 
 sessed of savoir-faire, without which but little can be accomplished 
 in Europe. He should be capable of speaking fluently, and of corre- 
 sponding correctly in, the language of the county where he is sta- 
 tioned, and his salary should be large enough to raise him above the 
 status of a simple emplo} 7 ee. 
 
 If instructions from the Department of State to prepare reports 
 upon any particular matter were transmitted through an embassy 
 having a commercial attache, this officer, being familiar with the 
 commercial, maritime, and industrial interests of the country in 
 which he resides, would know best the sources whence to obtain the 
 information desired by the Department, so that the Department's 
 instructions would be sent to the consular officers in whose districts 
 the matter could be the most thoroughly investigated. 
 
 The transmission of requests for reports through the embassies or 
 legations would not tend to weaken the spirit of initiative, as reports 
 asked for, as well as those which may be made by the consular officers 
 without special instructions, could be transmitted and printed over 
 each individual consul's name or signature as now. 
 
 If by any means the work which is at present being performed by 
 our consular corps, looking toward the preservation of the commercial 
 and industrial welfare of the American people, could be improved, I 
 would recommend that at least a trial be made. 
 
 A. M. Thackara, Consul. 
 
 Havre, September i, 190 If.. 
 
 LA ROCHELLE. 
 
 I have the honor to acknowledge the receipt of the circular, Pro- 
 motion of Trade Interests. Answering the questions from a con- 
 sular point of view, and especially as those answers might apply to 
 my consular district, I most respectfully suggest as follows : 
 
 1. For general information concerning France, diplomatic officers 
 are in good position to obtain special figures, facts, etc., but it seems 
 to me that the consul-general at Paris, who is necessarily in close 
 touch with the great business interests in the capital, is much more 
 advantageously placed to suggest to consular officers or to obtain 
 special or general information. Without desiring at all to flatter our 
 consul-general at Paris, Mr. Gowdy, judging from the respect and 
 kindly disposition toward him of French officials, any information 
 would be as promptly accorded to him as to a diplomatic officer. 
 Apart from this, however, there is more or less a tendency in France 
 
42 PROMOTION OF TRADE INTERESTS. 
 
 to consider the American or any other consul as more than a simple 
 business agent of his country, this being clue, perhaps, to the fact 
 that the functions of a French consul have no definite dividing line 
 from those of a diplomatic officer. 
 
 From another point of view, it would seem that, outside of the 
 consul-general, reports of matters that pertain very generally to com- 
 mercial conditions may be very difficult to substantiate, while to the 
 contrary, reports on matters dealing directly with a particular consu- 
 lar district could be made more intelligently and more correctly by a 
 consul on the field. During my service, I have endeavored to limit 
 my reports exclusively to matters which concern my consular dis- 
 trict, for had I wished to generalize or occupy myself with special 
 matters in other districts, there would be 300 reports a year to make. 
 
 2. This question as a whole I am not capable of , answering intel- 
 ligently, and consequently, I make no comment except on the last 
 question. 
 
 While it might be of advantage in some countries to have a com- 
 mercial or industrial attache, whose duties would keep him at the 
 capital and in the embassy or legation, I do not see how it would be 
 of any advantage in France unless such an attache, who could be 
 connected with as much success with the consulate-general as with 
 the embassy, should have the largest possible liberty, with means of 
 traveling, visiting industrial centers and various ports. In fact, 
 the attache should have a special mission if he is to exist, and he 
 might supplement very efficiently the work of the consuls in supply- 
 ing them with figures, facts, or suggestions for their reports. 
 
 One of the great drawbacks to consular efforts along this line is 
 the expense of traveling, for which no provision is made in our serv- 
 ice. Should each consul be permitted, at the expense of the Gov- 
 ernment, to visit the trade centers of his district and make reports on 
 the conditions existing, he being personally known already to the 
 exporters and importers of his district, much good could be accom- 
 plished. In such an event the consul-general, who is in the very 
 center of commercial activity, would be in a position to suggest 
 greater detail or exactitude on the part of any or all reports concern- 
 ing any particular matter which would pass under his eye. 
 
 George H. Jackson, Consul. 
 
 La Rochelle, September 6, 190 ^ 
 
 LIMOGES. 
 
 I have the honor to acknowledge the receipt of circular of August 
 4 and its inclosure. 
 
 I would respectfully state that, after an experience of sixteen 
 years in the consular service, I have found that the most satisfactory 
 methods of promoting closer commercial relations between American 
 exporters and foreign countries are for the consular officers to keep 
 themselves in the closest touch with the business interests in their 
 particular districts. 
 
 It would be exceedingly difficult for an ambassador to obtain such 
 commercial information as the business man of the twentieth century 
 requires. He would be forced to depend upon reports, statistics, and 
 
 
PROMOTION OF TRADE INTERESTS. 43 
 
 data gathered by the country to which he is accredited, and often- 
 times these documents are not officially printed and put into circula- 
 tion until several years after the material to make them has been 
 collected. 
 
 It is certainly invaluable to a consular officer to have the kindly 
 assistance of his ambassador in obtaining data from the ministries 
 of the countries in which they are both stationed. My own ex- 
 perience has been that such information is given with pleasure when- 
 ever desired ; in fact, the cooperation of the embassies and consulates 
 has always been willingly given; whenever I have had occasion to 
 ask for any information from any of them our relations have been 
 very cordial. 
 
 The condition of the crops, new industrial enterprises, the state of 
 the markets, as well as the sources of supply and demand, and the 
 news of what is going on, and the prospects of trade, can be obtained 
 by the Government officer in the locality ; the man on the spot should 
 be able to judge what is desired by the country he represents, and 
 the public press, trade journals, commercial and industrial news will 
 afford him immediate and accurate matter for reports on all subjects 
 interesting his compatriots. 
 
 The ambassadors could be of great assistance in pointing out the 
 effects of laws and changes made in or by commercial treaties, which 
 are always enacted at the capital of the country where he has his. 
 residence. 
 
 The best assistance and aid that can be given American consuls 
 toward promoting* and improving the trade relations between Amer- 
 ica and foreign lands would be ample supplies of foreign commercial 
 and industrial trade newspapers of all kinds, with the necessary 
 facilities to collate and forward facts and data that will interest 
 their countrymen. 
 
 Walter T. Griffin, Commercial Agent. 
 
 Limoges, August 24, 190Jf. 
 
 LYONS. 
 
 I have received the circular, " Promotion of trade interests," and 
 in response to the request for my opinions on the matters discussed 
 therein, I have to say : 
 
 I can see no limitation upon the usefulness of the consular service 
 from lack of diplomatic status or difficulty in obtaining official infor- 
 mation at first hand. There are no directly ministerial officers in 
 Lyons, but the officers of the National Government, as well as local 
 officials and all manufacturers and merchants, have received me 
 readily whenever I have had reason to call on them in the discharge 
 of my official duties. The requests I have from time to time ad- 
 dressed to them for information have always been cheerfully com- 
 plied with. 
 
 Our consular service seems to me now to be well qualified to collect 
 and to report to the Government any and all information demanded 
 of a commercial or industrial character. 
 
 In response to the matters spoken of in Section I of the circular, 
 I would suggest : 
 
44 PROMOTION OF TRADE INTERESTS. 
 
 I can see no advantage in having snch dispatches as are sent to con- 
 suls for trade statistics or for other information delayed in their pas- 
 sage by stopping them at the embassy, unless there be there a com- 
 mercial attache who would be especially charged with the duties of 
 passing upon such dispatches. Such an officer, stationed in the capi- 
 tal city, would soon acquire a large fund of information concerning 
 the commerce and industry of the country which could not be pos- 
 sessed by the embassy, as now constituted, or by any single consul. 
 Xor could the consuls scattered over the country obtain such general 
 knowledge of the commercial situation, as a whole, as an officer 
 located in the capital giving his entire time to the duties of his posi- 
 tion. Such officer might also, with sufficient clerical help, assume the 
 task of revising the consular reports sent to the Department of State, 
 coordinating them and communicating with consuls, and asking sup- 
 plementary information such as would be suggested to him from 
 perusing all the reports. After this. I think the original reports, as 
 furnished by the consuls, should be forwarded to the Government, 
 and that the connection between the consular service and the Depart- 
 ment of State should remain unchanged. I suggested, four years 
 ago. and have since repeated several times, the advisability of having 
 a commercial attache of our country at the American embass}^ in 
 Paris. My reasons for this suggestion were that, in nine cases out of 
 ten. when I apply to a business man for information about his busi- 
 "ness. I have been informed that he represents some one in Paris. 
 When I have endeavored to introduce some manufacture sent me by 
 an American. I have been told that I must apply to Paris. This is 
 applicable to almost every branch of industry. The principal busi- 
 ness office is in Paris, and retailers here receive their supplies from 
 that city or are direct agents for some Paris house. In Paris, also, 
 are located agents for the great German and English houses, and it is 
 there that a wide-awake commercial attache would have an oppor- 
 tunity of learning and meeting the business methods of foreign coun- 
 tries. 
 
 With hardly an exception, the great nations of the Avorld have mili- 
 tary attaches at their foreign embassies. It seems to me that it would 
 be of infinitely more service and substantial benefit to the country if 
 a commercial attache were substituted for this military adjunct, which 
 really belongs to a former generation rather than to the present. 
 Frequent congresses are being held all over Europe for the considera- 
 tion of matters of commercial and industrial importance which a 
 commercial attache would attend, and where he would be received 
 with honor, and could, without doubt, obtain information of great 
 use to the business interests of our common country. 
 
 I should think that one commercial attache, stationed at Paris, 
 could look after the interests of France. Switzerland, and Belgium. 
 
 Johx C. CYtvert. Consul. 
 
 Lyons. September J. 190 J^. 
 
 31AKSELLLE. 
 
 I have read with attention the Department's circular of July 29, 
 addressed to the diplomatic officers of the United States, and in 
 reply to your request for my opinion thereupon, have to express my 
 
PROMOTION OF TRADE INTERESTS. 45 
 
 approval of the purpose contemplated, although differing from the 
 tentative suggestions as to ways and means. Briefly stated, I would 
 reform the consular service and increase its effectiveness from within 
 rather than from without. The facilities ,now controlled by con- 
 sular officers for the collection of commercial information may be 
 made to include all those controlled by diplomatic officers b}^ simply 
 laying down rules governing the relations and reciprocal obligations 
 of both bodies. As a matter of fact, the diplomatic officers are 
 generally most obliging in matters of this kind without any rules. 
 
 The natural agents for executing the plan proposed by the Depart- 
 ment are the consuls-general, whose present authority over the con- 
 suls under them is merely nominal. The appointment of commercial 
 attaches outside the consular service and exercising a degree of 
 authority over the consular body would duplicate an existing mech- 
 anism for furthering trade interests and very probably lead to 
 friction. It is hardly probable that diplomatic officers could per- 
 sonally review and recast consular reports submitted to them, and 
 the delegation of these duties to their secretaries would be open to 
 more serious objections than those raised against naming commercial 
 attaches. 
 
 Consular officers are custodians of papers and invoices covering 
 every pound of merchandise exported to the United States; they not 
 only see the general trend of events, but are in direct contact with 
 many of the details. This is a great advantage to them in carrying 
 on any investigation, and one which no special officer, however able, 
 would enjoy. Consuls are familiar with their work and require 
 only additional authority and clerical aid in order to take up with 
 enthusiasm any new measures which the Department may desire to 
 inaugurate. 
 
 It is presumable that the discretion of consuls-general as to mat- 
 ters likely to embarrass diplomatic officers Avould be at least as great 
 as that of any special agent. In any case, it would be a simple 
 process for such officers to lay before ambassadors and ministers a 
 weekly list of topics under investigation, and to submit results for 
 special review in all delicate matters. 
 
 If various foreign governments have created a class of commer- 
 cial attaches, it is because their consular organizations are unlike 
 that of the United States. I have read many comments in regard 
 to the work of these attaches, and little of it has been favorable. 
 They are so few in number, and cover such a vast field in each case, 
 that their reports are of little practical value. Their studies- of 
 industrial conditions are more or less instructive as trade literature, 
 but generally reach the public long after the occurrence of the events 
 describecl. The work they accomplish may be left safely to the 
 technical journalists. The rapid increase in the direct correspond- 
 ence between American business men and their consuls abroad goes 
 to show that our business interests want to feel that they have an 
 ally in each large community abroad from whom they can procure 
 reliable and conclusive facts in regard to specific matters. 
 
 The Department has expressed itself with conviction in regard to 
 the spirit of initiative now prevailing in the consular corps. If this 
 spirit exists it is due largely to the freedom of restraint enjoyed by 
 consular officers in their correspondence with the Department. 
 Against this initiative is to be set a good deal of duplicate reporting, 
 
46 PROMOTION OF TRADE INTERESTS. 
 
 occasional looseness of statement, and something of a disposition to 
 report the merely interesting rather than the important. If reports 
 as at present prepared are to be filed with the Department, accom- 
 panied by notes and amendments proposed by a supervising officer 
 abroad, then the Department will either have twice as much matter 
 to read and edit as at present, or else the foreign supervision will 
 degenerate into an empty form. I am inclined to suggest clothing 
 the foreign supervising officer with a considerable amount of real 
 authority to harmonize and complete reports, trusting to his tact and 
 intelligence to keep alive the activity and alertness of the consuls 
 under him, while at the same time securing those advantages which 
 the Department seeks. 
 
 Robert P. Skinner, Consul-General. 
 
 Marseille, September 1, 190 1^. 
 
 NANTES. 
 
 I have the honor to acknowledge receipt of your circular communi- 
 cation of July 29, addressed to the diplomatic officers of the United 
 States relative to the " promotion of trade interests." You instruct 
 me to transmit to the Department an early expression of my views 
 on this subject, and I have, therefore, the honor to report that, during 
 a long and active experience in the consular service in Switzerland, 
 Spain, and France, I have never, at any time, had the least difficulty 
 in securing any commercial or statistical information that was avail- 
 able in either of the countries mentioned, and I have never, at any 
 time, found the lack of a consul's diplomatic status a hindrance in 
 securing such information. Moreover, I have never, at any time, 
 found it necessary to call upon our ministers or ambassadors to aid 
 me in securing such information, though I have no doubt if I had 
 done so the desired assistance would have been at once cheerfully and 
 effectively accorded. * 
 
 In the circular communication of July 29 you observe that the 
 spirit of initiative is one of the most valuable features of the work of 
 the American consular corps. Nothing could be truer than this. 
 It is the strong individuality of our consular reports that has served 
 to make them interesting and valuable. Our consuls have not only 
 been permitted but encouraged to present their own ideas in their 
 own way; they have felt that they were appreciated at the Depart- 
 ment of State, and the fact that they have thus been permitted to 
 communicate directly with the Department has had at all times a 
 stimulating effect. If, therefore, the Department wishes to -preserve 
 the spirit of initiative and individuality in consular work, I am not 
 sure that this would be accomplished if the consuls were required to 
 submit their work to our diplomatic agents with the knowledge that 
 these officers would edit and annotate their reports, and perhaps even 
 refer them to others for revision and elimination. 
 
 In so far as nry own experience goes, I think our present system of 
 consular work is at once practical and effective. Of course, if there 
 are countries Avhere consuls are unable, through their lack of diplo- 
 matic status, to secure desired statistics and other commercial infor- 
 mation, it seems to me that our diplomatic representatives in those 
 
* PROMOTION OF TRADE INTERESTS. 47 
 
 countries would not hesitate to aid them in such instances, particu- 
 larly if instructed to do so by the Department of State. My own 
 belief is that the consul accomplishes his most interesting and valu- 
 able work through personal observation. By looking carefully about 
 him, by reading the commercial papers at home and abroad, and by 
 otherwise personally looking out for business opportunities, he gets 
 information and ideas of practical value which he likes to transmit 
 directly to the Department of State, with the idea of getting full 
 credit for his work. 
 
 I have also given some thought to the question of so-called " com- 
 mercial attaches ' ? in certain countries, but I do not see how any such 
 officer would be of particular assistance to the consular service in 
 France, Spain, and Switzerland, the only countries in which I have 
 had any experience. 
 
 As a' matter of fact, since you have instructed me to express my 
 opinion in the premises, I believe the commercial interests of the 
 country will be best and most effectively served when intrusted to an 
 experienced consular corps, working under the direct instruction of 
 the Department of State. When there is necessity for new commer- 
 cial treaties or for the revision of old treaties, then, it seems to me, 
 the diplomatic agents should be instructed to consult principal con- 
 sular officers, but ordinarily — I repeat that— in so far as commercial 
 reports are concerned, I believe the consular corps will do better work 
 when acting independently under direct instructions from the De- 
 partment. 
 
 Benj. H. Bjdgely, Consul. 
 
 Nantes, August 23, 190 ^ 
 
 NICE. 
 
 With reference to the promotion of trade interests, my experience 
 has been that, during the past few years, the exigency of our mer- 
 chants and manufacturers in making inquiries with the view of ex- 
 tending their trade has vastly increased, and in many cases — in fact, 
 in most cases — the inquiries are such that a satisfactory and complete 
 statement in reply would constitute a special report. The same state 
 of things must of necessity exist in all the principal consulates. 
 
 I do not think that a consular officer speaking the language of the 
 country to which he is accredited and maintaining the proper rela- 
 tions with the different authorities need encounter much difficulty in 
 obtaining official information. I think that difficulty is more likely 
 to arise with regard to details and particulars touching commerce and 
 trade of a nonofficial character. But even here, I think that patience 
 and tact produce a favorable result. 
 
 The extent, however, to which inquiries on commerce and trade are 
 now being made, the present status of our consular service with re- 
 gard to its personnel, and the rapid development of our export trade 
 (and it is, in my opinion, still in its infancy) would certainly seem to 
 indicate that the addition of commercial attaches to our embassies 
 and legations, charged with the task of preparing special reports on 
 commerce and trade of a complete and exhaustive character, would 
 result in very great benefit to our commercial expansion. It is a mat- 
 ter universally^ conceded that never has any consular service any- 
 
48 PROMOTION OF TRADE INTERESTS. 
 
 where afforded such valuable aid to the development of the export 
 trade as the American service during the past few years, but this de- 
 partment of consular work can reach its maximum of coordination 
 and thorough usefulness only by means of such an adjunct as would 
 be afforded by a properly constituted commercial department, en- 
 abled to give all its time and energy to this special branch. 
 
 As to the consular officers of other countries accredited here, I may 
 say that the demands made upon them in the way of special trade re- 
 ports are practically nil. It may be added that it would also appear 
 to be the general opinion that such work is not, strictly speaking, 
 " consular," and the replies to trade inquiries are, I think, confined to 
 the mailing of reports of chambers of commerce or to the recommen- 
 dation to apply to firms for the information required. 
 
 The establishment of commercial departments at embassies and 
 legations would, I am convinced, open up a prodigious amount of 
 labor. Our manufacturers are far removed from foreign markets, 
 and have little or no knowledge as to which markets or which goods 
 they have to compete with. Their inquiries are such that a matter 
 has to be investigated, so to speak, from A to Z, whereas our competi- 
 tors in trade, nearer by, already have the knowledge afforded by their 
 proximity, by time, and experience. This department of the consular 
 service, useful as it may be at present, will of necessity always be 
 desultory in its character, depending entirely upon the competency, 
 ability, and activity of this or that individual. 
 
 Attilio Piatti, 
 Vice-Consul in Charge. 
 
 Nice, August 00, 190^ 
 
 RHKI3IS. 
 
 In conformity with instructions in circular dated August 4, request- 
 ing an expression of views relative j:o circular dated July 29, to 
 American diplomatic officers in regard to devising a plan for the 
 improvement of existing facilities for the collection of commercial 
 intelligence, I have the honor to observe that, in my opinion, any plan 
 that would enable consular officers to get information at first hands 
 would be excellent in itself; and any method that would systematize 
 the work to be done and prevent, for example, two consular officers 
 from doing exactly the same thing and reporting the same informa- 
 tion, would result in a great saving of labor and be conducive to the 
 accomplishment of much greater results. 
 
 If the plan indicated b}^ the Department circular can be perfected 
 and put in execution, it would seem to be an excellent arrangement. 
 If a central bureau of commercial information could be established at 
 the embassy or legation of the United States at the capital of the 
 foreign country, working in harmony with the consulates therein, 
 under the supervision of the diplomatic officer, and with a competent 
 head who could give all his time and energy to the collection of trade 
 intelligence, and who would have the advantage, by means of his 
 connection with the embassy or legation, of getting information at 
 first hands, it would be certainly a great improvement over the pres- 
 ent manner of isolated action. 
 
PROMOTION OF TRADE INTERESTS. 49 
 
 The advantages of a central bureau would be many. Its chief 
 would be furnished with all the official statistics of the foreign gov- 
 ernment as they appear, and his office would soon be so Avell supplied 
 with these and with other intelligence that he would know just where 
 to apply for any particular information desired. Many reforms 
 would doubtless suggest themselves from time to time. For example, 
 much time is taken at all consulates in replying to circular letters 
 from trade journals, business firms, and individuals soliciting lists 
 of names and addresses of merchants and dealers in different lines of 
 trade. If a small business directory should be prepared under the 
 direction of the central bureau from information obtained from the 
 various consulates, containing the names of principal merchants and 
 dealers in different lines in the cities and large towns of the country, 
 and if these directories, which could be revised from time to time, 
 should be sold at cost or given away to applicants for such informa- 
 tion, a great deal of time and labor Avould be saved. 
 
 But the greatest advantage would be, no doubt, in having the 
 central bureau of commercial statistics and information at the 
 capital of the foreign country, with a competent chief in charge, who 
 would be at liberty to give all of his time to the work, and who, by 
 virtue of his official connection, would have much greater facility in 
 obtaining accurate and complete information than the consular serv- 
 ice unaided. 
 
 William A. Prickitt, Consul. 
 
 Rheims, August 25, 190Jf. 
 
 KOUBAIX. 
 
 I have the honor to acknowledge the receipt of Department cir- 
 culars concerning the promotion of trade interests elated, respec- 
 tively, July 29 and August 4, 1904, 
 
 I have great hesitancy in expressing views which may be regarded 
 by the Department as erroneous. The opinions advanced, however, 
 are based upon my estimate of the temper of the community over 
 which I have had consular jurisdiction for a number of years. 
 
 It would seem to me that the active and open cooperation of the 
 diplomatic branch of our service with our consular officers in their 
 work of protecting and advancing commercial interests, work which 
 by the force of circumstances must be largely done in detail to be 
 effective, would rob the diplomat of a certain degree of his prestige 
 and curtail his influence in the wider field of diplomacy. 
 
 The effective aid now rendered to American commerce by our con- 
 sular officers is looked upon in France with increasing apprehension. 
 Information of a nature to build up our commerce is more jealously 
 guarded than when competition was less active, and it is probable 
 that the establishment of such relations between the diplomatic and 
 consular branches of our service, as outlined in Department circular 
 of July 29, would defeat the object which it is intended to serve. 
 
 At present, information refused to a consul is frequently accorded 
 to a diplomatic representative as a courtesy. Should American 
 diplomatic officers become known as instigators and directors of 
 commercial investigation, it is to be feared that they would soon be 
 
 H. Doc. 245, 58-3 4 
 
50 PROMOTION OF TRADE INTERESTS. 
 
 met with the same courteous assurance of aid and the same non- 
 fulfillment of promises that so frequently prove a stumbling block to 
 our consuls. 
 
 The inability of the consul in France to furnish full and correct 
 statistics arises not from the fact that access to statistics is denied 
 him, but from the fact that statisics, at least in this district, are not 
 correct. This fact was ably set forth in the French Chamber a num- 
 ber of years ago by Mr. Eugene Motte, present mayor of Boubaix, a 
 deputy in the French Chamber, and one of the most influential manu- 
 facturers in this district. 
 
 It is possible that statistical bureaus charged with the revision of 
 consular statistical reports might be created under the supervision of 
 the diplomatic corps with advantage to the service. 
 
 TV. P. Atwell. Consul. 
 JRoubaix, August 22, 190 % 
 
 ROUEN. 
 
 With reference to your circular of August 4 last, in regard to the 
 capabilities of the diplomatic service for the promotion of our trade 
 interests, I have the honor to submit my response, which, I regret, is 
 retarded on account of the confusion occasioned by the removal of 
 this consulate to new quarters. 
 
 My opinion, whatever it may be worth, as the result of the four 
 years of my consular experience and the study of American trade in- 
 terests, is decidedly in favor of such an innovation, which, far from 
 destroying the spirit of initiative of the consular corps, would only 
 add to its determination and zeal — at least that part of the corps 
 which has the advancement of American trade at heart. It would 
 gladly welcome any innovation that would help along the good cause 
 in which consuls are engaged, not thinking of individual honor so 
 much as American and American-trade honor. 
 
 There is no doubt about it, or at least I have found it so in my ex- 
 perience, that a consul, often through fear of a breach of etiquette, 
 commits sins of omission for which, unhappily, American trade suf- 
 fers, and it is possible that there are consuls who, in their zeal to 
 carry out to the full every departmental instruction, commit sins of 
 commission. For such sins, American trade also suffers. Both these 
 evils of omission and commission could be remedied by the status and 
 broad knowledge, respectively, of the diplomatic service. 
 
 It is easy to see that, for successful competition, the best merchant 
 leaves no stone unturned, and the rule applies to nations, especially at 
 the present time, when " the extension of commerce, in its many forms, 
 with a multitude of subsidiary interests, has admittedly become one 
 of the chief aims of world diplomacy." 
 
 Certainly, the greatest improvement, outside of the establishment 
 of the Department of Commerce and Labor; in the advancement of 
 American trade was the beginning of the daily publication of the 
 consular reports in January, 1898 ; but if the great capabilities of the 
 diplomatic service could be brought into cooperation with existing 
 facilities for the collection of commercial intelligence, there would 
 be an improvement in accuracy and an extension of information 
 
PROMOTION OF TRADE INTERESTS. 51 
 
 which would, in the development of our commerce, equal, if not sur- 
 pass, the elimination of delay accomplished when the daily reports 
 came into existence. 
 
 There may be diplomatic officers who would object to such an in- 
 novation as affecting the dignity of the service. I met a consul of a 
 foreign power not long since who remarked that he considered him- 
 self above tradespeople, and that certainly his office should not be a 
 servant of them. If a foreign consul thought that, would an Amer- 
 ican diplomatist think so? The most excellent reports published 
 from some of them would seem to answer negatively, and to give as- 
 surance that they would be glad to aid their country in the great 
 trade struggle. Surely, a diplomatic officer is as much an ambas- 
 sador of trade as an ambassador of any other interest and should be 
 the guardian of his country's commercial concerns as well as of its 
 other requirements. 
 
 Thornwell Haynes, Consul. 
 
 Eouen, September 20, WOIf. 
 
 ST. ETIENNE. 
 
 Pursuant to instructions contained in circular dated August 4. I 
 have the honor to submit the following memorandum on the subject: 
 
 The proposition to utilize the diplomatic service for the promotion 
 of trade interests will meet, without a doubt, the unanimous approval 
 of consular officers of experience. 
 
 That the diplomatic service, as at present constituted, can not un- 
 dertake to act as a commercial agency is also evident, and the plan 
 for establishing commercial attaches at the more important capitals 
 seems to be well conceived. 
 
 That such attache should be a part of the staff of the legation or 
 embassy rather than that of the consulate-general would seem advisa- 
 ble for the reason that, in the former case, the attache would have the 
 benefit of at least a quasi-diplomatic standing, by virtue of which 
 access to government departments and bureaus would be facilitated. 
 Such being the case, the commercial attache would not only be in a 
 position to consolidate, verify, and supplement a certain class of 
 consular reports, but, reciprocally, might easily be an invaluable aid 
 to consuls, preparing special reports, who frequently find themselves 
 in lack of pertinent information or statistics which are obtainable 
 only at the capital. This latter suggestion is especially applicable 
 to France, where there is but one adequate source of information, be 
 it general or particular, and that is Paris. The custom-house at St. 
 Etienne, for instance, can not give more than an approximate esti- 
 mate of the imports and exports of the St. Etienne district, seeing 
 that a large volume of the business passes through other custom- 
 houses. Much less can the business of the consular district be esti- 
 mated. 
 
 The consular invoice book shows approximately three-fourths of 
 the value of silk ribbons exported from St. Etienne to America ; the 
 rest (one-fourth) are invoiced at Paris, and the totals of this com- 
 merce can not be found elseAvhere than in the proper bureau of the 
 ministry of commerce at Paris, to which local consuls have no access 
 
52 PROMOTION OF TRADE INTERESTS. 
 
 except at great inconvenience and by special favor. Thus it may be 
 seen that, while a commercial attache would have important duties, 
 exclusively his own, to perform, and others in which he would be 
 materially aided by the consular service, he would at the same time 
 be able to render invaluable service to them in the way of increasing 
 the accuracy and completeness of reports pertaining to their local 
 districts. 
 
 While the headquarters of a commercial attache should be- with the 
 legation or embassy at the capital, he should by no means be prohib- 
 ited from extending his investigations to the limits of the diplomatic 
 jurisdiction, and in this work again the consular service would render 
 its assistance to their mutual benefit and the promotion of trade 
 interests. 
 
 There are other favorable comments Avhich might be made and 
 perhaps some objections; there may be even difficulty in securing 
 a satisfactory personnel for posts where the requirements are so 
 exacting, but in principle I can not too heartily indorse the " at- 
 tache " proposition, and I believe that, once the system is in working 
 order, the results will amply, justify the undertaking. 
 
 Hilary S. Brunot, Consul. 
 St. Etienne, August 30, 1904. 
 
 GERMANY. 
 
 Report from the Embassy. 
 
 Embassy of the United States, 
 
 Berlin, October 7, 1904. 
 
 I have the honor to acknowledge the receipt of your circular in- 
 struction of July 29 last, requesting me to prepare, for the information 
 of the Department, a memorandum upon the capabilities of the diplo- 
 matic service for the promotion of our*trade interests in Germany. 
 
 In reply, I have the honor to inform you that, as but few of the 
 inquiries now sent to consular officers have come under my notice, I 
 have only an incomplete knowledge of the sort of inquiries which would 
 be made from time to time by the Department. Nevertheless, T do 
 not believe that the staff of this embassy, on account both of its small 
 numbers and lack of technical commercial knowledge, would be capa- 
 ble, without additional assistance, of performing the programme 
 described under question 1 of your instruction. I have little doubt, 
 however, but that, if some proper technical person were attached to 
 this embassy, he could, in the manner indicated, greatly aid consular 
 officers in answering inquiries and add value to their reports upon 
 these inquiries when once made. 
 
 Undoubtedly, very much would depend upon the person chosen, who 
 would have a position of some difficulty. Commercial customs in 
 Germany, as well as the character of the German people, are, of 
 course, utterly different from such customs in the United States and 
 from the American character. Notwithstanding this, a commercial 
 attache's usefulness would be much lessened and his position made 
 exceedingly difficult if he was a naturalized German or of German 
 parentage. Reticence and formality in commercial as well as other 
 
PROMOTION OF TRADE INTERESTS. 53 
 
 matters are far greater in Germany than in the United States. A cer- 
 tain amount of suspicion often exists when foreigners, and especially 
 foreign governments, make inquiries of a commercial nature. I may 
 say that, owing to the enormous increase of American exports to Ger- 
 many, this is probably especially true in regard to Americans. A 
 commercial attache to this embassy would, therefore, need much tact, 
 coolness, and capacity for fair and unprejudiced judgment. I be- 
 lieve that, for such a commercial attache to have a maximum amount 
 of usefulness, - he should be a man of some practical business experi- 
 ence, as well as some scientific commercial training. At least, a fair 
 knowledge of German would be indispensable to him. 
 
 A man so qualified would have, in many ways, great advantages 
 over consular officers, since he would be able easily to get at all the 
 commercial publications of the German Government (a great many 
 of which can not be accessible to, at all events, most consular officers) , 
 and to get information from the central Government departments, 
 either by written communications from the embassy or directly by 
 conversation. The commercial society of the capital would afford 
 him another and a valuable means of acquiring information. The 
 governmental and diplomatic society in Berlin is strictly divided 
 from the commercial, and undoubtedly if he is to get the best results, 
 the commercial attache should associate as much as his time will 
 allow with the commercial society. Through such purely social in- 
 tercourse, he would be able often to get or to establish the means of 
 getting information impossible or difficult to procure in other ways. 
 I do not think, however, that a proper commercial attache would find 
 it at all impossible to fulfill the few really necessary social duties 
 incumbent upon him as a member of the corps diplomatique and also 
 to make a wide circle of useful social connections among the com- 
 mercial society. 
 
 I believe that, through such a position, a commercial attache would 
 have a great value, not only through technical knowledge, but through 
 his being able to take a broader and often a more correct view of 
 commercial affairs. Having such facilities for observation, I would 
 suggest that he should also, with the approval of the ambassador, be 
 allowed to initiate inquiries when he saw fit to do so. 
 
 According to your circular, the reports of consular officers are only 
 to be annotated or supplemented, their text being left intact. This 
 would, I consider, obviate one of the principal faults alleged against 
 the German commercial attaches, namely, that their reports, which 
 are entirely written by themselves, are often too technical and ab- 
 struse and more valuable to the student than to the merchant. 
 
 Finally, the services in a consultative capacity of a commercial 
 attache would often be valuable to the embassy in cases which fre- 
 quently arise where technical commercial knowledge is really re- 
 quired. 
 
 I do not think that the addition of a commercial attache, with such 
 functions as are specified in your instructions, would cause any em- 
 barrassment to the embassy in its relations with the German Govern- 
 ment. Of course, I assume that the commercial attache would, in all 
 he did, be entirely under the supervision and authority of the ambas- 
 sador, to whom entire discretion would be given even to defer taking 
 any action wherever he saw fit until after he was able to place his 
 reasons for this before the Department and obtain its decision. All 
 
54 PROMOTION OF TRADE INTERESTS. 
 
 the diplomatic missions at this capital have, as part of their regular 
 duties, the collection of commercial information to a greater or less 
 extent, and several of them have regular commercial attaches. These 
 attaches are allowed to correspond with the consuls of their country 
 and to receive reports from them, which they then utilize in prepar- 
 ing reports of their own. So far as I have been able to learn, no sys- 
 tem such as that proposed under question 1 of your instruction exists 
 in any mission in Berlin, but what is practically very much the same 
 thing, from this point of view, does take place as is above stated, 
 though perhaps to a lesser extent. 
 
 Regarding the information called for by question 2 of your instruc- 
 tion, I have the honor to inform jou that I have had a conversation 
 with one of the members of the imperial foreign office, from whom I 
 have learned the following facts : 
 
 There is no such cooperation between the diplomatic and consular 
 services of Germany as that outlined in question 1 of your instruc- 
 tion. 
 
 The German Government has no industrial attaches, but it has com- 
 mercial attaches and agricultural attaches. The former were first 
 instituted in 1893, when, on account of the Chicago Exposition, a 
 commercial attache was sent to Chicago, where he was attached to 
 the German consulate-general. Since then, at various times, other 
 commercial attaches have been appointed, so that at present there are 
 eight in all, attached, respectively, to the consulates at New York 
 (where he was moved from Chicago), Buenos Ayres, Valparaiso, 
 Sydney, Shanghai, Pretoria, Constantinople, and St. Petersburg. 
 Two more are contemplated, one in the United States and the other 
 in India. These attaches, being attached to consulates, have no 
 diplomatic status. In appointing them, it is the rule to avoid taking 
 men from any Government service, the idea being that they shall not 
 be " bureaucratic." Their choice rests entirely with the foreign office, 
 which sometimes consults with the imperial department of the inte- 
 rior, the commercial section of which is virtually an imperial depart- 
 ment of commerce. Either men who have especially devoted them- 
 selves to economic or commercial studies, secretaries of chambers of 
 commerce, or business men are chosen, without any especial examina- 
 tion. Unlike the members of the diplomatic and (professional) con- 
 sular services, they are not considered as belonging to a regular serv- 
 ice in which they will spend all their working years and then retire 
 with a pension. Commercial attaches are engaged by contract, made 
 with them individually by the foreign office and providing gener- 
 ally for three years' employment, at the end of which they are at 
 times reengaged for another three years and at times superseded by 
 other men. It is in some cases considered beneficial to have a new 
 man, who will perhaps be able to correct and supplement his prede- 
 cessor's reports. Commercial attaches, though attached to a particu- 
 lar consulate, can be transferred to any other consulate at any time. 
 
 For defraying the salaries and expenses of commercial attaches, 
 the Reichstag provides annually a lump sum, Avhich is placed at the 
 disposal of the foreign office and which is used for this purpose, but 
 entirely at its discretion as to choice, number, posts, etc., of commer- 
 cial attaches. In practice, however, it must be said that information 
 upon these subjects is usually furnished by the foreign office to the 
 budget committee of the Reichstag. 
 
PROMOTION OF TRADE INTERESTS. 55 
 
 The salaries of commercial attaches vary acording to their posts, 
 being 22.000 marks ($5,236) at New York, 19,000 marks ($4,522) at 
 Shanghai, 15,000 marks ($3,570) at Constantinople, 21,000 marks 
 ($4,998) at Buenos Ayres, 15,000 marks ($3,570) at St Petersburg, 
 18,000 marks ($4,284) at Valparaiso. 18,000 marks ($4,284) at Syd- 
 ney, and 20,000 marks ($4,760) at Pretoria. At some consulates, the 
 commercial attache is given an office in the consulate. He is fur- 
 nished with stationery, and is allowed to purchase small articles, as 
 books, etc., which may be necessary for his work, and for which he is 
 reimbursed upon furnishing vouchers at the end of each year or at 
 the end of his employment. He is further allowed a certain (vary- 
 ing) mileage when he travels in the course of his duties, and (in the 
 United States) $6 per day for living expenses when traveling. 
 
 The commercial attache's duties are to make reports to the foreign 
 office in regard to commercial matters, not merely in the district of 
 the consulate he is attached to, but in the whole country in which he is. 
 He is also expected to answer, so far as he can, the inquiries upon 
 commercial subjects of German corporations or individuals. Fur- 
 ther, he is obliged to keep a diary, in which a daily entry is made of 
 all his reports, letters, and other work. At the end of each year, this 
 is forwarded by him to the foreign office in order to show what he 
 has done. 
 
 The instructions to commercial attaches of the foreign office are 
 addressed simply to the consulate, the attache's name only being 
 mentioned in the inclosed dispatch. This is so that they shall be 
 opened and read first by the consul. The commercial attache should 
 also theoretically always submit his reports to the foreign office to 
 the consul, who is not allowed to change them, but he may accompany 
 them by a report of his own. Commercial attaches may correspond 
 with all consuls in the country or with the embassy or legation, and 
 these are all obliged to lend them their aid in so far as may be prac- 
 ticable. They have, however, nothing to do with the reports of 
 consuls (unless called upon for advice), who, if professional consuls, 
 report directly to the foreign office, and if only honorary consuls 
 report to the consul-general of their districts. 
 
 The reports to the foreign office of commercial attaches, except 
 such as are considered confidential, which are, in cases, communi- 
 cated to the chambers of commerce, are published, as well as all other 
 commercial information of the Government, in the publication en- 
 titled wi Deutsches Handels-Archiv," which appears at irregular in- 
 tervals. The more important reports are published sometimes in 
 abridged form in the smaller monthly Handels-Berichte. Other re- 
 ports are published in the Berichte uber Handel und Industrie, a 
 small publication, which appears irregularly, while short commer- 
 cial notes of more immediate importance, often furnished by commer- 
 cial attaches, are published in the weekly Nachrichten von Handel 
 und Industrie, which is modeled after our own Daily Consular Re- 
 ports. All of these publications are issued by the imperial depart- 
 ment of the interior, to which, after they have been read and used so 
 far as desirable by the foreign office, the} 7 are referred. 
 
 It may also be of interest to add some facts regarding the agricul- 
 tural attaches already mentioned. These are stationed at Copen- 
 hagen, St. Petersburg (where there are two), Bucharest, Chicago, 
 New York, London, and Sydney, and are all attached to consulates, 
 
56 PROMOTION OF TRADE INTERESTS. 
 
 except the one at Bucharest, who is attached to the legation. They 
 are appointed in the same manner and receive about the same salaries 
 as the commercial attaches. 
 
 The agricultural attache, however, is expected and has to show 
 that he has traveled at least three months in each year. For this he 
 is allowed an additional sum of 6,000 marks ($1,428). Usually, 
 scientific foresters or specialists in agricultural subjects are chosen 
 for agricultural attaches. For the rest, the same rules apply to them 
 as to commercial attaches. 
 
 H. Percival Dodge, Charge. 
 
 Opinions of Consuls- general. 
 
 BERLIN. 
 
 In compliance with that portion of Department circular ^of August 
 4, " Promotion of trade interests," which requests an expression of 
 the view of consular officers concerning the plan outlined in its cir- 
 cular of July 29 to the diplomatic officers of the United States, 
 whereby it is proposed to render the diplomatic service more active 
 in the promotion of American trade interests, I have to respectfully 
 report as follows : 
 
 While the plan proposed by the circular of July 29 would be 
 doubtless effective and valuable in many countries — for example, 
 Mexico, China, Japan, Brazil, and other South American nations — 
 where the consulates are less numerous and less fully equipped, and 
 where the traditions of diplomatic caste and usage are less rigidly 
 established, it is an open question whether such a system would be 
 effective in a country like Germany, where the line between diplo- 
 matic intercourse and everything relating to trade is sharply and 
 relentlessly drawn. Some years ago, the United States Government 
 sought to bridge this chasm by accrediting to several European 
 governments officers with the dual character of ministers resident 
 and consuls-general. The plan failed, for the reason that such 
 officials were not recognized as diplomatic, but simply as consular 
 officers. It was then declared impracticable to " mix diplomacy 
 and commercialism," even in the secondary capitals of Europe, 
 and the same would, in my opinion, happen again if embassies like 
 those at Berlin, Vienna, and St. Petersburg were to be invested with 
 the duties outlined in the pending proposition. 
 
 Leading European governments evade this dilemma by accrediting 
 to their embassies so-called " commercial attaches," who make long 
 academic reports on abstruse statistical and industrial topics, but 
 who, if the complaints of their own countrymen are to be believed, 
 manifest only a languid and condescending interest in everyday com- 
 mercial affairs, and render little or no practical service to real trade. 
 
 The question is, therefore, at what points such supplementary 
 assistance is needed in the service of the United States? Speaking 
 only for Germany, I venture to believe that the interests of American 
 export trade are already well and efficiently represented by the 
 consular service as at present constituted. For example, there are 
 published in the last monthly number (285, for June, 1904) of Con- 
 
PROMOTION OF TRADE INTERESTS. 57 
 
 sular Reports 97 reports on commercial, industrial, scientific, and 
 economic subjects from consular officers in Germany. These reports 
 are recognized here, as elsewhere, as being generally, in a high degree, 
 prompt, clear, practical, and useful to manufacturers, exporters, 
 and to the general public. They are copiously translated and repub- 
 lished in this country, and I have been frequently told by Germans 
 of high intelligence that they watch the United States consular 
 reports for original and valuable information about their own 
 country which they can not obtain elsewhere. It is respectfully 
 submitted that if the merchants and manufacturers of the United 
 States would utilize and work up the information, the suggestions, 
 and practical assistance now offered to them by the consular corps 
 in Germany this field of export trade would be fully and effectively 
 covered. 
 
 In the few instances where consular officers here need statistics and 
 other official information which can only be obtained through a dip- 
 lomatic channel, our embassy in Berlin has always been most prompt, 
 considerate, and obliging in giving the desired assistance, and in my 
 opinion, speaking only for Germany, this is its proper and most effect- 
 ive attitude and relation to the whole subject. To impose upon the 
 embassy the additional duty of revising and annotating consular re- 
 ports would, in my judgment, not only entail needless labor on the 
 part of the working force in that office and cause delays in transmis- 
 sion out of all proportion to the advantages which would be secured 
 by such censorship, but would chill and restrict the spirit of initiative 
 which is now one of the exceptional and most valuable attributes of 
 our consular corps and which ought to be by all proper means encour- 
 aged and maintained. There are certain subjects the treatment of 
 which requires statistics and other materials difficult of access to con- 
 sular officers without diplomatic status. Such topics should be as- 
 signed by the Department directly to embassies and legations instead 
 of to consulates, but in my opinion, no permanent advantage can re- 
 sult from an attempt to combine or mingle the functions of the two 
 classes of officials by further subordinating one service to the other. 
 
 No traditions are more rigidly conservative than those which gov- 
 ern diplomatic usage in a capital like Berlin, and there can be no 
 doubt that the standing of an American ambassador, both in respect 
 to his colleagues and the sovereign to whom he is accredited, would 
 be compromised and impaired by the knowledge that he has been for- 
 mally charged with the duty of making commercial propaganda for 
 the United States. 
 
 Frank H. Mason, Consul-General. 
 
 Berlin, August <B7, 190^. 
 
 COBUKG. 
 
 In reply to the circular of August 1. " Promotion of trade inter- 
 ests," requesting an expression of my views, I would respectfully 
 state that, although my residence and experience as a consular officer 
 in a large manufacturing and exporting or commercial country such 
 as German} 7 has been limited (my position as United States consul at 
 Dawson not ha vino- been in such a country), it has, nevertheless, been 
 
 
 long enough to bring to mv attention the difficulties experienced by 
 
58 PROMOTION OF TRADE INTERESTS. 
 
 consular officers from lack of diplomatic status, in obtaining official 
 or other information concerning trade matters at first hands. 
 
 This hindrance would, in my judgment, to a great extent be over- 
 come of the consular officer could have the assistance of the Amer- 
 ican legation or principal diplomatic officer in the country to which 
 he is accredited in obtaining the same. This aid might be extended 
 to such consular' official through the medium of a diplomatic repre- 
 sentative, to be known as a " commercial attache. 7 ' as referred to in your 
 circular. In foreign countries, such as Germany, official and social 
 position counts for a great deal and opens to a diplomatic officer many 
 avenues of information concerning official, trade, and other life of the 
 empire which to a consular official are closed. By reason of this the 
 latter official is placed at a great disadvantage and his sphere of influ- 
 ence is much curtailed. Friendly social relations of a public officer in 
 a foreign country with the public officials of the country to which he 
 is accredited generally bring such official directly or indirectly in 
 contact with the manufacturing and commercial life of the country, 
 and. comparatively speaking, make easy the task of obtaining valu- 
 able information concerning it. These relations a public foreign 
 official lacking a diplomatic standing finds it most difficult, if not at 
 times impossible, to bring about. 
 
 I am fully aware of the great strides the United States has made in 
 its export trade and of the fact that its consular service has rendered 
 valuable aid in bringing about the happy result which, as stated by 
 the circular, has led to its " imitation and emulation " by the more 
 prominent industrial nations; but the very fact that the consular 
 service has rendered such aid has caused the movements and inquiries 
 of its officials accredited to foreign industrial nations to be closely 
 watched by the public officials, manufacturers, and tradespeople of 
 foreign countries, resulting in jealousy on the part of such manufac- 
 turers and tradespeople toward our manufacturers at home and in the 
 closing of many avenues of information formerly accessible to consu- 
 lar officials. This difficulty could and would, in my judgment, to a 
 very great extent be obviated if part of the work now assigned to the 
 consular officials was delegated to the diplomatic service and per- 
 formed through the medium of a representative thereof, to be known 
 as a " commercial attache." clothed with powers similar to those dele- 
 gated to the confidential agents of the United States Treasury De- 
 partment stationed abroad. 
 
 I might state that my first experience here as a consular official, in 
 my efforts to procure information for an American manufacturer 
 concerning the manufacture of German automobiles, convinced me of 
 the necessity of our Government making some radical changes in the 
 maimer of enabling its consular officials to obtain information on 
 industrial subjects. My experience was found in an effort to obtain 
 from manufacturers of German automobiles trade circulars or pam- 
 phlets of their machines and goods, either by writing them directly 
 in my official capacity or as an individual, requesting copies of the 
 same, or through the medium of a person in the consulate and 
 through the letters of friends. The result of such effort was that all 
 of my requests as an official or as an individual met with no reply, 
 those of employees with a like result, while of those of friends but 
 few were complied with. The keen competition of our American 
 manufacturer has made the German manufacturer very suspicious of 
 
PROMOTION OF TRADE INTERESTS. 59 
 
 inquiries from Americans concerning industrial affairs; he recogniz- 
 ing the fact that they are his greatest trade competitors. 
 
 In conclusion, I would state that I am of the opinion that to per- 
 mit the diplomatic officer to rewrite a consular officer's report in case 
 it should be, in his judgment, erroneous, or to amend or suppress the 
 samej in whole or in part, would, as you indicate in your circular, 
 create friction with the consular service and destroy the spirit of 
 initiative. Such commercial attache should be at the disposal of the 
 consular officer, upon request by him to the principal diplomatic 
 officer, when such consular official is directed by the Department of 
 State to make a report upon a subject for which he needs such aid, 
 the report thus called for to be transmitted to the Department of 
 State through the principal diplomatic officer, subject only to his 
 revision, with annotations indicating errors of fact or judgment; all 
 eliminations of parts or portions thereof to be made by the Depart- 
 ment of State, and the annotations made by such diplomatic officer to 
 be merely for the guidance of said Department in its final disposition 
 of the report. 
 
 Hexry D. Saylok. Consul- General. 
 
 Coburo, August 26, 190 i. 
 
 FRANKFORT. 
 
 In reply to Department's circular instruction of the 4th instant, 
 transmitting copy of a circular addressed to American diplomatic 
 officers in regard to the promotion of trade interests and requesting 
 an expression of views on the subject, I have the honor to submit the 
 following : 
 
 In my opinion this plan for securing increased cooperation between 
 diplomatic and consular officers in the matter of collecting commer- 
 cial information for the benefit of American manufacturers and 
 exporters is both timely and practical. It is undoubtedly true that 
 very often the diplomatic representative alone has facilities for 
 obtaining information covering an entire country. Furthermore, it 
 is also true that when many consuls in one and the same country are 
 called upon to prepare individual reports on a given subject, such 
 reports must naturally often consist of very similar matter, the con- 
 densation of which in a systematic manner would certainly increase 
 the value to our exporters of the information thus laboriously gath- 
 ered by our consuls. 
 
 It therefore appears to me that when the Department deems it 
 advisable to call upon a number of consuls in the same country to pre- 
 pare separate reports covering their individual districts, the work 
 could be accomplished more methodically and the information com- 
 municated to our manufacturers and exporters in much more conven- 
 ient and intelligible form if it were condensed into a single report in 
 which repetitions were avoided, errors corrected, and the matter 
 arranged in a systematic and orderly way. The work of a compiler 
 of commercial information in an embassy could, moreover, be consid- 
 erably lightened and facilitated by requiring consuls to send their 
 reports to the supervising consul-general, in order that he might 
 have an opportunity to examine them carefully, call attention to mis- 
 takes, acid new matter for the purpose of making the information 
 
60 PROMOTION OF TRADE INTERESTS. 
 
 more complete, and then prepare a memorandum for the assistance of 
 the compiler in the embassy. Of course, for their encouragement, due 
 credit should be given to the various consuls contributing to such 
 reports. 
 
 Any plan for improving our facilities for gathering useful commer- 
 cial information and presenting it to our exporters in the best possi- 
 ble form may considerably increase the clerical work at some of our 
 diplomatic and consular offices, but the matter is one of such great 
 and urgent national importance that in my opinion it would be an 
 exceedingly good investment for the Department of Commerce and 
 Labor to incur the comparatively small expense thus necessitated. 
 
 I venture to suggest that, so far as Germany is concerned, our 
 export trade might be very much helped by stationing a commercial 
 attache in the embassy at Berlin, and by also stationing in the con- 
 sulates-general at Berlin and Frankfort commercial experts subor- 
 dinate to the commercial attache at Berlin. As the other consulates- 
 general in Germany have no supervisory duties, their reports could 
 be forwarded directly to the commercial attache in the embassy. 
 
 With a similar object in view, namely, the extension of Germany's 
 export trade, the German Government has found it profitable to sta- 
 tion commercial experts in certain German diplomatic and consular 
 offices where it is believed that they will be able to assist in the devel- 
 opment of new markets for German wares. The men selected for 
 these positions are patriotic German subjects and experienced busi- 
 ness men, who are intensely interested in the object for which they are 
 working. They are in close and constant touch with the ministry of 
 commerce and. through it, with every individual chamber of com- 
 merce in the German Empire and its colonies. It is their duty to 
 collect and forward to the ministry of commerce suggestive informa- 
 tion and samples. The ministry of commerce then submits this infor- 
 mation as it sees fit to the chambers of commerce at various industrial 
 centers. These commercial experts return to Germany periodically 
 in order to make interesting oral reports to the ministry of commerce, 
 and for the purpose of visiting, and thus coming into more intimate 
 touch with, individual chambers of commerce. They deliver ad- 
 dresses to such chambers of commerce and orally discuss the subject 
 of trade extension with the individual members, answering their ques- 
 tions and offering valuable suggestions. 
 
 It seems to me that this is a much more sensible and profitable plan 
 than to publish to the whole world in Consular Reports information 
 collected at the expense of the American Government which is meant 
 to be of use and value principally, if not exclusively, in connection 
 with the building up of our own export trade. 
 
 Is not the value of such information very much lessened for our 
 manufacturers and exporters by publication and indiscriminate dis- 
 tribution, which places it also freely and simultaneously at the dis- 
 position of their foreign rivals and competitors ? If we are working 
 intelligently for the extension of American export trade, it seems to 
 me that it would be wiser to copy the German plan described above, 
 and thus devote more exclusively to the interests of our own people 
 information which, if thus discreetly used, may not only help them 
 to compete more successfully, but may also afford them a direct 
 advantage over their foreign rivals. There are. of course, many 
 reports of general interest which can safely and without risk to the 
 
PROMOTION OF TRADE INTERESTS. 61 
 
 interests of our exporters be given to the press, either directly or 
 through Consular Reports, but I am of opinion that reports specially 
 called for, and many others giving hints in regard to trade oppor- 
 tunities and the requirements of foreign markets, might be made 
 much more useful in the extension of our foreign trade if the infor- 
 mation contained therein were quietly and confidentially given to 
 interested American manufacturers and exporters through our cham- 
 bers of commerce, in the German fashion. 
 
 George H. Murphy, Vice-C omul-General* 
 Frankfort, August 23, 1904. 
 
 HAMBURG. 
 
 I have the honor to acknowledge the receipt of the Department's 
 circular instruction of the 4th ultimo, transmitting a copy of a cir- 
 cular to the American diplomatic officers, dated July 29, 1904, desir- 
 ing the expression of my views in regard to a plan for the coordina- 
 tion and improvement of existing facilities for the collection of com- 
 mercial intelligence and the promotion of American trade interests 
 abroad. 
 
 In reply I may say that I think well of the plan in question, al- 
 though I am inclined to believe that a great deal of valuable informa- 
 tion can not be obtained by. applying to foreign authorities through 
 the diplomatic channels, and that information thus obtained will 
 always be limited to statistics and general matters of trade, the au- 
 thorities carefully avoiding subjects and particulars the exposing of 
 which might prove detrimental to their home trade, or be looked upon 
 as revealing business secrets. Particularly, such matters are fre- 
 quently of great value for the promotion of our trade interests, but, 
 as stated, it is almost certain that the authorities of foreign countries 
 will, in the interest of their own trade and industry, avoid officially 
 exposing any information contrary to their interests. Such informa- 
 tion, in my opinion, will always be obtainable only through private 
 inquiry, although generally connected with great difficulty and fre- 
 quently subject to unfavorable and disagreeable comment on the part 
 of parties applied to. 
 
 As far as this office is concerned, and with regard to obtaining in- 
 formation through official sources, Ave have always been able to secure 
 such information at first hand by applying to the local committee of 
 the senate on imperial and foreign affairs. That office has always 
 most courteously given information so desired, although generally 
 attended with great delay, so that in the preparation of reports I 
 have as infrequently as possible applied to said office. As further 
 regards this office, information to be obtained from official sources, I 
 am convinced, will always be as willingly furnished by the local au- 
 thorities to the consular officer accredited to the free and Hanseatic 
 city of Hamburg, as it would be given to the diplomatic representa- 
 tive at the German capital, through the foreign office at Berlin. 
 
 Notwithstanding, I think it would be worth while considering the 
 creation of the post of a commercial or industrial attache to the em- 
 bassy at Berlin, for the collection of commercial intelligence, as an 
 efficient officer appointed to such post may undoubtedly be in a posi- 
 
62 PROMOTION OF TRADE INTERESTS. 
 
 tion to revise, correct, or amend many consular reports so as to render 
 them more valuable for American commercial and industrial in- 
 terests, or make valuable suggestions to the various consular officers 
 in the direction of preparing reports. In my opinion, many of the con- 
 sular reports published, particularly those prepared and transmitted 
 by consular officers covering subjects outside of the scope of their offi- 
 cial jurisdiction, won Id prove more valuable if properly amended or 
 corrected, as occasion may require. 
 
 Hugh Pitcairn, Consul-General. 
 Hamburg, September 7, WOIf. 
 
 Opinions of other Consular Officers. 
 
 AIX-LA-CHAPEIXE. 
 
 In reply to circular of August 4, " Promotion of trade interests," 
 I have to say that my views are based upon observations in this con- 
 sular district and upon German business customs at the present time. 
 
 First. An ambassador should not be an understood medium for 
 commerce in Germany. 
 
 Second. The secretary of legation might be instructed to obtain 
 and answer questions of consuls-general, when special conditions con- 
 front the consul-general or consul, although there is no question but 
 that the same would be just as cheerfully done by courtesy. 
 
 Third. The procuring of general trade information of a country or 
 government should be the duty directly of the consuls-general, and 
 they should be expected to report upon conditions in general. For 
 such purposes local information from consuls should be made availa- 
 ble by a general Department instruction, and upon request from a 
 consul-general. 
 
 Fourth. Consuls, in their reports, should confine themselves usu- 
 ally to their own consular district, but should not be restricted if 
 they desire to make a report in general, such report, however, to pass 
 through the consul-general for his approval or otherwise. 
 
 Fifth. A consul should be instructed that promotion of American 
 trade is a duty, and that upon results depends his standing in the De- 
 partment, his recognition, etc. 
 
 Sixth. The system in vogue for the last six years has been efficient 
 and hard to be improved upon for results. The consul can best ascer- 
 tain the wants of his particular province for American goods in com- 
 petition with local goods, and in my restricted acquaintance with 
 American consuls. I have found all of them interested in furnishing 
 American trade. I may add that this office has for six years acted 
 upon this principle. 
 
 Seventh. By way of suggestion, I would propose that at each capi- 
 tal there should be an official, not an attache, but under the State 
 Department, whose duty should be the gathering of statistics and 
 making reports upon opportunities for American products. A consul 
 receiving business or trade letters should be permitted to refer to him 
 for information or answer. The official referred to should visit once 
 a year each consular district, spend a few days, not hours, with the 
 consul and interrogate the latter on American trade interests. Such 
 
 
PROMOTION OF TRADE INTERESTS. 63 
 
 person should be selected only for established qualifications, expert 
 judgment, capacity for statistics, and knowledge of what American 
 products are, etc. 
 
 Eighth. This question is of the greatest import to America, and 
 there is much room for argument in determining the best policy. In 
 my opinion American consuls are the best medium for foreign-trade 
 advancement and information, and no other branch of the Govern- 
 ment service can so well be used for that which, after all, is purely 
 individual and personal in results. In no manner, however, should 
 the consul put himself into the category of a business agent. 
 
 Ninth. Business men should be informed that the consular service 
 is at their use, individually or collectively, only through the State 
 Department. 
 
 I find that my files contain copies of five letters written last week in 
 answer to business letters from Louisiana, Ohio, New York, and Illi- 
 nois, for the consul's opinion as to trade opportunities for certain 
 goods. Each received a short report, with names of dealers in their 
 respective goods. 
 
 Frank M. Brundage, Consul. 
 
 Aix-la-Chapelle, August 2J+, 190J+. 
 
 BREMEN. 
 
 In compliance with the circular of August I, u Promotion of trade 
 interests," I have the honor to respectfully reply that, in my opinion, 
 such a plan as is suggested can not be recommended too strongly, and 
 that the difficulties of setting up such an instrument as would bring- 
 about definite and practical results, while they would be great, ought 
 not to be unsurmountable. 
 
 Such a central bureau would, in my judgment, concentrate the 
 efforts of all the American consulates upon the one great purpose of 
 extending our trade abroad, as it is impossible to do with our present 
 system of individual consular efforts. It would stimulate greater ac- 
 tivity in this direction, and be apt to arouse in the minds of our con- 
 suls, as nothing else could, the laudable ambition to excel in this 
 respect, and at the end of each year to show, if possible, continued in- 
 crease in the amount of American goods imported into their districts, 
 be such increase great or small. 
 
 The greatest difficulty would be to find the right man to lead in 
 this movement for an organized extension of our trade. In my 
 humble opinion, he should be a veteran in our consular service, fully 
 familiar not only with every detail of consular work, but also with 
 all the natural resources and with the leading industrial, commer- 
 cial, and agricultural capacities of the country in which he is to 
 labor. Such an official would have to be attached to an embassy or 
 a legation to be in a position to obtain official information at first 
 hands. 
 
 Bremen, September 6, 190 4. 
 
 Henry M. Diederich, Consul. 
 
64 PROMOTION OF TRADE INTERESTS. 
 
 BAMBERG. 
 
 Replying to circular of August 4, I have the honor to state that, in 
 my opinion, much good could be accomplished if arrangements could 
 be made that would facilitate cooperation between the diplomatic 
 representatives and the consular officers in promoting American 
 trade in all its forms. 
 
 A consul may have acquired a reasonable acquaintance with the 
 peculiarities and specialties of commerce in his own district and 
 may be able to furnish information on most subjects of trade, and 
 yet could report more intelligently many times had he the means of 
 comparing his report with more general information. 
 
 I have never been refused a cordial answer to any request I have 
 made for such information, but if some system can be established 
 by which the diplomatic representatives would impart general in- 
 formation on commerce and industry accessible to them at head- 
 quarters to the consular officers, who could then compare the same 
 with the special information gathered out of their own districts, 
 much good would result to American trade. 
 
 Wm. Bardel, Consul. 
 
 Bamberg, September i, 1904. 
 
 
 BARMEN. 
 
 I have the honor to acknowledge receipt of circular, " Promotion 
 of trade interests,-' and in answer beg to submit the following 
 suggestions : 
 
 For the promotion of trade interests in foreign countries — Ger- 
 many, to which I am accredited, for one — I think it would be prefer- 
 able if the Department of State would send instructions for particu- 
 lar inquiries to the respective consuls as heretofore. Reports from 
 this consular district in answer to such instructions — for transmission 
 to the Department of State — have always been directed to the consul- 
 general at Frankfort-on-the-Main, who holds supervisory jurisdic- 
 tion over this consulate. It certainly will occur that reports some- 
 times contain slight errors of facts, for the reason that, in most cases, 
 opinions upon subjects sought have to be collected from different 
 sources and may not always be interpreted correctly. Whether it 
 would be judicious that consuls-general be directed to revise reports 
 sent to them for transmission I would not venture to say. Reports 
 on certain questions may differ, in consequence of local or other 
 causes, yet each one may be substantially correct, although apparently 
 somewhat conflicting. 
 
 I am of the opinion that the present system of reports from consuls 
 in regard to the commercial and industrial interests is as efficient as 
 it can be made. All questions of interest asked by the Department are 
 promptly answered, and the information can only be obtained by the 
 consul in his district, where usually there are but few branches of 
 industry prevailing. 
 
 These reports pass through the consul-general, who has them from 
 all consulates in his district, and is able, therefore, to give general 
 conclusions. 
 
 Theodore J. Bluthardt, Consul. 
 
 Barmen, August SO, 1904. 
 
PROMOTION OF TRADE INTERESTS. 65 
 
 BRESLAV. 
 
 In response to the Department's request contained in its circular, 
 " Promotion of trade interests," dated August 4, 1904, I have the 
 honor to say that I am decidedly of the opinion that American diplo- 
 matic officers might often be important factors in obtaining informa- 
 tion valuable to our commercial interests, particularly if they could 
 have attached to their offices capable assistants especially selected for 
 the purpose of investigating commercial conditions abroad and col- 
 lecting information for use in the advancement of our own trade pos- 
 sibilities. 
 
 This would be most emphatically the case in the great industrial 
 countries which are our principal trade rivals, where it is growing 
 more and more difficult for consular officers to obtain information on 
 trade subjects, and where the cooperation of diplomatic officers might, 
 owing to the obligatory courtesies and attentions shown them here, 
 prove of great effect in obtaining information which sometimes might 
 be withheld from a consular officer, especially when required from 
 official sources. 
 
 I have often thought that if consular officers seeking information 
 in any of the leading industrial countries could sometimes have at 
 their command the advantage of a small fund upon which to draw, 
 the amount of information they might thus obtain would be worth 
 incalculably more to the trade interests of our country than the cost 
 of the same. 
 
 In case the diplomatic officers should ultimately cooperate with the 
 consular officials, as suggested by the circular, perhaps it might be 
 feasible to have provision made for such a fund, to be expended under 
 the supervision of the diplomatic officers. 
 
 Ernest A. Man, Consul. 
 
 Breslau, Germany, September 2J h J904- 
 
 BRUNSWICK. 
 
 The question of the employment of the diplomatic service in pro- 
 moting trade interests in cooperation with the consular service 
 deserves serious consideration. 
 
 Hitherto, this has been the particular province of the consular 
 service. While the diplomatic service has been occupied with mat- 
 ters of a political nature, namely, questions of peace and Avar between 
 the particular governments themselves or between other governments, 
 the status of the citizens of each government, extradition, and the 
 like, the consular service has confined itself to affairs of a commercial 
 character. 
 
 However, with the increased and rapid intercourse between coun- 
 tries, brought about by the inventions of steam and electricity; the 
 breaking down of the ancient barriers of prejudice produced by dif- 
 ference in language, race, and creeds; the immense progress made by 
 commerce and the prominence which questions of trade have taken, 
 arising from matters of tariff'; the formation of vast syndicates to 
 control the production and distribution of different articles, which 
 are daily becoming more and more international in their influence 
 H. Doc 245, 58-3 5 
 
66 PROMOTION OF TRADE INTERESTS. 
 
 and operations, the question naturally arises whether the line of 
 demarcation which has separated the two services shall continue to 
 exist or whether the two services can not mutually assist each other 
 in promoting trade interests. 
 
 In considering the bearing of this question upon the trade relations 
 of the United States and Germairy it must, in the first place, be borne 
 in mind that high industrial protection is and has been the policy 
 of each country for a number of years. Each possesses a tariff, 
 largely the work of experts, which protects the interests of each with 
 an extraordinary degree of refinement. The regulations putting 
 these tariffs into effect have been and are now causing more or less 
 friction between the two countries. Both countries desire more inti- 
 mate trade relations, and that the obstacles which prevent it shall be 
 removed, but not at the sacrifice of any advantage obtained by the 
 other. At the present time the Landwirtschaft, or agricultural 
 party, is in control of the politics of Germany, and through its influ- 
 ence increased duties have been put upon breadstuffs and provisions, 
 so that the importation of the former has been much restricted and, 
 in the case of the latter, that of pork products has been prohibited, 
 with the exception of sides of bacon and lard. 
 
 At the same time, nearly all branches of German industry have 
 been protected, especially cotton goods, the importation of which 
 from the United States and England has practically ceased. The 
 question to what extent these artificial barriers, which prevent the 
 free commercial intercourse between the two countries, can be 
 removed or modified is a matter for the Governments of the respec- 
 tive countries. At the same time, it must not be forgotten that these 
 trade barriers may be broken down in a measure by the course of 
 natural events. 
 
 The population of Germany is increasing rapidly and already 
 exceeds the means of subsistence. Breadstuffs and provisions must 
 be imported to sustain the population, and in the case of the failure 
 of crops, the custom duties limiting their importation would have 
 to be at least temporarily suspended*- Time, the all-important fac- 
 tor, can bring about changes in trade conditions without the danger- 
 ous procedure of tariff tinkering, which unsettles business and at 
 times causes panics. Permanence in trade conditions, even if bad, 
 is better for the merchant or manufacturer than uncertainty. Sharp 
 business sense and mother wit can circumvent unfavorable trade con- 
 ditions without the suggestions and aid of others more or less igno- 
 rant of the conditions. A stream that can not pass through a rock 
 will go around it. The cost of producing textiles may be so reduced 
 by mechanical inventions and otherwise in cotton-producing coun- 
 tries that they can be exported with profit to high-tariff countries, and 
 surplus manufactures, after satisfying the home market, exported 
 without loss and high wages maintained. 
 
 A commercial representative attacheel to the embassy at Berlin 
 charged with the special duty of collecting industrial and trade infor- 
 mation, might be a valuable adjunct, and the consuls might render 
 him assistance in informing him of the particular trade conditions 
 of their respective districts. It is likely that the ambassadors, par- 
 ticularly in the great European capitals, have more and^ better oppor- 
 tunity to obtain commercial information from the different depart- 
 ments of the foreign government than consuls. 
 
PROMOTION OF TRADE INTERESTS. 67 
 
 The same rule holds good in smaller cities which are the seats of 
 local governments, such as Brunswick, the capital of the Duchy of 
 Brunswick. In such places, the consul bears in some degree, as the 
 representative of his government, the same relation to the local 
 authorities as a diplomatic officer, and they will, as a rule, impart to 
 him information as readily as they would to an ambassador, and 
 reversely, decline to give such information if in their opinion it 
 was not desirable to give it. 
 
 Whether it would be advisable to subject the reports of consuls to 
 the criticism of diplomatic officers or a commercial attache is a mat- 
 ter which admits of some doubt. It might in some cases produce 
 friction and injure the initiative of consuls, who might think they 
 were as well if not better informed upon the subjects treated by 
 them as the persons who undertook to criticise them. It is possible 
 that on some subjects, especially when information was obtained by 
 the consul from the departments of a foreign government by his 
 ambassador, at his request, this objection would not apply. 
 
 On the other hand, the transmission of the instructions of the 
 Department of State to the different consuls by the diplomatic officers 
 might turn out to be a good move, for it would facilitate a more 
 effective distribution of instructions in assuring that they w T ould 
 reach the consuls competent by reason of the location of their con- 
 sulates to treat the subject and make the report required. 
 
 The appointment by the German Government of commercial at- 
 taches at the German embassies and more important consulates has 
 proved to be an excellent and advantageous measure. This was a 
 matter of necessity for Germany, in order to promote its trade inter- 
 ests. Experience had shown that the technical education of German 
 diplomatists and professional consuls did not adapt them for com- 
 mercial positions. They were educated as jurists, and had' few or no 
 ideas of commercial matters and business methods. A German Gov- 
 ernment official, as a rule, comes very little in contact with merchants 
 or men of business. The mercantile classes do not hold in Germany 
 the same social position as in America. For these reasons, the ap- 
 pointment of commercial attaches at the German embassies and more 
 important consulates was necessary. This does not apply as much 
 to the American diplomatic and consular services, where the posi- 
 tions are held more or less by persons who have had the benefit of 
 some practical business training and have been more or less men of 
 affairs in their own country. 
 
 In conclusion, on the whole it might be well to make a trial of the 
 appointment of commercial attaches at the' different embassies. It 
 might lead to a more exact distribution of instructions by the Depart- 
 ment of State to the consuls, and a subsequent revision of their 
 reports, under careful regulations, which would prevent giving 
 offense, might correct errors and bring more harmony in the reports. 
 Moreover, by such an appointment the Government would have at 
 the capital of a foreign state an officer who might at a moment's 
 notice give important and valuable commercial information at any 
 time. 
 
 Talbot J. Albert, Consul. 
 
 Brunswick, Germany, September 16. 1904-. 
 
68 PROMOTION OF TRADE INTERESTS. 
 
 CREFELD. 
 
 The embassies and legations, in my judgment, would be greatly 
 hampered in their legitimate work were they charged with the duties 
 of collecting industrial and trade information in conjunction with 
 the consular service, while the consular service would, in a measure, 
 lose its effectiveness if made subject to or subordinate to the diplo- . 
 matic service. Embassies and legations, under their present status, 
 deal almost solely with the officials of the government to which they 
 are accredited and are bound to conform their actions and con- 
 duct to a great extent to the formalities and conventions existing 
 under the same. 
 
 The consular service, on the other hand, deals principally with the 
 business element within its jurisdiction, and usually conducts the 
 business of its office upon business principles, without regard to 
 formalities, whatever they may happen to be. and they are not 
 restricted by that extreme prudence, care, and precaution necessarily 
 practiced in conducting the business of the embassies anddegations. 
 
 The public, under present conditions, look upon the diplomatic 
 and consular services as distinctive and separate from each other, so 
 that the embassies and legations are not embarrassed by the over- 
 zeal sometimes manifested by consuls in the methods employed to 
 secure desired information. 
 
 I deem it a compliment to the consular service that the American 
 consul is looked upon with suspicion if seeking information upon 
 some matter that might be turned to the advantage of the American 
 people. In no case would I wish suspicion attached to the diplomatic 
 service of our country, or its efficiency impaired by assuming a re- 
 sponsibility that at present does not exist. 
 
 The intelligent person as a rule attempts to live up to his concep-- 
 tion of the duties of the position to which he may be assigned and to 
 conform his actions and conduct to the character of such position as 
 appears to him to be most conducive to the honor and efficiency of 
 the same. A prosecuting attorney would act quite differently in of- 
 ficial conduct were he made a judge of the same court in which he 
 practiced: so. too, would the consul, should the status of the diplo- 
 matic service be affixed to the consular service. 
 
 The most efficient consul I have so far met commenced his official 
 career by paying off the uniformed page employed at the consulate. 
 He informed the patrons of the office that during official hours he 
 was there, ready, and would be pleased to attend to any business they 
 had to offer : the door would be open, no need to knock, but come right 
 in: he was there to do business and an introduction was not neces- 
 sary. His conception of consular duties was to conduct his office in 
 accordance with American business methods, taking all responsibility 
 upon himself for bis acts, and there is no need to say that he is thor- 
 oughly familiar with the duties of the office or that patrons have 
 been well pleased with the service, regardless of what formalities they 
 themselves practice. 
 
 The consular service, by custom and usage, has lost much of its dip- 
 lomatic character, and it is said to have made ; ' a general and very 
 marked advance in its utility in collecting information as to business 
 conditions." "Would not restoring its diplomatic character affect its 
 utility in this direction I 
 
PROMOTION OF TRADE INTERESTS. 69 
 
 I believe that, if the consular service were united with the diplo- 
 matic and made subordinate thereto, the consul would lose his free- 
 dom of action : that the personal incentive which now encourages him 
 would be removed, and that the " spirit of initiative " would be event- 
 ually eliminated from the consular service. 
 
 I further believe that the embassy or legation should not be sub- 
 jected to criticism by engaging in such business as might affect the 
 standing of its personnel; that serious questions of propriety would 
 arise from the assumption of such duties by it as outlined, and for its 
 best interests it should be left free and untrammeled from assuming 
 them. 
 
 Thomas K. Wallace, Consul. 
 
 Cbefeld, September 3, 1904. 
 
 DRESDEN. 
 
 I have the honor to acknowledge receipt of the circular " Promo- 
 tion of trade interests," and beg to say that, in my opinion, the plan 
 set forth therein has many good features — some objectionable. 
 
 It is doubtless a fact that officers of foreign governments would 
 often give information to ambassadors or their accredited agents 
 that is withheld from consuls, but usually, the latter adopt means 
 for acquiring the knowledge, sometimes roundabout, troublesome, 
 and expensive. 
 
 The officers of the Saxon Government have never failed to respond 
 favorably to reasonable inquiries from this consulate, but trade 
 organizations and manufacturers frequently decline, and with these 
 I doubt if the ambassador could be more effective. 
 
 By collecting reports from consuls in the country to which he is 
 assigned, and carefully editing the same, an ambassador could pre- 
 sent the final report in a condensed form, saving much trouble to 
 the Departments at Washington and considerable expense in print- 
 ing. He could prevent erroneous impressions regarding the general 
 trade conditions of the country, for a condition may exist in one 
 consular district which does not obtain in others. 
 
 It is presumed each ambassador would employ several commer- 
 cial attaches to look after the additional duties imposed on him; and 
 with no other business, and devoting their entire time to one object, 
 these agents should be effective, but the cost for the service would be 
 largely increased. 
 
 The main question for the Department to decide is whether it will 
 smother the spirit of industry and intelligence that has made the 
 American consular reports valuable to the commercial and manu- 
 facturing interests of our country during the last decade, for if you 
 compel consular officers to sink their identity, a corresponding lack 
 of interest will naturally follow. 
 
 My impression is that if consular officers were given more discre- 
 tion, and if a portion of the increased cost contemplated in the 
 proposed change were allowed them for necessary and legitimate 
 expenses, it would result in more satisfactory reports and better 
 service. 
 
 Charles L. Cole, Consul- General. 
 
 Dresden, August 31, 190. k- 
 
< U PROMOTION OF TRADE INTERESTS. 
 
 EEBENSTOCK. 
 
 In reply to the Department's circular of August 4, I beg to state 
 that, in mj judgment, the appointment of commerical and industrial 
 attaches to our different embassies and legations would be a step in 
 the right direction. Their tenure of office should last as long as they 
 are capable of rendering efficient service. 
 
 Whether or not it would be wise for our diplomatic officers to 
 actively and officially engage in gathering commercial information is 
 a question which I am not prepared to answer. Would such service 
 weaken or strengthen the official status of our embassies in European 
 countries? In Germany our consular officers have the reputation of 
 being very efficient, and for this reason have, in late years, been re- 
 garded with considerable suspicion by manufacturers and Govern- 
 ment officials. It would seem to me that attaches, at least in Eu- 
 ropean countries, would be more practicable than openly and officially 
 engaging the services of our diplomatic officers in the active search 
 for commercial information. A commercial attache would form the 
 connecting link between the embassy and consulates, and ultimately 
 achieve with less friction better and more lasting results. 
 
 Ernest L. Harris, 
 
 Commercial Agent. 
 
 Eibenstock, August '24, 1904. 
 
 FREIBURG. 
 
 In reply to the Department's circular, " Promotion of trade inter- 
 ests," I have the honor to say that, in my opinion, the circular in 
 question has touched upon all phases of the subject so thoroughly 
 and so clearly that any ideas expressed must necessarily, to a great 
 extent, be a repetition of those already contained therein. 
 
 The consular districts are limited in area, and a consular officer 
 is accordingly expected, under ordinary circumstances, to limit his 
 investigations on business and commercial affairs to his own district 
 only, and, moreover, a consul oftentimes encounters difficulties in 
 acquiring the deiired data for a report, especially if the authorities • 
 have occasion to believe that their own business men are likely to 
 suffer if all the requested information is given. 
 
 For these reasons it certainly seems very desirable to have a com- 
 mercial attache connected with the embassy, whose special duty shall 
 be that of collecting industrial and trade information, and who could 
 call upon the several consuls for aid in obtaining such facts either 
 directly or through the consulate-general, as each case may require. 
 
 It will also be quite evident that a commercial attache, with a corps 
 of assistants, will be able to do considerable editing and arranging 
 of reports intended for the printer, and so, to a great extent, relieve 
 as well as further the work of the Department of State at Wash- 
 ington. 
 
 As, according to the principles of international law, an embassy or 
 diplomatic representation of a country is a representation for the 
 State as a government, and not for any particular interests, as com- 
 merce, railroads, schools, etc., of the foreign state, it would seem to 
 
PROMOTION OF TRADE INTERESTS. 7l 
 
 me that the question of propriety could very properly arise from the 
 assumption by an embassy or legation of duties other than those 
 pertaining to the State as such. 
 
 The fact, however, remains that there are military attaches con- 
 nected with the several embassies and that some nations have 
 already appointed diplomatic representatives, known as " commercial 
 attaches," which would seem to indicate that it would also be possible 
 and proper for the United States of America to look out for its 
 trade and commercial interests through the appointment of similar 
 diplomatic officers. 
 
 In the course of my travels in the several countries of Europe, 
 whether by rail or especially b}^ bicycle, when I would come into 
 closer touch with the people I could not but realize that the people 
 with work and sufficient work, even if the pay be small, are a happy 
 and contented people, and their country a comparatively safe coun- 
 try to travel in, and vice versa, where there was little or no work 
 there was no pay, no money, the people were idle, a system of beg- 
 ging prevailed, which necessarily would produce the idea and sense 
 of danger. The question of industry and labor is so intimately con- 
 nected with the happiness of a people, and the general wealth and 
 prosperity of a country, that I cheerfully express my most hearty 
 satisfaction in any steps taken by the Government, at home or 
 abroad, toward developing or increasing the commercial facilities 
 and promoting the trade interests of the United States. 
 
 E. Theqphiltts Liefeld, Consul. 
 
 Feeiburg, October 17, 1904. 
 
 MAjSTVHEIM. 
 
 Referring to the Department's circular, " Promotion of trade inter- 
 ests," I have the honor to report that I do not believe I can offer 'sug- 
 gestions on this subject that are likely to be of much value. 
 
 There are some inherent difficulties in securing full information on 
 many topics of trade and manufacturing in Germany, for example, 
 which no system of cooperation between embassy and consulate would 
 overcome. The perfecting of such a system and its publication to the 
 world might, perhaps, result in a more careful guarding of informa- 
 tion with reference to important matters of trade, and not only prove 
 embarrassing to both branches of the service, but defeat the end for 
 which the proposed cooperation was brought about. 
 
 The feeling on the part of the German manufacturer is undoubt- 
 edly adverse to giving out information to be used by foreign com- 
 petitors. Within the past week, a prominent German newspaper has 
 commented editorially on a visit now being made in Germany by a 
 body of English engineers, and has expressed the view that they 
 should not be shown the interiors of plants and be furnished with 
 information that will be likely to be used against the German manu- 
 facturer. The same note of warning has,' as is well known, been sev- 
 eral times sounded by the German press as against the American con- 
 sular service. Were it to appear that the diplomatic and the consular 
 service were coordinated for the avowed purpose of aiding each other 
 in the gathering of news likely to be of value in American trade, it is 
 a question whether the results might not be unfavorable. 
 
i 2 PROMOTION OF TRADE INTERESTS. 
 
 Taking, for example, my own district, which is a center of large 
 and extremely varied manufacturing interests. I have met with the 
 most cordial reception on the part of managers and have visited the 
 larger part of the important concerns in the district. This has been 
 permitted only because it seems to be understood that I will not abuse 
 my newsgathering functions. If I did this a single time and that 
 fact were known. I would at once find admission to factories denied 
 me and relations established that would make official residence here 
 unpleasant, if not unbearable. Were I to seek to make a critical 
 study of celluloid manufacture or wood-pulp manufacture or quinine 
 manufacture or to secure photographs of the machinery used in the 
 manufacture of plate glass in this district, or to secure admission of a 
 technical man to certain of the factories here, or do many other simi- 
 lar things. I would surely fail, and probably no system of coordina- 
 tion between the embassy and my office would aid me. It is a well- 
 known fact that a large number of our commercial re]i>orts under the 
 present system find their way back to our districts and are reprinted 
 m the local papers. Any breach of good faith on the part of a consul 
 or seeming abuse of courtesies shown him in factories would result in 
 a loss of standing from which he could not recover. 
 
 It has seemed to me that were the Department supplied with an 
 industrial map or chart of each country, showing by consular dis- 
 tricts the branches of industry carried on in these districts from 
 year to year, and have the reports of a given industry so collected 
 by consuls themselve- as to show the state of that industry in the 
 entire country, it would certainly prove more satisfactory than the 
 present system. For example, a half dozen consular districts in 
 Germany are prominent for the manufacture of cotton goods. If 
 some one consul was assigned by the Department to investigate and 
 report on the subject as a whole, it would certainly have more interest 
 for the American cotton trade than to have the reports by piecemeal, 
 as under the present system. For such report the consul designated 
 should have authority to call on all his^colleagues who have the same 
 industry represented in their districts. Mich designation by the De- 
 partment would be a stimulus to a consul to prepare a full and com- 
 plete report, and having the right to call on his colleagues for infor- 
 mation, he could do this as he can not hope to do under the present 
 system. Doubtless in some cases the ambassadors could and would 
 secure at first hand statistics and other information required to make 
 such report complete. The consuls-general at capitals would also 
 aid in this. The assignments could be made of the tobacco industry, 
 chemical industry, textile industry, technical schools, leather trade. 
 Portland cement industry, electrical railway building, oil business, 
 etc. This ought to secure for public reference at lea>t one well- 
 considered report from each consul per year, and need not seriously 
 interfere with the present brief reports made from time to time. 
 
 It would be exceedingly difficult for any one consul to make a 
 reliable and complete report of the important tobacco industry in 
 Germany without the assistance of three or four of his colleagues 
 who are in tobacco districts. He can not call on the Leipzig or Dres- 
 den or Nuremberg boards of trade for their reports, but the consuls 
 of those districts have these reports, and were a consul designated to 
 write up the industry, it would be a simple matter to have his col- 
 leagues send him their last report- for examination and return in a 
 
PROMOTION OF TRADE INTERESTS. 73 
 
 few days. Such request could give no offense to the colleague be- 
 cause the topic assigned to him for report would make such recip- 
 rocal favors necessary and proper. 
 
 To summarize briefly, I think it doubtful whether to so widen the 
 functions of the diplomatic service in Germany as to make it in part 
 a news-collecting or statistical bureau might not only weaken that 
 branch of the Government in its purely diplomatic character, but, 
 on the other hand, that a system of cooperation on the part of the 
 consular service might be inaugurated under the direction of the 
 Department that would give to a consul designated by the Depart- 
 ment the right to ask for information from his colleagues in the 
 preparation of a report on a particular subject; also that such re- 
 ports so collated by a consul at his post from information obtained 
 from all sources open to him, including information from his col- 
 leagues having the same branch of industry in their districts, would 
 be more satisfactory to the American reader and to the consul him- 
 self, and would prove a stimulus to him and a test of his fitness. 
 
 In the assignment of topics selections should be made from those 
 having the particular industry in their respective districts, and such 
 system of rotation followed as would be fair to each. 
 
 H. W. Harris, Consul. 
 
 Mannheim, August 26, 1904. 
 
 PLAUEX. 
 
 The undersigned bee's to reply to the circular, " Promotion of 
 trade interests," as follows: 
 
 Assuming that the diplomatic service of our Government abroad 
 will be sufficiently equipped to assume the very considerable burden 
 of labor that will unquestionably fall upon it through the contem- 
 plated scheme of trade investigations and trade reports, I would hail 
 the proposed innovation as a very great step in advance of present 
 conditions. 
 
 A number of serious defects now hampering the efficiency of our 
 consular service would be easily removed by the inauguration of this 
 new plan. 
 
 I. Some definite system regarding trade reports by consular offi- 
 cers, now left altogether to chance or the whim of the particular 
 writer, should be established by a central head of the diplomatic serv- 
 ice in the particular country to which such consuls have been accred- 
 ited. Each consul could be then confined to such subjects as legiti- 
 mately arise within his jurisdiction. Failure to report upon matters 
 worthy of note could be discovered and remedied, and the matter col- 
 lated could undergo a preliminary sifting, instead of, as now, being 
 thrown upon the Department as an undigested and unclassified mass 
 of manuscript, to be either published or rejected. 
 
 II. Much of the important information now sought by consuls can 
 only be had from the books and statistics of government officials of 
 the country to which they are accredited. These officials are, in the 
 main, unwilling to disclose this information to a commercial repre- 
 sentative of a foreign government, for fear that the same might be 
 used commercially to the detriment of their own country. No such 
 
74 PKOMOTION OF TEADE INTERESTS. 
 
 distrust is known to exist with reference to purely diplomatic repre- 
 sentatives, and with a bureau organized as proposed, the consuls will 
 be able to exchange the present unsatisfactory methods for one that is 
 comparatively easy and always honorable. 
 
 III. Every consul would welcome a system under which Jiis atten- 
 tion would be specifically directed to particular subjects of investi- 
 gation, aided by suggestions as to the scope and intent of the inquiry. 
 His report would naturally gain in pointedness and brevity, while 
 much useless effort now wasted would be avoided. 
 
 The plan of the German Government, recently adopted, of attach- 
 ing experts to its foreign consulates, whose duty it shall be to collect 
 and report exhaustive data upon the trade conditions of the respec- 
 tive countries, and thus serve as guides for the German exporters, 
 shows the value attached by this country to a thorough and system- 
 atic study of trade opportunities in foreign lands. There would seem 
 to be at least equal, if not greater, reason why the American consular 
 service should be rendered similarly efficacious, and ,1 sincerely 
 believe that the suggestion now made tends in the right direction. 
 
 Huteo Mtjench, Consul. 
 
 Platjen, September 2. 190Jf. 
 
 STETTTX. 
 
 In reply to circular. " Promotion of trade interests," I have to say 
 that this consulate experiences no trouble whatever in securing official 
 information from first hands. Official, commercial, and industrial 
 conditions are different in every consular district; no two are alike. 
 It borders on an impossibility for any one person, particularly a for- 
 eigner, to possess sufficient knowledge of the industrial and commer- 
 cial conditions of the various consular districts to enable him to 
 correct, revise, add to. or " pass " on consular reports, as suggested 
 in the Department of State circular *dated July 29, 1901. A com- 
 mercial or industrial attache, working on his own lines and calling 
 on the consuls for assistance, and vice versa, would cause no friction. 
 Misstatements and errors in consular reports occur when the consular 
 officer goes outside of his district and the country to which he is 
 accredited for material to report on. In such cases his whole infor- 
 mation is based on reproduced news matter, which, quite frequently, 
 undergoes a series of changes. 
 
 John E. Kehl, Consul. 
 
 Stettin, September 2. 1904. 
 
 STUTTGART. 
 
 Replying to Department's circular, " Promotion of trade interests," 
 I beg to sa}' : 
 
 That of late years there has been a gradual increasing tendency in 
 official circles in Germany, at least, to refuse to the consuls informa- 
 tion upon subjects important to our commercial interests. Whether 
 this is owing to the growing spirit of rivalry or apprehension of 
 American commercial supremacy, or whether it is a new policy 
 
PROMOTION OF TRADE INTERESTS. 75 
 
 inaugurated for certain purposes, which applies to the consuls of 
 all nations, I am unable to say: but the fact remains that it is so. 
 
 So far as my personal experience goes, I have been able to get 
 about all the official information I have applied for, but I have been 
 here seven years and have established between the various depart- 
 ments of the Government and myself most excellent relations, and in 
 some instances warm personal friendships. 
 
 This may be due more to the amiability and high character of those 
 in the Government service here than to any merit on my part, but it 
 has often occurred to me that, if the consuls selected for posts at the 
 capitals of the various kingdoms in Germany had the honorary title 
 of " secretary of legation," it would give them a standing and place 
 them upon a footing of considerably more usefulness to our Govern- 
 ment in various ways than that which they uoav enjoy. 
 
 As these various kingdoms have always had diplomatic representa- 
 tives accredited to and residing at the respective courts, it would be 
 considered by these governments a very proper and complimentary 
 thing to do and the change would be a welcome one to them, pro- 
 vided, of course, that representatives so sent were of the character and 
 attainments commensurate with the duties of such position. 
 
 There is no sort of question a bout- this situation. Whenever a con- 
 sul is located at a post where there are diplomatic representatives of 
 other countries, even where these diplomatic representatives perform 
 consular duties, the consul is at a distinct disadvantage, not only in 
 obtaining information, but in other respects also, for he is not of the 
 highest grade of those present, and his government, more than he, is 
 the loser. It has always seemed a very simple proposition to me that 
 our country, with its great and manifold interests, should be repre- 
 sented at every post important enough to have a representative by an 
 official equal to the highest of those representing other countries. 
 These posts of which I now speak, if made a part of our diplomatic 
 service and stepping stones to ministerial positions, such as the con- 
 sulate-general at Budapest and one or two other like posts are in the 
 Russian and English services, would be of considerable advantage to 
 our country both in increasing the general efficiency of the occupant 
 thereof and in affording a good training ground for duties in future 
 diplomatic positions. It would also relieve the stagnation or want 
 of movement in the diplomatic corps and provide a wider and more 
 diversified experience for those in that service. 
 
 I am aw r are that it is not considered expedient by our Government 
 to create at these posts ministerial positions, but if each of them were 
 consulates-general, with the honorary title of secretary of legation, 
 possibly nearly the same results could be obtained as though the posi- 
 tions were ministerial. 
 
 As the Department is aware, our Government is the only Govern- 
 ment of consequence which has no diplomatic representative accred- 
 ited at these courts in Germany. It may not seem important to the 
 Department from a diplomatic point of view that this is the case, but 
 that it is a disadvantage in a commercial way I have no doubt. If 
 this simple change w^ere made, the " lack of diplomatic status " of the 
 consuls at these posts would be obviated. 
 
 The many and varied duties of a consul at an important post which 
 fill up his entire day prevent him, to some extent, from giving to the 
 broad view T of the commerce of the entire country in which he mav be 
 
76 PROMOTION OF TRADE INTERESTS. 
 
 situated that investigation and study which he would otherwise be 
 glad to employ. It should always be remembered, when considering 
 the efficiency and the duties of our consular corps, that it has a vast 
 amount of detail work daily to perform which the consuls of no other 
 country have. I refer to the examination and certification of in- 
 voices. For this and other reasons I have long been of the belief that 
 a system of commercial attaches in the chief countries of Europe, at 
 least, would be practical and advantageous. 
 
 Such an officer would have no other duties to divert his attention 
 or employ his time, and he certainly would become, if fairly able and 
 industrious, an eminent expert upon all phases of the commerce of the 
 country to which he would be sent, I believe that we need, such men, 
 and that their work would be productive of practical results, if made 
 supplementary to the reports of the consuls. 
 
 As to whether our ministers or ambassadors would or could be of 
 practical assistance to the consular corps in their reports, this would, 
 of course, depend largely upon a variety of circumstances. If the 
 incumbents were men of commercial instinct and training, and had 
 sufficient time at their disposal to give serious thought to and investi- 
 gation of the multifarious questions of commerce and finance, un- 
 doubtedly they would become able adjuncts to the consular corps in 
 this respect. Of course, the reports of a proper consular officer need 
 little, if any, reviewing, and the judgment of a good consul upon 
 commercial matters would be better than that of a minister whose 
 time and attention were too much occupied with his other functions 
 or whose instinct and training were not such as to especially fit him 
 for this kind of service. 
 
 It seems to me that the system already established of having the 
 commercial reports reviewed by an able official in Washington who 
 has abundant experience in consular work operates very well, and 
 that any report which would pass him for publication would be 
 most unlikely to embarrass a diplomatic officer at his post. If this 
 view is correct, the most that could be expected of diplomatic officials 
 in this avenue of effort would be such independent work as they 
 might be able to perform, which, of course, in some instances would 
 be considerable; but the giving them any power of correction or 
 review of the reports of the consuls does not now impress me as 
 practical, and besides, it would, in my opinion, have a bad effect upon 
 the consuls and rob them of that esprit de corps which now exists. 
 
 In brief, therefore, it seems practical to me to establish in the chief 
 countries in Europe commercial attaches to supplement the work of 
 the consular reports ; to give the honorary title of secretary of lega- 
 tion to the consuls at the respective important capitals in Germany 
 in order to give them the b4 diplomatic status " necessary to have 
 access to all information important to our commercial interests — for 
 our diplomatic representatives are not accredited to these courts — 
 and to continue the system now in vogue of the review of the consular 
 reports in Washington, leaving to the diplomatic officers such oppor- 
 tunities for giving commercial information as may arise. 
 
 While upon this subject of increasing the efficiency of the work of 
 the consular corps. I venture to suggest a line of action which has 
 long occurred to me to be most practical and, in fact, necessar}^, and 
 
PROMOTION OF TRADE INTERESTS. 77 
 
 there need be no legislation to bring it into being, at least in the be- 
 ginning. 
 
 Make all appointments only upon open and competitive examina- 
 tions to the lowest grade of consulships, and make all promotions, 
 when vacancies occur, for efficiency of service rendered. By this 
 means, a uniformly good class of officials would be gradually secured, 
 and an entirely different feeling would take place among those in 
 this branch of the foreign service than that which now exists. 
 
 It may be taken as an axiom in any effort in life engaged in by a 
 body of men that, if there be no proper esprit de corps, the best 
 results will not be attained, and there can be no proper esprit de 
 corps in this service as long as a consul feels that new men without 
 any training or experience in the work are to be appointed to places 
 above him and that, no matter what his work may be, promotion is 
 uncertain; in other words, that his success, unlike that in all other 
 avenues of activity, does not depend upon himself. 
 
 Eliminate these defects, and, although the salaries may be inade- 
 quate and the tenure of office uncertain, obstacles surely serious 
 enough to encounter without other burdens, the consul will feel that 
 a serious practical interest has been manifested toAvard the consular 
 service. 
 
 An order embracing the foregoing and containing, in addition, a 
 clause to the effect that no consular officer should be removed for 
 political reasons, but that all removals should hereafter be for cause, 
 upon charges filed, to which the one charged would have sufficient 
 opportunity to reply, would establish in great measure that reform 
 which Congress has so long debated without results. It may also be 
 presumed that, after a fair trial and a sufficient length of time had 
 elapsed to prove the benefits of such action, legislation could be pro- 
 cured that would fully complete and round out the organization of 
 the consular corps on a practical and businesslike basis. 
 
 Edward H. Ozmux, Consul. 
 
 Stuttgart, August 31, 1904- 
 
 WEIMAR. 
 
 I have the honor to submit herewith my views on the subject of pro- 
 motion of trade interests called for in Department's circular instruc- 
 tion dated August 4, 1904, inclosing an instruction to diplomatic 
 officers dated July 29, 1904. I am of opinion that action such as sug- 
 gested in the instruction to diplomatic officers would render consular 
 reports much more valuable, for the reason that diplomatic officers 
 would only transmit instructions to and call for reports from such 
 consuls as would be in a position to furnish the desired information. 
 In this way much time would be saved. By the present system almost 
 every consul is required to report, in answer to circular instructions, 
 on any and all subjects, and many must, on account of their tardiness, 
 cause the Department serious delay in issuing comprehensive reports. 
 
 Again, the literary merit of the reports would be higher were they 
 carefully edited at the legations and embassies previously to their 
 being forwarded to the Dej:>artment. That this is a consummation 
 
I 8 PROMOTION OF TRADE INTERESTS. 
 
 much to be desired is obvious to anyone who has read the consular 
 dispatches sometimes received at the Department. 
 
 It has been noticeable that the Department has heretofore issued 
 circular instructions calling for reports to consuls without special 
 regard to the fact that many concern subjects that it would be quite 
 impossible for some of them to report on, owing to nonexistence of 
 material in their respective districts. This seems unnecessary and 
 occasions much work in the mere writing of dispatches stating that 
 there is nothing to report and loss of time to the consul as well as to 
 the clerical force of the Department. 
 
 If it is determined that instructions shall not be sent to the diplo- 
 matic officers for distribution and action, as outlined in the instruc- 
 tion under consideration. I am strongly of opinion tha£ instructions 
 calling for reports from consuls should be sent only to consuls-general, 
 where there are such having jurisdiction, in order that they may exer- 
 cise an intelligent selection and only forward them to such consuls as 
 they know to be able to give the needed information. 
 
 It is certainly the case that a consul, by virtue of his office, is not 
 always able to procure from official sources such information as may 
 be needed by him in the preparation of his reports, and it is most 
 essential that inexperienced consuls should not be permitted to make 
 requests to officials and others, only to be politely snubbed for their 
 lack of tact. 
 
 The Germans are rather disposed to consider any trade information 
 furnished to our consuls as a weapon put into our hands to be used 
 against them. The German press has called attention to written 
 requests made by American consuls to chambers of commerce and 
 other institutions for information of a more or less private nature, 
 holding them up to ridicule and resenting their methods. Such 
 blunders on the part of our consuls can only be deplored, and the 
 Department would, by taking the proposed action, put an end to 
 them. 
 
 By all means have reports prepared through the medium of our 
 diplomatic officers, and secure expedienc^r, uniformity, better literary 
 style, and thereby avoid much unnecessary work. The diplomatic 
 officers, by a process of careful selection and supervision, would surely 
 obtain the above-mentioned results and save the Department much 
 editing and labor. 
 
 Thos. Ewixg Moore, Consul. 
 
 Weimar, September IJf, 190 If. 
 
 GREAT BRITAIN." 
 
 Report from Ambassador Choate. 
 
 A3IERICAN E 3 IB ASSY, 
 
 London. Xovember 19, 1901<.. 
 Sir: I have given careful consideration to the Department's cir- 
 cular instruction of July 29 last, with reference to the proposed co- 
 operation of the diplomatic and consular services in the collection of 
 
 a For opinions of consuls in British colonies and dependencies, see countries 
 under geographical divisions, as. for instance. Canada under America; India 
 under Asia. etc. 
 
 
PROMOTION OF TRADE INTERESTS. 79 
 
 commercial and industrial data, with a view to the further promotion 
 of our interests relating to trade in foreign countries. Before reply- 
 ing to the questions therein asked, I would say that in so far as this 
 country (the United Kingdom of Great Britain and Ireland) is con- 
 cerned, I have been unable to ascertain that any of our consuls have 
 ever been unsuccessful in obtaining commercial information which, 
 had it been asked for by the embassy, would have been furnished by 
 His Majesty's Government; nor is there any record upon our files, 
 except in the single instance hereinafter referred to, of applications 
 made by consuls for any such information or of its having been 
 obtained through the embassy, which I need scarcely say would have 
 at once complied with a request for commercial information received 
 from one of our consuls. 
 
 In reply to the first question contained in the circular, I have the 
 honor to state that it would be practicable, if in the opinion of the 
 Department desirable, for this embassy to transmit to our consuls 
 in Great Britain and Ireland instructions from the Secretary of 
 State for particular inquiries, with the addition of any suggestions 
 which might occur to the ambassador as likely to facilitate the 
 desired inquiry ; nor is there any reason why answers to such special 
 inquiries could not be transmitted to the Department of State by the 
 consuls through the embassy, such answers being read over, and if 
 necessary revised by the latter, provided, of course, that the staff be 
 increased sufficiently to enable the work involved by the addition 
 thereby made to its duties to be properly dealt with. 
 
 With reference to the second question in the circular, I have the 
 honor to state that there is cooperation between the diplomatic and 
 consular services of His Britannic Majesty; the commercial attaches 
 to the British embassies which have such attaches being instructed 
 " to give advice and assistance to British consuls within the area 
 assigned to you (them) on all commercial matters," and to do like- 
 wise " to British chambers of commerce, merchants, manufacturers, 
 and shippers," and that they " will be the recognized intermediary 
 to whom they (chambers of commerce, merchants, etc.) will have to 
 turn for information and guidance in these matters." 
 
 The British Government has appointed commercial attaches to the 
 embassies at Paris (for France, Belgium, and Switzerland) ; Berlin 
 (for Germany, Denmark, Holland, Sweden, and Norway) ; Vienna 
 (for Austria-Hungary, Italy, and Greece) ; and Madrid (for Spain 
 and Portugal). 
 
 There are also commercial attaches to the embassy at Constanti- 
 nople (for Bulgaria, European and Asiatic Turkey), and to the lega- 
 tion at Pekin, the latter being also a consul. 
 
 The commercial attache at Paris has the rank of secretary of 
 embassy; and is placed on the official list of the members of that 
 embassy after the military attache and ahead of the second secretary ; 
 those at Berlin, Vienna, Madrid, and Constantinople, not having the 
 rank of secretary of embassy, are placed on the list of those embassies 
 after the second and before the third secretaries. 
 
 The salary of British commercial attaches varies and, according 
 to the foreign office list of this year, is as follows: Paris, £500; 
 Berlin, Vienna, Constantinople, £800; Madrid, £725. 
 
80 PROMOTION OF TRADE INTERESTS. 
 
 Their duties are set forth in the following Memorandum of Instruc- 
 tions, viz : 
 
 Memorandum of instructions to Mr. Austin Lee on his appointment as commer- 
 cial attache to Her Majesty's embassy at Paris, April 1, 1896. a 
 
 1. Your residence has been fixed at Paris, and in your capacity of commercial 
 attache you will assist in the transaction of all the commercial business of Her 
 Majesty's embassy, under the direction of Her Majesty's representative. You 
 will, however, be required, upon instructions from this department, to be issued 
 as occasion may arise, to visit any other country or place within the area 
 assigned to you, as defined in the dispatch of the 1st April, 1896. by which 
 you were informed of your appointment. 
 
 2. You should avail yourself of every possible source of information in regard 
 to commercial questions, not only in the country in which j'ou reside, but also 
 in the other countries within the area assigned to you. For this purpose you 
 should take such commercial and industrial papers and periodicals published 
 in those countries as may appear best calculated to supply you with accurate 
 information, and you will furnish reports from time to time on any matters of 
 interest you may find therein. 
 
 You should submit a list of such papers, etc.. together with a statement of the 
 expenses which will be incurred in their purchase, in order that you may re- 
 ceive the necessary authority to charge them. 
 
 3. You will pay especial attention to the preparation of your annual report 
 and of any special reports on matters of interest to British trade and industry. 
 You should also be prepared to assist Her Majesty's consuls and vice-consuls 
 within the area assigned to you with advice, when required, in the preparation 
 of their commercial reports. 
 
 4. You will carefully watch all tariff questions in the countries assigned to 
 you, and you should report without delay, and if necessary by telegraph, any 
 changes in import or export duties, duties of all kinds on shipping, or in any 
 dues, regulations, or formalities which affect the import or export trade. 
 
 5. You should follow the proceedings in the legislatures of the various coun- 
 tries within your area as well as the meetings of chambers of commerce and 
 other public bodies, and should furnish abstracts of anything of interest of a 
 commercial or industrial character, together with such comments of your own 
 as may seem called for. 
 
 6. You should be prepared to give advice and assistance to British consuls 
 within the area assigned to you on all commercial matters, and also to British 
 chambers of commerce, merchants, manufacturers, and shippers. You will be 
 the recognized intermediary to whom they will have a right to turn for infor- 
 mation and guidance in these matters. * 
 
 You will therefore treat all such applicants with every consideration and 
 courtesy, and will use your best efforts to meet their wishes so far as you 
 properly can. 
 
 The correspondence annexed to this memorandum will serve for your guid- 
 ance as to the limits within which assistance can properly be given to British 
 trade abroad. 6 
 
 You will understand that, although you are not expected and can not be 
 asked to act as agent or commercial traveler for private firms, or to push their 
 particular business, it may still lie in your power to render them substantial 
 assistance in the pursuance of legitimate enterprise, and you should endeavor to 
 do so as far as possible. 
 
 7. You should cultivate friendly relations in the countries within your area 
 with the heads of those departments which are concerned with industry or com- 
 merce, and also with the heads of any great manufacturing or commercial 
 firms with whom you may be acquainted, and who may be able to furnish you 
 with valuable information, or may desire to be placed in relations with British 
 firms. 
 
 8. In addition to reporting on purely commercial questions you will also give 
 your attention to and report, as occasion may arise, on the following subjects : 
 
 (a) Mining and industrial concessions, and enterprises of British subjects 
 
 « Similar instructions to the commercial attaches to Her Majesty's embassies 
 at Vienna, Berlin, and Madrid. 
 
 & Commercial No. 16 (1886), Parts I and II; circular, August 11, 1896. 
 
PROMOTION OF TRADE INTERESTS. 81 
 
 within the area assigned to you ; any difficulties connected therewith ; openings 
 for extension or development, and possible new fields of enterprise. 
 
 (&) Labor questions, strikes, rates of wages, workmen's unions, insurance or 
 pension schemes, etc. 
 
 (c) Sanitary questions, especially in regard to quarantine and precautions 
 against diseases of animals. It is important that any actual or prospective 
 change in laws or regulations affecting these questions should be reported with- 
 out delay. 
 
 (d) Trade-marks and patents. 
 
 (e) Railways and preferential railway rates, roads, waterways, and tele- 
 graphs, changes in trade routes by land or water. 
 
 (f) Technical education. 
 
 (g) Bounties and subsidies. 
 
 (7/,) Improvements in industrial methods and machinery, 
 (i) The state and prospects of agriculture, including improvements in culti- 
 vation. 
 
 9. You will pay especial attention to the settlement of all claims by British 
 subjects as to customs fines or wrong* charges and classifications for customs 
 duties, and you will take all proper means to assist in such cases. 
 
 It will be desirable that on the 1st of March in each year you should furnish 
 a list of all such cases which may have come to your knowledge and which may 
 not have been settled, stating your views on the merits of each case, and giving 
 the reasons why a settlement has not been arrived at. 
 
 10. You will be careful not to lose sight of commercial questions which 
 affect India and the colonies. You will furnish reports upon such matters, 
 and should be prepared to give information to colonial governments on matters 
 of commercial interest, subject, where necessary, to instructions from this office. 
 
 11. All communications with this department should be made through Her 
 Majesty's representative, and all reports which you may consider to be of a con- 
 fidential character and not suitable for publication should be clearly marked 
 44 Confidential " at the top. 
 
 The British Government has also appointed for three years, from 
 January 1, 1903, commercial agents in the United States (Chicago), 
 Russia (Moscow), Switzerland (Zurich), and Central America 
 (Guatemala) ; also (for an experimental period of two years) at 
 Vladivostok. 
 
 The business of these agents is to watch and report upon the com- 
 merce, industries, and products of special districts, and to answer in- 
 quiries upon commercial subjects. 
 
 You ask me whether, in my opinion, a commercial attache to this 
 embassy would be useful for the United States, and in reply, I would 
 say that I do' not see how, for the reasons previously stated, such an 
 official could be of any assistance to our consuls in obtaining material 
 for their reports, and I fail to perceive how anyone in that position 
 could be of value otherwise to the commercial interests of our coun- 
 try, unless he should have had long experience as a man of business 
 and be possessed of intimate and general knowledge of mercantile 
 affairs. Such men, unless they had failed in business at home or 
 were broken down in health, could only be obtained at a salary much 
 higher, I should think, than that paid by the United States to any 
 consul-general or secretary of embassy, and would, therefore, be prac- 
 tically out of the question. 
 
 I have endeavored to ascertain what view is taken at the foreign 
 office of the results obtained from the appointment of commercial at- 
 taches to the British embassies previously alluded to, but the opinions 
 obtainable do not seem to be unanimous on the subject. There ap- 
 pears, however, to be rather an impression that the commercial work 
 is probably better done at those embassies where there are commercial 
 attaches than at those at which the duties in question are distributed 
 
 H. Doc. 245, 58-3 6 
 
82 PROMOTION OF TRADE INTERESTS. 
 
 among the ordinary staff of the embassy. The idea seems also to pre- 
 vail that, as more attention is paid to official status in continental 
 countries than in England, an officer with diplomatic rank is some- 
 times in those countries in a better position to obtain valuable infor- 
 mation from official sources than a consul. 
 
 On the other hand, there are those who think that the arrangement 
 diminishes the interest taken by the younger members of the staff of 
 the embassy or legation in commercial questions, and consequently 
 renders them less qualified to deal with such subjects later on in their 
 career, when they may perhaps find themselves concerned in impor- 
 tant commercial negotiations. 
 
 I append hereto the following extract from the instructions issued 
 to His Majest}f's diplomatic representatives,** from which you see — 
 
 (1) That they are directed to " make the commercial interests of 
 Great Britain an object of their constant attention; " 
 
 (2) That secretaries of embassies and legations are directed to visit 
 the great maritime towns and ports in the countries to which they are 
 accredited, with a view to making themselves familiar with the course 
 of business there, and to suggest measures by which " the trade of 
 British subjects might obtain facilities or be relieved from burdens 
 and obstructions." 
 
 (3) That, as far back as 1872, British diplomatic representatives 
 were called upon " to report on the general question of British trade 
 with the country to which they are accredited, and to suggest means 
 for its further development," which secretaries of embassies and lega- 
 tions do regularly; and that the secretary of embassy or legation at 
 Paris, the commercial attache, or a junior member of the mission in 
 his absence, is required to prepare and send to the foreign office at 
 least two reports every year — one commercial, on the industry, trade, 
 and general statistics of the county in which he resides, and the other 
 financial, on its budget and finances generally — besides additional 
 reports on subjects of general and commercial interest, as occasion 
 may require. 
 
 With regard to question No. 3, I would say that it is somewhat 
 difficult to form an opinion as to the additional assistance which 
 would be required by an ambassador here in order to carry into effect 
 the programme suggested in question 1, as it would depend very much 
 upon the quantity of consular reports received for inspection and 
 revision, and upon the frequency wherewith they would arrive ; but I 
 should say that one additional secretary of embassy would be indis- 
 pensable, "but whether called " secretary " or "commercial attache," he 
 should be a man qualified by commercial experience to deal with the 
 important business so to be intrusted to him. It would, furthermore, 
 be necessary for the offices of the embassy to be removed to more com- 
 modious quarters, as there is no room available in the apartment in 
 which the business is now and has been for the last twenty years 
 transacted for another secretary, or for dealing with the consular 
 reports in the manner suggested in your circular. 
 
 Having answered thus categorically, as nearly as I might, the spe- 
 cific questions contained in your circular, I proceed, as invited thereby, 
 with some suggestions that have occurred to me during my considera- 
 tion of the subject, which may possibly aid you in dealing with the 
 
 a Commercial. No. 16 (1886), part 1. Appendix A. Page 91. 
 
PROMOTION OF TRADE INTERESTS. 83 
 
 subject you have in hand, the " coordination and improvement of 
 existing facilities for the collection of commercial intelligence." 
 
 You will of course understand that, while you are considering the 
 matter generally with reference to the diplomatic and consular service 
 throughout the world, I am necessarily looking at it as regards Great 
 Britain alone and the condition of things now existing here. 
 
 As I have already said, there has never been the slightest diffi- 
 culty here in the way of the collection by the consuls of commercial 
 intelligence in the fullest manner possible. During my tenure of 
 office, I have never been called on by the consul-general and only once 
 by any consul for aid in obtaining such intelligence, and in that 
 particular instance I was obliged to decline the request for aid be- 
 cause the object was to obtain information in the form of advance 
 sheets of an official paper as yet unpublished, which I thought I 
 had no right to ask, except for special reasons and under specific 
 instructions from your Department. The commercial department 
 of the foreign office is at all times open and accessible to our consuls, 
 whose questions are promptly answered, and so it is with all other 
 public offices in the realm of which information is asked which can 
 properly be given. In this respect, as I understand, this Government 
 and its official representative differ radically from some continental 
 countries, where official inquires from foreign consulates are ignored 
 and are required to be repeated with diplomatic sanction. 
 
 In this condition of things I can not help thinking that, in this 
 jurisdiction at least, it would be a mistake to make the changes 
 suggested in your circular, however wise or useful they might be 
 in other jurisdictions, and for the following reasons: 
 
 First. It is wholly unnecessary and a multiplication of agencies 
 for accomplishing an object which is already adequately secured 
 by existing agencies is of course superfluous. 
 
 Second. It would j)retty certainly lead to clashing or confusion 
 between the embassy and the consulates ; or 
 
 Third. It would simply set them at work to do twice over what is 
 already adequately done by one of them. The information, the 
 statistics, and the reports would be reduplicated, without much 
 gain. It would be employing two men to do one man's work, which 
 always results in its not being well done by either. 
 
 Fourth. The collection of commercial intelligence, in the general, 
 and as a matter of regular routine, is wholly outside of diplomatic 
 functions, and will be more properly and successfully done by the 
 consuls whose official duties bring them into close and constant 
 contact with the trade and commerce of the country. The aid of 
 the embassy may be invoked by the consuls or ordered by the Depart- 
 ment whenever special occasion may call for it. 
 
 Fifth. In the course of my official experience under special instruc- 
 tions from the Department, I have, in several instances, been able to 
 assist in matters pertaining to commerce. In the matter of " London 
 dock charges," I was instructed to make an investigation and report 
 upon this subject, which was a complicated one, in aid of proposed 
 legislation by Congress. When the chancellor of the exchequer pro- 
 posed in his budget a new tax upon tobacco, retroactive in its Char- 
 acter, which would have very seriously affected American interests 
 involved, I was instructed to intervene with the British Government 
 
84 PROMOTION OF TRADE INTERESTS. 
 
 and make representations as to the hardships which were threatened 
 to our trade. So also, when the government of Burmah excluded 
 the Standard Oil Company from doing business in that state, and 
 when the Federated Malay States enacted a tariff on tin ore, to the 
 prejudice of American interests, I was instructed to examine and re- 
 port on the matter and make proper representations to the foreign 
 office. In all such instances, the service of the embassy in the matter 
 intrusted to it might well be expected to be more efficient than that of 
 the consuls could be, and in each there was some diplomatic feature 
 involved. Many similar cases might naturally arise which should 
 properly be committed to the embassy. And there are many subjects 
 of a large and general nature bearing directly or indirectly on our 
 commercial interests in which the services of the embassy might, from 
 time to time, be advantageously invoked under instructions from the 
 Department. 
 
 The experience of Great Britain in the matter has some bearing 
 upon the question which you have under consideration, but is not 
 very pertinent or conclusive in the way of enabling you to reach its 
 determination. 
 
 Our consular service was long ago thoroughly systematized in the 
 matter of collecting commercial intelligence-rod placed upon a most 
 satisfactory footing in that regard, and has often evoked the admira- 
 tion of other nations who were less fortunate in their consular 
 methods. It has not thus been found necessary with us to divide the 
 collection of commercial information or the routine attention to com- 
 mercial interests, at any rate in this jurisdiction, between the embassy 
 and the consulates. In the British service, on the contrary, it has 
 long been the rule that the first secretary of every embassy and lega- 
 tion should make annual or semiannual reports on the commerce of 
 the country in which he was residing. This necessarily absorbed his 
 attention and led to his being relieved of other duties in the embassy, 
 except when he was in charge, and I can not but think that first secre- 
 taries in our embassies would be better and more usefully employed 
 in the functions in which they are at present engaged. 
 
 Some years ago, during Lord Roseberry's tenure of the foreign 
 office, the London merchants somehow got the idea, which seems to 
 have been wholly without foundation, that the interests of British 
 trade in foreign countries were not being sufficiently attended to, and 
 great pressure was brought to bear upon the foreign office in this mat- 
 ter, and an elaborate correspondence was had. Various communi- 
 cations were addressed to the foreign office by the London Chamber 
 of Commerce and others interested in foreign commerce, to which 
 replies were sent. A circular letter was addressed by the foreign 
 office to chambers of commerce and other trade associations, asking 
 for information and practical suggestions "as to what greater meas- 
 ure of support they think might be afforded by British representa- 
 tives abroad to British trade," and many replies were received. 
 
 In the previous year Earl Granville, then minister of foreign 
 affairs, in dispatches to various embassies and legations, called for 
 reports as to the assistance rendered by the Government to which they 
 were* accredited to the trade and interests of their merchants abroad, 
 and many valuable replies were received. 
 
 On the 9th of April, 1886, Mr. James Bryce, then under secretary 
 
 
PROMOTION OF TRADE INTERESTS. 85 
 
 of state for foreign affairs, addressed a circular to many of His 
 Majesty's consuls abroad, asking for similar reports on the same sub- 
 ject, to which many able replies were received from many consuls in 
 various parts of the world, in which the whole matter was elaborately 
 discussed. With all this information and these suggestions before 
 him, Mr. Bryce, on the 17th of July, 1886, prepared a most able and 
 elaborate memorandum or report covering the whole subject-matter.* 
 I append copies of all this correspondence and of this memorandum, 
 as submitted to Parliament in " Commercial No. 16 (1886), Part I," 
 and " Commercial No. 16 (1886), Part II," and I especially commend 
 to your notice Mr. Bryce's remarks on the proposition to appoint a 
 commercial attache to eA^ery foreign capital where Her Majesty is 
 represented in the three paragraphs contained on pages 12 and 13 
 of Part II.« 
 
 o Note by Department of State. — The paragraphs referred to are the fol- 
 lowing : 
 
 " Still more weight has been laid upon the suggestion that there should be 
 added to the diplomatic service a new class of persons specially trained for 
 and charged with the duty of promoting British commercial interests. It was 
 even proposed in the House of (Commons last session that a commercial attache 
 should be appointed at every foreign capital where Her Majesty is represented. 
 Not to speak of the expense which this would involve, it may be doubted 
 whether a commercial attache would at most capitals find enough work to 
 occupy him, or whether, by any exertions he might put forth, he could render 
 much further help to British manufacturers and merchants than they now 
 obtain through the press and private channels of information. His presence 
 would be an excuse for the neglect of commercial affairs by the rest of the 
 embassy ; _ there would be little promotion for him ; nor would it be easy to 
 secure, except by a large salary, capable men for a post so much out of the 
 line of the regular service. Only a person of large commercial knowledge, 
 judgment, and experience would be worth having, and such a person would be 
 almost certain to prefer a private commercial career to the prospect which 
 this special branch of diplomacy would hold out. If such a class of officials 
 are needed, it is not necessarily in- capitals that they would be most service- 
 able ; but the view that they are generally needed seems, anyhow, to rest on 
 a wholly exaggerated estimate of the services which diplomatic representatives 
 can render to private traders. 
 
 " More may be hoped from stimulating the interest of our present diplomatic 
 and consular officers in commercial affairs and from giving them both a 
 stronger motive and better facilities for activity in this department of their 
 duties. There will always be among our diplomatists some men with a special 
 turn for mastering commercial subjects. Such men ought to be encouraged to 
 prosecute inquiries into these subjects and be selected, by preference, for posts 
 where proficiency in them was likely to be valuable. As regards the consular 
 branch, even if it be not turned into a regular service similar to the diplomatic, 
 a question too large to be discussed here, something more than has yet been 
 attempted might be done to develop its aptitudes in this direction. Special 
 regard might be had in the appointment of consuls to their capacity for com 
 mercial work. Opportunities might be given to consuls of obtaining the sort 
 of knowledge which would help them. as. for instance, by extending their 
 acquaintance with mercantile law and the methods of commerce, or by visiting 
 some of the chief seats of British manufacturing industry. Promotion to a 
 higher post might be influenced by the tact and zeal a consul had shown in 
 helping English trade and by the mastery of commercial questions displayed 
 in his reports. He should be encouraged to communicate more frequently 
 with the foreign office on these topics, and, similarly, the commercial depart- 
 ment of the office might become to a larger extent than at present the means 
 of conveying to our representatives the wishes and inquiries of the mercantile 
 community at home. It is not easy to specify the precise forms which this 
 kind of intercommunication would take, nor would it be prudent to anticipate 
 large new results from it. All I suggest is that more might be done than is 
 now done to focus, by means of the foreign office, the ideas and desires of 
 
86 PEOMOTION OF TRADE INTERESTS. 
 
 In a subsequent letter addressed by Mr. Bryce to chambers of com- 
 merce and commercial associations of the United Kingdom, be sum- 
 marized the suggestions which had been received and the results of 
 the consideration of them by the foreign office, a copy of which will 
 be found in Part II. In this letter the particular subject of commer- 
 cial attaches is thus disposed of : , 
 
 14. That commercial attaches he appointed to embassies and legations. — This 
 suggestion was fully discussed in a debate in the House of Commons last session. 
 Its adoption would involve considerable expense, and until more powerful 
 reasons can be deduced on behalf of such a proposal, the secretary of state can 
 not pronounce in its favor. 
 
 Afterwards, in 1897, under Lord Salisbury's government, there was 
 a good deal more correspondence on the general subject, which ap- 
 pears in Commercial, No. 5 (1897), herewith inclosed, and on page 
 20 there is inserted the reply of the under secretary of state for 
 foreign affairs in the House of Commons to a question asked in the 
 House, showing the appointment of commercial attaches for Germany 
 and for Spain and Portugal, and the reorganization of tlie-commercial 
 attacheships at Paris and in Russia and western Asia, and on page 
 28, under date of March 20, 1897, the fact is stated of- the revival of 
 the post of commercial attache at Constantinople and the reasons 
 therefor. 
 
 After a perusal and careful consideration of all the information and 
 matter herewith submitted, I am unable to see that either the ap- 
 pointment of a commercial attache in this embassy or the adoption 
 here of any other of the changes suggested in your circular of July 
 29 would tend to advance the interests of American trade in Great 
 Britain. The transmission through the embassy to consular officers 
 in this country of instructions to the Department of State for particu- 
 
 those who in England are employed in foreign trade and to radiate, so to speak, 
 these ideas from home over all those places wherein help is sought or whence 
 information is required. 
 
 " It does not, however, follow that the notion which lies at the bottom of the 
 proposal to appoint commercial attaches is &n unfruitful one. We, in England, 
 have much to learn from other countries, not only as respects the methods by 
 which they conduct their industries and their commerce, but also as regards 
 their legislation, the condition of the masses of their people, the various means 
 by which they deal with those social and educational problems which confront 
 all great modern states. Any one who has been accustomed to travel on the 
 continent of Europe or in North America is daily struck by the number of points 
 in which the experience of other countries throws light on our difficulties — 
 sometimes in the way of suggestion, sometimes in that of warning — and is led 
 to desire that a more constant and systematic means existed than we now pos- 
 sess of obtaining and rendering available, for the benefit of Britain and her 
 colonies, the results of that experience. Of late years much has been done to 
 procure such data, both by sending out occasional commissioners to inquire on 
 specific subjects, and by requiring special reports from Her Majesty's representa- 
 tives in foreign countries. We have a commercial attache 1 at Paris, whose re- 
 ports on trade and industrial questions are excellent, and who should be fre- 
 quently instructed to report on these questions as they arise in different parts 
 of France. But our diplomatic representatives (even supposing that they 
 could quit their posts to travel when required) are not always qualified by 
 their knowledge, by their literary skill, or by the possession of a keenly ob- 
 servant mind, to obtain the right sort of information, or to present it in ef- 
 fective form. There would be ample occupation for two or three men of 
 exceptional aptitude in going from place to place to report upon subjects be- 
 longing to what may be called the realm of economic and social progress. One 
 might be kept busy in the United States, where the diversity of laws and the 
 continual development of new branches of industry furnishes an almost bound- 
 
PROMOTION OF TRADE INTERESTS. 87 
 
 lar inquiries and of the answers to such instructions would appear 
 to me to be a work of supererogation in this particular jurisdiction. 
 In respect to particular inquiries which ma}^ from time to time be 
 sent by the Department of State to consular officers in Great Britain, 
 the sources of our information in London are equally open to the con- 
 sular officers, who are presumably much better informed than we are 
 on trade questions, and the embassy would not be likely to have any 
 special knowledge which would facilitate the inquiry or help to make 
 it more comprehensive or more exhaustive. 
 
 I do not think that any consular officers of the United States 
 now in Great Britain, or who are likely to be appointed to serve here, 
 would embody in any reports to the State Department matter likely 
 to give offense or to cause the ambassador embarrassment in his diplo- 
 matic capacity, and no such instance has come to my knowledge in 
 the past. If such a thing were possible in the future, the right and 
 power of revision, amendment, or suppression reserved to the Depart- 
 ment of State would be ample protection. 
 
 I think also that such supervision and power of revision, correc- 
 tion, and criticising, if placed in the hands of the embassy, would 
 inevitably lead to friction and greatly hamper the independence and 
 initiative of the consular officers, and lead them to be much less 
 thorough in their work. Their appreciation of the importance of 
 the duties intrusted to them consists largely in their constant sense 
 of direct responsibility to your Department, without any dependence 
 upon or intervention of the embassy; and as to errors of fact or judg- 
 ment in their reports, it seems to me that these, if they occur, can be 
 dealt with to better advantage, and with greater regard to uni- 
 formity, by that bureau of the State Department which has charge 
 of commercial matters than by the ambassador. 
 
 less field for instructive inquiry : two more in the continent of Europe, with 
 most of whose states we have frequent negotiations on commercial questions in 
 Avhich a knowledge of their commercial condition becomes important. Although 
 commerce and manufactures would afford the most frequent occasions for re- 
 ports, one might suggest a great number of other topics to which the inquiries 
 of such roving commissioners might be from time to time directed." 
 
 On page 14, Mr. Bryce thus summarizes his conclusions : 
 
 " I may conclude by recapitulating briefly the conclusions to which the com- 
 munications received by the foreign office and the foregoing examination of their 
 contents seem to point. 
 
 " The foreign office may seek to continue to be itself useful, and to utilize the 
 services of those who act under its instructions abroad in the following direc- 
 tions : 
 
 " Increased activity by diplomatists and consuls in affording information 
 and help to Englishmen seeking to do business abroad. 
 
 "Action (firm but cautious) by diplomatists in remote countries in counter- 
 acting the pressure used by the representatives of other states to push the mer- 
 cantile interests of their countrymen. 
 
 " More precise definition of respective duties of diplomatists and consuls in 
 procuring information. 
 
 " Prompter transmission of current commercial news from abroad. 
 
 " More regular transmission of annual reports. 
 
 " Better arrangement and prompter publication of reports. 
 
 " Publication in a special journal of current commercial foreign news. 
 
 " Sending home of samples of goods and foreign products for exhibition in 
 commercial museums (when established) or otherwise. - 
 
 " Greater encouragement to members of diplomatic and consular services to 
 master commercial questions, and better facilities therefor. 
 
 " Appointment of two or three qualified persons to be sent abroad to report 
 upon commercial and industrial questions of immediate interest." 
 
5b PEOMOTION OF TEADE INTEEESTS. 
 
 It follows, therefore, that in my opinion better results will be 
 obtained in the growing work of equipping our manufacturers and 
 exporters for effective competition in the world's commerce by keep- 
 ing the two services distinct, as they have heretofore been, and hold- 
 ing each to a strict accountability for the discharge of its own proper 
 functions and duties. 
 
 The second consideration set forth in the circular of July 29, viz r 
 the limitations of the consular service in its lack of diplomatic status 
 in obtaining official information at first hand, certainly has no ap- 
 plication to consular officers within this jurisdiction. They have 
 always obtained all the official information they required without 
 our intervention. 
 
 Of course it is possible that such a chance might happen as that 
 official information which they desire should be refused to them by 
 some public office by reason of their want of diplomatic capacity. 
 But as it never has happened hitherto, will it not be quite safe to rely 
 upon the known readiness of the ambassador to assist in such a rare 
 case when called upon rather than to make a radical change in a 
 system which has heretofore worked well ? 
 
 But I am far from thinking that the embassies and legations, and 
 this embassy in particular, can not, on proper occasions, supplement 
 the work of the consular service in promoting American trade in its 
 ever-growing competition with the manufacturers and merchants of 
 other nations in the markets of the world. Past experience has shown 
 that the embassy can be made useful in examining and reporting 
 upon special subjects of national and international interest, and many 
 large questions involving our commercial interests will from time to 
 time arise, in the investigation of which the embassy will always be 
 ready to render its best service. 
 
 Joseph H. Choate. 
 
 Inclosures : a Parliamentary publications. — 1, Commercial No. 16 
 (1886), Part I; 2, Commercial No. 16 (1886), Part II; 3, Commer- 
 cial No. 5 (1897). 
 
 Supplementary. 
 
 American Embassy, 
 London, November 29, 1904. 
 With reference to my dispatch, No. 1467, of the 19th instant, rela- 
 tive to the promotion of trade interests, I have the honor to state that 
 Sir Henry Austin Lee, commercial attache to the British embassy at 
 Paris, has been recently given the rank of councilor of embassy, which 
 confirms the suggestion contained in my report above mentioned — 
 that as mere attaches without higher diplomatic standing these 
 commercial attaches were not found so advantageous as had been 
 expected. 
 
 Joseph H. Choate. 
 
 a Filed in Department of State. 
 
PROMOTION OF TRADE INTERESTS. 89 
 
 Opinions of Consul-General. 
 
 LONDON. 
 
 I have the honor to report upon circular " Promotion of trade in- 
 terests " as follows, limiting my remarks to conditions in the United 
 Kingdom of Great Britain and Ireland : 
 
 First. The relations between the American embassy and the Ameri- 
 can consulate-general here are now, and I am informed have been al- 
 ways in the past, most cordial and friendly. 
 
 Secondly. I know of no information of a public nature that would 
 be of interest to trade or commerce that can not be had promptly by 
 the consular service. All information with reference to shipping, 
 trade, commerce, manufactures, etc., that is published is put on sale 
 promptly, and I am quite of the opinion that any diplomatic officer 
 who put himself in the attitude of seeking to get information in the 
 shape of advance sheets, or advance reports, to give his own govern- 
 ment or people ahead of the regular official publication would soon 
 lose more in standing than he would gain. The consul comes in con- 
 tact with the class of men who are interested in developing trade and 
 commerce — the men who cause the wheels of industry to go round ; 
 the embassy does not. The embassy does not have the opportunity to 
 meet these men, and would not meet them unless specially sent for. 
 On the other hand, the business men, practically representing all 
 avenues or channels of trade and commerce, come to the consulates, 
 and the consuls do not hesitate to inquire into business and business 
 methods. In doing so they are in no danger of disturbing diplomatic 
 relations between the governments. 
 
 Possibly conditions are different here from those in other countries, 
 but I can not imagine a condition arising here or in this jurisdiction 
 where legitimate information was asked for about trade and com- 
 merce that the consul in the district could not furnish ; and as for this 
 consulate-general, situated at the capital of the United Kingdom, the 
 various officials have been to me most courteous and obliging at all 
 times, and as they have been to me, so I am informed, they have been 
 to my predecessors. 
 
 I shall take the liberty of enlarging upon the scope of your inquiry, 
 being of the opinion that to understand the situation thoroughly con- 
 ditions should be stated plainly. I feel somewhat alone in making 
 this kind of report, having seen the unanimity with which the consuls 
 report approval of the proposed new departure; and yet, so far. as I 
 can find on inquiry, no one has had occasion to appeal to the embassy 
 for information. I can see no good to come from it. In fact, I can 
 only see a duplication of work — facts, figures, statistics, conditions 
 of trade and commerce that must be ascertained, compiled, and pre- 
 sented in American shape. To do this means work, if done well. 
 For it to be done again by the embassy means more work, and unless 
 done thoroughly and by competent men, it is worse than not being 
 done at all. It divides the responsibility. I sent you recently one 
 report of 143 pages of carefully compiled statistics pertaining to in- 
 ternational trade and commerce. I can not see why an ambassador 
 should be burdened with the task of going into this kind of work. 
 No ambassador would do it ; and if the responsibility as to the accu- 
 racy were turned over to the embassy, naturally the ambassador 
 would be charged with and held to account for inaccuracies. 
 
90 PROMOTION OF TRADE INTERESTS. 
 
 Further, is the ambassador better equipped by reason of his posi- 
 tion or is the embassy better fitted to deal with the many details that 
 come within the duties of consuls? The ambassador has four secre- 
 taries — most excellent and accomplished gentlemen socially and diplo- 
 matically, but none of them with the practical experience or training 
 in manufacturing, trade, or commerce which would qualify them to 
 go into or work up the details of examining, correcting, or testing the 
 accuracy of or approving or disapproving the many reports of the 
 many consuls of this United Kingdom that are prepared and for- 
 warded. 
 
 With this statement of existing equipment, we come down to clerks 
 at the embassy, and I am not prepared to believe or admit that they 
 are as competent to supervise the reports of the various consuls as the 
 consuls who make and prepare these reports and prepare them in a 
 manner to be understood and meet the wants of the men engaged in 
 developing and extending trade and commerce of the United States. 
 
 Nearly all of the American consuls in the United Kingdom are edu- 
 cated men, authors and writers on economic questions. They are 
 mostly newspaper men, trained in gathering news — men who know 
 news when they hear it and a new thing when they see it. These con- 
 suls are men of high character and of good habits, I think, without ex- 
 ception, and especially qualified and well fitted for the duties and 
 work assigned them. I know they are better adapted and better 
 equipped to render valuable service to our country in this class of 
 detail work than is the embassy with its present excellent but limited 
 force, because they come into personal contact or touch with the men 
 of trade and commerce in their respective districts. The embassy 
 does not come into touch with this class of people, and it is better for 
 the diplomatic service that it does not. As it is, the embassy — the 
 diplomatic service — is not held responsible for the many amwances 
 that are disposed of by the consular service in the administration of 
 the tariff and customs rules or the many regulations necessary to 
 direct and systematize international trade. 
 
 I might add that other nations, and I know this from their repre- 
 sentatives, realize that the American consular service is the best of 
 any nation. Of course it is not perfect ; it can be improved in many 
 ways, and the present suggestion would aid by adding a considerable 
 force to supervise at the embassy the work done by the consuls. But 
 I add, without request, do not loAver the dignity of your diplomatic 
 service by tangling it up with the burdens and jealousies of trade and 
 tradesmen without at least some promise of compensating benefits. 
 
 If I may be permitted to suggest, the place to supervise and edit 
 the consular reports is Washington. The right man there, to call for 
 data such as trade and industry in America need, and to present the 
 information in an intelligent and comprehensive form — conditions 
 abroad compared with conditions in America — will produce better 
 results than a cursory supervision abroad. 
 
 H. Clay Evans, Consul- General. 
 Loxdox, November SO. 190 '4. 
 
 
PROMOTION OF TRADE INTERESTS. 91 
 
 Opinions of Consular Officers. 
 
 BELFAST. 
 
 In compliance with circular, "Promotion of trade interests," _ I 
 have the honor to report that, in my judgment, it would greatly facil- 
 itate the preparation of reports * if instructions were transmitted 
 through the diplomatic officers, provided it were practicable for such 
 officers to attend to the matter, and make notations indicating prob- 
 able sources of information, such as statistics or other valuable data 
 which it is sometimes difficult for consular officers to obtain. Of 
 course this would only apply to special, comprehensive reports, as 
 consular officers can generally obtain information for local reports 
 after investigation in their own districts. As far as this office is con- 
 cerned, there is at present no cooperation between the diplomatic 
 and consular officers in making any reports, but it would seem that if 
 such cooperation were sanctioned by the Department and established 
 as a means of obtaining commercial information, it would be mutu- 
 ally beneficial to both services. 
 
 Edward Harvey, 
 Vice and Deputy Consul. 
 
 Belfast, September 22, 190 ] Jj.. 
 
 BRADFORD. 
 
 Replying to your circular, " Promotion of trade interests," I would 
 say that, taking into consideration all nations, I have no very definite 
 opinion as to the proposed plan of coordination and improvement of 
 existing facilities for collection of commercial intelligence, but, so 
 far as England is concerned, and especially the Bradford district, I 
 can not see how the suggested improvements or changes would be of 
 substantial benefit. The commercial conditions in England, as 
 regards the introduction of American goods, it seems to me, are fairly 
 well understood in the United States. At present all needed or 
 useful information is usually obtainable by means of communication 
 with the consuls in different parts of England. 
 
 To get information asked for by American manufacturers or mer- 
 chants I have quite generally found to be practicable — in fact, I 
 feel that manufacturers, officials, and others have been very obliging 
 in regard to it. 
 
 It strikes me, so far as England is concerned, that to make con- 
 sular officers more especially agents for extending the trade of the 
 United States would hinder rather than help their efficiency, as I 
 should fear it would lessen the regard the English people now have 
 for them. 
 
 I think if the Government of the United States is to extend or 
 enlarge the scope of its efforts to further our trade in foreign coun- 
 tries that, so far as this country is concerned, it would be better to 
 have a commercial agent charged especially with the duty of collect- 
 ing such information as would be of special value to American man- 
 ufacturers and tradesmen. I have not attempted to answer every 
 suggestion or inquiry in your circular for the reason that I have not 
 
92 PROMOTION OF TRADE INTERESTS. 
 
 the information or the ready means of getting it to do so intelligently, 
 but have given simply the impressions that have come to my mind, 
 and feel that others who are more competent will give } T ou the 
 fuller information required. 
 
 Erasttjs S. Day, Consul. 
 Bradford, September 28, 190 i. 
 
 BRISTOL. 
 
 To the Department's circular, "Promotion of trade interests," I 
 have the honor to reply as follows: 
 
 The circular states that the extension of commerce has become one 
 of the chief aims of world diplomacy, and that suggestions are 
 desired which may tend to systematize and improve existing facilities 
 for collecting commercial intelligence. 
 
 Such intelligence naturally falls, broadly speaking, into one of 
 two classes. 
 
 One is analytical, statistical, general, deals with figures of imports, 
 exports, consumption, etc. and draws deductions from completed 
 official or other reports. It surveys large areas, treats of the trade 
 of countries and ports as a whole, makes inferences from completed 
 tables as to the movements of a particular industry — deals, in fact, 
 with the past, even though that past comprise a period which ended 
 the day before. This deductive branch of statistical science is devel- 
 oped generally in the United States to a point of completeness and 
 accuracy which has won commendation from most nations. 
 
 The other bears that relation to the deductive branch which report- 
 ing bears to editing. It deals with isolated facts as they are 
 observed at the moment. It can not generalize. It does not have 
 before it figures which justify the statement that a country has 
 increased or decreased its exports of a particular commodity by such 
 a percentage in a given time. It can not exhibit general tendencies 
 or trace the ebb and flow of the streams of commerce. It obtains its 
 knowledge at first hand, from observation of the workings of a par- 
 ticular commercial enterprise. 
 
 Its methods are the opposite of those followed in the first. It 
 requires a different ability, a different order of man, a different life 
 training. Instead of stating, after a study of statistics, that imports 
 of wire nails from the United States fell off 5 per cent and that im- 
 ports of German wire nails increased by 10 per cent during the 
 previous year, it sees the alteration while it is going on. It inquires 
 into the causes. It attempts to reach the shipper with information 
 while the conditions remain unchanged. 
 
 The demand for this kind of information has become so insistent 
 that it has crystallized into a new conception of the consul and his 
 duties. It is the third change within a hundred years. A century 
 ago, he was regarded as- concerned with shipping and crews. Fifty 
 years later, owing to the introduction of the invoice system, he was 
 transformed, in the popular mind, into an advance picket of the cus- 
 toms. Now he is regarded as the pioneer of trade, and his other 
 duties, performed in the privacy of his office, attracting little pub- 
 licity, appear to be almost forgotten b}^ the people. 
 
 
PROMOTION OF TRADE INTERESTS. 93 
 
 It is obvious that I can not have the wider experience which my 
 colleagues in larger ports and greater world centers must have, but 
 I receive a considerable number of letters which show me that an 
 increasing number of our manufacturers are seeking intelligent 
 direction in the search for a foreign market for their particular 
 commodity. Some of these would-be shippers, one may read between 
 the lines, are not manufacturers on so large a scale as will justify a 
 costly foreign campaign, or it may be that the commodity which they 
 manufacture does not admit of a profit which will justify elaborate 
 exploitation in a new market. It may happen, also, that a manufac- 
 turer can afford an organized attempt on his own part, but that he 
 seeks preliminary information. 
 
 This new demand for what is often somewhat loosely called " prac- 
 tical information " has been recognized by the Department and re- 
 sponded to by consuls. It may be thought advisable, however, while 
 the subject generally is under discussion to consider whether some 
 further special response to this rapidly developing popular demand 
 might not advantageously be given. 
 
 The suggestions of the circular are admirably conceived for effect- 
 ing excellent results. If they shall be carried out, repetition and 
 overlapping can be almost entirely eliminated. What is more im- 
 portant, the consular corps must necessarily receive stimulus and 
 encouragement from the forging of the proposed link with the diplo- 
 matic branch of the service. The improvement, however, will proba- 
 bly be most evident in connection with the collection of the scientific 
 and analytical kind of commercial information. I venture to sug- 
 gest one way of effecting an advance in supplying the other. 
 
 The Department refers to the matter of commercial attaches. Such 
 reports as I have seen of these attaches of various European gov- 
 ernments, admirable as they are, have dealt almost entirely with 
 statistics. Their work has been of great value in marking out the 
 channels of commerce and in noting the rise and fall of the tides of 
 trade. It is of a kind useful to a nation considering possible legis- 
 lation, or to a scientific statistician. It may be of advantage, no 
 doubt, to the individual exporter, but that is not its main design. 
 It will be admitted, I think, that commercial attaches have not been 
 appointed primarily for this purpose. 
 
 I respectfully submit the suggestion that the United States might 
 adopt the idea of the commercial attache, but considerably altered 
 to suit the changed conditions. England has, for a long time, enjoyed 
 a great export trade. The machinery for obtaining information 
 from private agents and correspondents has long existed. The testi- 
 mony of the great manufacturers and exporters given before a royal 
 commission, some years ago, was substantially unanimous in assert- 
 ing that practical, direct information about a particular industry 
 was not expected through government channels. But such is not the 
 view of our manufacturers in this period of transition into an export- 
 ing nation ; and there is the more justice in their attitude when we 
 remember the distance from markets. An Englishman could hardly 
 ask from his Government information which he himself could gain 
 in a journey of a few hours; but our exporters are thousands of miles 
 from European buyers. 
 
 It may be admitted, at once, that no government can do as much 
 for the individual merchant as he can do for himself ; and there will 
 
94 PROMOTION OF TRADE INTERESTS. 
 
 i 
 
 probably always be .in the future, as there have been in the past, a 
 few who will ask too much of a system and of those who are endeavor- 
 ing to carry it out. What can be done, however, and what can be 
 done at the present moment with peculiar effectiveness, is to provide 
 comprehensive, accurate, and minute surveys of special fields in par- 
 ticular countries; surveys which concern themselves with statistics 
 to just the same extent as would a broad-minded and able commer- 
 cial traveler. 
 
 It is this kind of man who might be, at this moment, it appears to 
 me, utilized with high advantage. 
 
 It would embarrass the inquiries of such a man to be attached to 
 an embassy or to a consulate-general. Instead of being attached to 
 a particular country, he would be accredited to a special branch of 
 commerce. His concern is with the people, the traders, the manu- 
 facturers of a nation, and not with its governmental departments. 
 
 If it be argued that it would be difficult to discriminate as to what 
 industries should receive such aid. I would answer that certain prin- 
 ciples could be laid down which would act almost automatically, and 
 would limit the number of agents required to a very small number. • 
 
 The great industries already firmly established, having already 
 their own channels of communication, their own representatives 
 abroad, do not need this kind of aid. This consideration eliminates 
 among others the leather business, which is in daily cable touch with 
 its correspondence all over the world; the petroleum industry; the 
 export trade in cotton, in cereals, and in provisions. On the other 
 hand, our manufacturers — to specify a few industries — of agricultural 
 implements, of vehicles, of improved types of gas and motor engines, 
 of paints, oils, and varnishes, of hardware, of furniture, are earnestly 
 seeking intelligent direction toward foreign markets. 
 
 I venture to think that the onus of proving its need of such official 
 aid should be laid on the industry itself. Half a dozen manufactur- 
 ing interests, selected on account of the capital engaged, of the num- 
 ber of men employed, and of the existence of an export trade, might 
 be informed that the Department was prepared, if these industries 
 established their need of such action, to procure for them a technical 
 and minute account of the conditions under which their respective 
 commodities are sold abroad, and an expert estimate of the possibili- 
 ties of their establishing or increasing^their business in certain speci- 
 fied countries. I venture to think that the information would be 
 received with high appreciation, and that earnest effort would be 
 made to profit by the offer. 
 
 The commercial representative who would be sent abroad under 
 such conditions would necessarily be an expert in the particular 
 industry on which he is to report. He would visit successively the 
 several countries to which he would be directed by the Department. 
 His reports would have an essential and minute accuracy, which can 
 characterize the work only of one possessing intimate and special 
 knowledge of the subject in hand. They would have more than a 
 momentary value — great as that might be. When he had surveyed 
 all likely fields, his volume would be a guide book of the world for 
 a particular industry, and would, for most countries, and in many 
 respects, be a standard of reference for years to come. 
 
 The above suggestions are respectfully submitted to the Depart- 
 ment in frank response to the instructions received, and with the 
 
PROMOTION OF TRADE INTERESTS- 95 
 
 full understanding that controlling reasons, of which I can not be 
 aware, may prevent favorable consideration of suggestions which are 
 the result of some years of observation and experience. 
 
 Lorin A. Lathrop, Consul. 
 Bristol, October 18, 1904. 
 
 CORK. 
 
 I have the honor to acknowledge the receipt of circular " Promotion 
 of trade interests." Having been asked to express my views on the 
 subject, I beg to say that the idea appears to me to be a good one, pro- 
 vided the diplomatic officers are willing to undertake the duties 
 mentioned. As far as any information within my district is con- 
 cerned, I have not had any difficulty in procuring anything desired, 
 either for my reports to the Department or for replies to the many 
 letters of inquiry received from the merchants and manufacturers 
 in America. I have found the business men in my district most 
 obliging and courteous when asked for information concerning their 
 business. 
 
 Daniel Swiney, Consul. 
 
 Cork, August 22, 1904. 
 
 EDINBURGH. 
 
 Complying with the circular request of August 4, for an expres- 
 sion of views on the plan set forth for promoting American trade 
 interests abroad, I beg, respectfully, to say that if the diplomatic 
 service can become a regular and active auxiliary in the work of 
 advancing our trade interests, without risk of embarrassment in the 
 exercise of its essential functions, highly beneficial results would, 
 in my opinion, flow from the systematic participation of our embas- 
 sies and legations on the lines marked out in efforts to furnish 
 American manufacturers and exporters with trade intelligence. 
 
 From my point of view, there seems little room for doubt that 
 cooperation between the diplomatic and consular services, if directed 
 only or mainly to inquiries relating to general commercial and 
 industrial conditions or certain phases of such conditions and to 
 the market for specified classes of goods in a country as a whole, and 
 similar broad questions, would greatly enhance the value of the con- 
 sular service as an instrument for the expansion of foreign trade. 
 The apparent advantages of such a system may be concisely stated: 
 
 1. A preliminary investigation by a commercial attache, or other 
 member of an embassy or legation, of the particular subject sub- 
 mitted to the embassy or legation by the Department of State. The 
 collection of official data and the formulation of inquiries based 
 thereon, addressed to consular officers, would probably give these 
 officers clear guidance to definite ends, enabling them to make com- 
 prehensive, well-digested, and satisfactory reports. 
 
 2. The comparative quickness of communication within a country 
 would make it practicable for a consular officer to obtain any sup- 
 plementary or special instruction he might require as to the nature 
 and scope of the report expected from his district, and for a diplo- 
 
96 PROMOTION OF TRADE INTERESTS. 
 
 matic representative to offer voluntary suggestions in re sufficient 
 data or inadequate reports. 
 
 3. Full and accurate statistical information could be procured at 
 the capital through the embassy or legation. 
 
 4. The annotations made by the diplomatic representative upon the 
 group of reports from consular officers should contain important facts, 
 opinions, and suggestions. 
 
 It seems to me that, in coordinating the two services for the special 
 object in view, it would be advisable to provide that all correspondence 
 between embassies or legations and consuls and commercial agents 
 should be conducted through consuls-general, under open cover, and 
 reports sent to the diplomatic representatives through consuls-general, 
 under open cover, thus (1) preventing friction and confusion, (2) 
 keeping consuls-general in full touch with the commercial work of 
 the consular officers under their respective jurisdictions, and (3) pre- 
 serving the line of demarcation between the diplomatic and consular 
 services. 
 
 Within the limitations indicated, I think that there is a wide field 
 for an extension of the usefullness of our embassies and legations in 
 developing the possibilities of the consular service as an aid to 
 American producers and exporters. 
 
 Rufus Fleming, Consul. 
 
 Edinburgh, September 1, 190 If. 
 
 DUBLIN. 
 
 In reply to the circular of * August 4, regarding the promotion of 
 trade interests, I have the honor to report that I think it would be a 
 mistake to have consular reports sent through our legations and em- 
 bassies if they were to be subject to modification or change by the 
 diplomatic officers. While I am sure that diplomatic officers would 
 only make or suggest changes in the reports when they felt sure of 
 their ground, I can not see how their opinions could possibly be en- 
 titled to as much weight as the opinion of a consular officer, based, as 
 the latter are, on his observation and experience in the district con- 
 cerning which he is reporting. 
 
 Where the information asked for can only be procured through the 
 courtesy of the government, it seems to me that the reports should 
 be made by the diplomatic officers. 
 
 I think our present system would be improved by the appointment 
 of commercial attaches, if they were given power to call on consular 
 officers at any time for information desired, and if the reports were 
 published without any indication as to their origin. Under our pres- 
 ent system, a consul's usefulness in obtaining information is often very 
 much restricted by his reputation for efficiency. I have often seen 
 widely read commercial papers advocating the furnishing of inaccu- 
 rate and misleading information to our consuls as a means of counter- 
 acting their " objectionable inquisitiveness." And this inquisitive- 
 ness is emphasized by the republication of the consul's reports in the 
 local newspapers in the consular district. If the reports were anony- 
 mous, they would escape notice in the consular districts, while the 
 Department's imprimatur would insure their receiving attention at 
 
PROMOTION OF TRADE INTERESTS. 97 
 
 home. Of course, the present system is more satisfactory to the 
 vanity of consuls, but I do not think it is necessary to consider that in 
 attempting- reforms. 
 
 A. Donn Piatt, Acting Consul. 
 Dublin, August 29, 1904. 
 
 DIXEEKMLINE. 
 
 In my experience here as consul in seeking information for reports, 
 special or otherwise, I have never had any difficulty in obtaining it 
 from local official sources. I have, in a few rare instances, however, 
 met with a point-blank refusal from private concerns to give any infor- 
 mation whatever relative to their trade that would be of value to 
 American competitors. In such instances, I have usually been obliged 
 to procure the information wanted through indirect channels. It 
 would probably be beyond the power of a diplomatic agent to aid 
 a consul in obtaining information from private houses which would 
 be refused to a consul on competitive grounds, except perhaps, to 
 suggest to a consul lacking in resource how to obtain the information 
 indirectly. 
 
 There is no doubt, in my opinion, that cooperation of diplomatic 
 representatives with consular officers would greatly increase the power 
 and facilitate the means of the consular service to obtain official in- 
 formation at first hands, especially in official centers of this country 
 and in all continental and eastern countries. In any circumstance, 
 it would strengthen the hand of a consul to have the embass} 7 or lega- 
 tion nearest his post prepared and equipped to cooperate with him, 
 when necessary, to procure information called for by the Department. 
 
 If the answers of consular officers to instructions from the Depart- 
 ment were to become subject to revision by diplomatic representatives, 
 the practice, when successfully established, would, to my mind, prove 
 a valuable help to consuls and greatly increase the efficiency of the 
 service. Of course, in order that a consul should know what value 
 was placed upon his efforts, he would require to be advised as to what 
 suggestions, corrections, additions, or eliminations were made by the 
 diplomatic agent, if any, and the final disposition of the matter by the 
 Department of State. 
 
 J. N. McCunx. Consul. 
 
 Dunfermline, October J, 190 If. 
 
 FALMOUTH. 
 
 I have the honor to acknowledge receipt of the circular of August 4, 
 regarding a plan for the coordination and improvement of the exist- 
 ing facilities for the collection of commercial intelligence and the pro- 
 motion of American trade interests, I have read the circular with 
 much interest, and would remark that many of the questions that I 
 receive from Washington are on matters of law and custom, which 
 are the same throughout the United Kingdom. I have long been of 
 
 H. Doc. 245, 58-3 7 
 
98 PROMOTION OF TRADE INTERESTS. 
 
 the opinion that these could best be answered from a center such as 
 London, and that the multiplication of consular reports on such sub- 
 jects was of no value. My district is so thinly populated and so 
 remote from the great distributing centers that I do not feel that my 
 experience justifies my expressing any further opinion. 
 
 Howard Fox, Consul- 
 Falmouth, August SO, 190Jf. 
 
 GLASGOW. 
 
 • 
 
 Complying with the request contained in circular of August 4 for 
 an expression of vieAvs on the suggested plan of a working agree- 
 ment between diplomatic and consular officers for obtaining commer- 
 cial intelligence, I have to say that I see no reason why it should not 
 be given a trial. The present system (if it can be dignified as a 
 system), while fruitful of good results, in my opinion is' capable of 
 improvement. There is something lacking. The annual reports of 
 consuls, as published in the Commercial Relations in accordance 
 with paragraph 592 of the Consular Regulations, contain so much that 
 is mere " filling " that the publication, mildly speaking, is unsatis- 
 factory, and its beneficial effect is not commensurate with the expense 
 involved in its compilation. Moreover, some things are published 
 which might be omitted with advantage to American interests. Re- 
 specting this statement, the fact becomes more apparent when the 
 varying conditions of countries are taken into consideration. A pub- 
 lication of a certain item of information, while perfectly harmless as 
 to one country or a group of countries, may, because of certain local 
 conditions, be very prejudicial as to some other country. A capable 
 censor in the country in which the report originates, familiar with 
 the peculiarities of local conditions, could suggest changes in such 
 reports that would eliminate objectionable features. It may be said 
 that the consuls themselves are in position to be the best judges of 
 what is proper, and this is true, but the consul can easily shift the 
 burden by leaving his superiors to edit his reports, after he has given 
 what he conceives to be the facts. His superiors, however, not being 
 in the country, are not in position wisely to determine what facts can 
 safety be made public. 
 
 I do not think the present system affords opportunity sufficient for 
 the superiors of the consuls, from time to time, to visit the individual 
 consulates. Personal contact where the work is done would be mutu- 
 ally beneficial, and lead, I have no doubt, to more efficient service. I 
 have been at this consulate seven } T ears, and with the exception of a 
 hurried call which I received from the late Consul-General Osborne, 
 three months after I was installed, I have not had a call from any of 
 my superior officers. It may be said that they have such confidence in 
 my capacity that their presence here is not deemed necessary. This 
 is indeed flattering, but it is not sufficient. If I am doing good work, 
 it would not interfere with it were my superiors, now and then, to 
 " drop in," satisfy themselves of the fact, and tell me so; and if I am 
 not doing as well as I ought, a timely visit from a chief might dis- 
 cover the defect and give a word of advice. Paragraph 13 of the 
 Regulations is not broad enough. The consul-general hesitates to 
 
PROMOTION OF TRADE INTERESTS. 99 
 
 make application for permission to go on what some hypercritical 
 person may style a mere u junketing '■ expedition at the cost of the 
 taxpayers, and so, unless ordered, he does not go. But still better 
 effect could be realized from inspections made by one of the Secreta- 
 ries of State. At least, the inspecting officer should have an official 
 rank superior to the consuls. I am using the word " inspection " in 
 the broader sense of best means to gain commercial intelligence. 
 
 The plan suggested in the circular, while not as comprehensive as 
 I would like to see tried, yet, it seems to me, has merit and should be 
 given a chance. 
 
 Samuel M. Taylor, Consul. 
 
 Glasgow, August 3J, 190 1^. 
 
 HULL. 
 
 I have the honor to acknowledge the receipt of a circular from the 
 State Department having for its subject the " Promotion of trade 
 interests " of America, and to that end proposing the cooperation of 
 the diplomatic corps with the consular service. The accompanying 
 circular asking an expression of views from consular officers has also 
 reached me. Before giving an answer to the questions asked, please 
 let me say : 
 
 The facts which have made the most decided impression upon me 
 during my brief time in the service are the want of a systematic and 
 comprehensive plan of consular work, the consequent loss of much 
 valuable time and labor, and the absence of a restraining force on con- 
 suls caused by the lack of a near-by authority. It should be explained 
 that I have been in the service less than a year, and that I came 
 directly from an office where strict discipline was enforced and con- 
 secutive work demanded. The change to a situation where the consul 
 is, to a large degree, master of his own time and methods is doubtless 
 one reason for this impression. A longer service might modify my 
 views somewhat in this respect. 
 
 Some of this lack of discipline in the consular service and a part of 
 the desultory methods of work prevalent have doubtless resulted from 
 the old plan of appointing consuls, when the service was used simply 
 as a political perquisite. The change for the better in this respect 
 has been marked, but there are still enough consuls of the old class in 
 office who are unable to recognize the altered spirit and who fail to 
 respond to the new demands to color the work of the service to an 
 appreciable degree. This is one cause of whatever lack of efficiency 
 has been noticed in the consular corps. Another, and a more potent 
 cause, perhaps, is the absence of near-by authority and the necessity 
 of leaving consuls largely to their own control and initiative. This 
 is an unavoidable result of the distance from Washington at which 
 consuls are placed, and the impossibility of the State Department 
 keeping these officials under constant and watchful supervision. It is 
 highly creditable to the consular corps that, under such conditions 
 and subjected to many temptations, so few of its members h#ve been 
 found untrustworthy. With a near-by authority to which consuls 
 would bG accountable, and which could also collect and disseminate 
 information, study the local industrial situation comprehensively, 
 
100 PROMOTION OF TRADE INTERESTS. 
 
 and aid with advice and direction, much could be done to add to the 
 efficiency and productiveness of the service. 
 
 A more direct and acknowledged connection with the diplomatic 
 corps would aid consuls themselves. It would add a new dignity and 
 importance to the office and so increase its influence, I regret to say 
 that there is a depreciatory opinion widely prevalent in America con- 
 cerning consuls. The general impression appears to be that these 
 officials are about on the level of a hotel call boy for whom anyone 
 can whistle when their services are needed, and to whom a nickel can 
 be tossed when the errand is performed. I suppose I have received 
 during my eleven months" service 500 or 600 letters from business 
 firms and manufacturers in America asking for information on all 
 sorts of subjects. To get the information required has often taken 
 much time, and on occasions some expense; but the work has been 
 done ungrudgingly. Every one of these letters has been answered 
 promptly. But out of these* 500 or 600 correspondents only two have 
 had the courtesy to acknoAvledge the receipt of my reply and thank 
 me for the service. Perhaps if these people knew that the consular 
 service was a cooperative branch of the diplomatic corps, they would 
 be more thoughtful. 
 
 Some of the same opinion of consuls, though to a less degree, exists 
 in England, and I suppose in other European countries. Here it is 
 largely the result of the moderate salaries paid consuls, their conse- 
 quent inability to attach much importance to their office, and their 
 apparent nonrecognition by the diplomatic representative from their 
 own country. A more generous treatment by the home Government 
 and a frank recognition by and cordial cooperation with the diplo- 
 matic corps would add sensibly to the standing and influence of 
 American consuls abroad. 
 
 Whether the diplomatic corps would be the center best adapted 
 for placing such authority over consuls as would be necessary to 
 insure cooperation would depend largely upon the kind of man 
 chosen for the office and attached to each embassy. If the choice fell 
 upon one who never saw the inside of a factory and who knew noth- 
 ing of the fierce competition inseparable from modern industrial 
 life, whose chief recommendation was his ability to look well on 
 parade and " shake his heels in a ballroom," I do not think that the 
 result would be encouraging. But if a practical man, with a knowl- 
 edge of industrial conditions in his own country and in the country 
 to which he may be sent, and having the faculty to grasp the situa- 
 tion and the tact to work with consuls appointed, I am inclined to 
 believe that good results would follow.' 
 
 Consuls are naturally jealous of their authority in their respective 
 districts and sometimes impatient of outside interference, and at 
 first there might be friction between them and the diplomatic repre- 
 sentative and a disinclination to work in harmoiry; but this disposi- 
 tion would quickly disappear when the system was once in working- 
 order and the consular corps inspired with the new spirit of things. 
 
 I should conclude, on the whole, that a closer union and a more 
 active cooperation between the diplomatic and consular corps would 
 increase the usefulness of both services and add sensibly to the dig- 
 nity and importance of the consul. 
 
 Walter C. Hamm. 
 
 Hull, August 25. 1904. 
 
PROMOTION OF TRADE INTERESTS.. 101 
 
 LEEDS. 
 
 
 I have to acknowledge the receipt of an instruction from the 
 Department of State in regard to a plan for the coordination and 
 improvement of existing facilities for the collection of commercial 
 intelligence and the promotion of American trade interests abroad. 
 The Department desiring an expression from the consular officers of 
 their views thereupon, I beg to express the belief that the scheme is 
 one fraught with promise in effectively opening the way to organ- 
 ized and systematic action that would lead to a great advance in 
 American trade interests abroad. 
 
 Lewis Dexter, Consul. 
 
 Leeds, August 31. 1904. 
 
 LIVERPOOL. 
 
 I have the honor to make report in response to circular instruction 
 of the Department dated August 4, 1904, inclosing a circular to the 
 American diplomatic officers in regard to the promotion of trade 
 interests. 
 
 Responding to the desire of the Department for an expression of 
 my views upon this subject, I beg to saj^: 
 
 It has long been my opinion that the foreign trade interests of the 
 United States would be subserved by the appointment of commercial 
 agents, and particularly by the appointment of a commercial attache 
 of the American embassy at each of the principal commercial coun- 
 tries of the world. Speaking with the candor which I am sure the 
 Department desires, I would say that I doLibt whether any satisfac- 
 tory arrangement can be made by which the ambassador or minister 
 himself should undertake commercial duties, excepting in so far as 
 commercial matters may relate to diplomacy. In this country, and I 
 believe in all the Old-World countries, there would, I think, be a preju- 
 dice against a diplomatic officer so acting; but I think the difficulty 
 could be obviated by having a commercial attache connected with the 
 embassy. I remember, some time ago, at a public function of an his- 
 toric trade guild in London, meeting a commercial attache of the Ger- 
 man embassy. He told me that the German embassy was the only 
 one which had a commercial attache connected with it. He was a 
 scientific man, and he told me that at that particular time he was 
 making inquiries as to the production of certain metal manufactures, 
 particularly those of steel and iron. 
 
 Without a doubt, consuls are often unable to procure valuable in- 
 formation for the reason that they have not any diplomatic status. 
 A commercial attache, connected with the embassy, could study the 
 general conditions of the trade of the country to which he was accred- 
 ited, and could make valuable suggestions (through the State Depart- 
 ment, if necessary) to consuls at particular posts, and. could indicate 
 valuable lines of inquiries. For instance, Liverpool is, I believe, the 
 port of entrance for two-thirds of the agricultural and farming and 
 dairy exports of the United States to Great Britain: but London is 
 the great seat of commerce of this country, and a commercial attache 
 would be far better able to watch the developments of this trade than 
 the consul at Liverpool is able to do. 
 
 One great trouble with our consular service with regard to making 
 reports upon trade matters is that the routine work of consuls is in- 
 
102 .PROMOTION OF TRADE INTERESTS. 
 
 creasing all the time, and a consul really has very little time to so mix 
 in the outside business world around him as to properly inform him- 
 self upon commercial matters. American citizens visiting this coun- 
 try expect the consul to be in his office all day, and grumble if they 
 do not see him. A commercial attache would be free from the con- 
 fining requirements which pertain to a consul, and for that reason 
 would be much better fitted to make the necessary inquiries upon 
 which reports are based. , 
 
 James Boyle, Consul. 
 Liverpool, August 30, 1904. 
 
 MANCHESTER. 
 
 In reply to the Department's circular, *' Promotion of trade inter- 
 ests,'' I would beg to say that during the twelve years of my consular 
 service I have very rarely found any necessity of appealing to 
 embassies for assistance in procuring information. In the few cases 
 where such help was needed, it was given promptly. 
 
 The appointment of commercial attaches by foreign powers has 
 been, so far as I have seen, more to make up for the lack of proper 
 reports from a consular service,- which has not been composed of men 
 who were fitted to understand the commercial conditions at home or 
 abroad, as has been the case with most European nations. 
 
 I would suggest that circulars, which affect broadly the whole 
 country, and concerning which data may be in possession of central 
 government boards or departments, like ours in Washington, could 
 be sent to embassies, as at present constituted, as well as to consuls. 
 The result would be the fullest possible discussion of the subject, 
 and. incidentally, the practice could be made use of to train the 
 younger secretaries in work which would not only better fit them for 
 diplomatic services abroad, but also for their several places as Ameri- 
 can citizens at home, 
 
 The tendency to any centralization of control, apart from that of 
 the State Department, would, in my opinion, be detrimental to the 
 best work of either diplomatic or consular service. 
 
 Under these circumstances, a commercial attache would seem to me 
 to be an extra piece of Government machinery, which would be of 
 little real service, 
 
 Wm. Harrison Bradley. 
 
 Manchester, September 9, 1904- 
 
 NEWCASTLE ON TYNE. 
 
 I have the honor to acknowledge receipt of circular in regard to 
 the promotion of American trade interests, and in reply would say 
 that, in my opinion, it would greatly facilitate the trade inquiries 
 which the Department has in view if such inquiries passed through 
 some head who could obtain general information from such sources 
 as those indicated in the circular and could collect from the con- 
 sular officers such information as is available in their districts. 
 
 It is manifest that it is absolutely impossible for consular officers to 
 obtain the information which is asked for in many of the inquiries, 
 as there are no official data in their districts to go upon, but all that 
 
PROMOTION OF TRADE INTERESTS. 103 
 
 is desired of a general character could be obtained without any 
 difficulty from a central authority, and the consular officers would, 
 of course, always be anxious to supply any supplementary informa- 
 tion that might be accessible in their particular neighborhoods. 
 
 As a rule we have always found the local authorities very courteous 
 and obliging in supplying information of a statistical nature, and 
 regarding inquiries of a more private kind, I have no doubt that, if the 
 request was backed by a central authority, the required information 
 would be more readilv obtained. 
 
 Newcastle on Tyne. September 28, 1901^. 
 
 H. Nixon, Consul. 
 
 NOTTINGHAM. 
 
 I have the honor to acknowledge the receipt of circular, Ci Promo- 
 tion of trade interests, " wherein consular officers are directed to 
 express their views on the subject treated of. 
 
 In my personal consular experience, there has never been an occa- 
 sion when the aid of a diplomatic officer would have secured commer- 
 cial or industrial information which I could not otherwise obtain. I 
 can readily perceive, however, that such would probably not be the 
 experience of a consul or consul-general in a capital city when 
 required to obtain unpublished statistics or other information from 
 the general government. 
 
 In this country practically everything in the way of general com- 
 mercial and industrial information is printed in the " blue book " of 
 the Parliamentary Paper, which may be had of the publishers by 
 anybody for a few pence or shillings. Therefore, according to my 
 experience, a consul at an interior post like Nottingham has no occa- 
 sion to apply for commercial or industrial information to any public 
 officials, except county and city, and these are uniformly courteous 
 and readily give all the information desired. 
 
 The transmission through diplomatic officers of instructions to 
 consular officers in particular cases, and the return through the same 
 channel of the consular reports, pursuant to such instructions, with 
 suggestions and annotations by the diplomatic officers, would, in my 
 judgment, often be helpful to a consul, as well as to his reports. It 
 is possible that some consuls might be disposed to resent this propo- 
 sition; but the only serious objection, it seems to me, v\ T ould be the 
 unavoidable delay caused by this mode of transmission in the receipt 
 by the Department of State of reports wherein time was an important 
 element. 
 
 In the promotion of American trade interests otherwise than by 
 assisting in the collection of information for reports, diplomatic offi- 
 cers could aid consuls very materially by suggestions w T hich might not 
 have occurred to the latter. 
 
 Broadly considered, the plan outlined in the circular to American 
 diplomatic officers would, in the opinion of this consulate, produce 
 good results more than counterbalancing all apparent objections to it. 
 
 Frank W. Mahin, Consul. 
 Nottingham, September .?, 190 %. 
 
104 PROMOTION OF TRADE INTERESTS 
 
 PLY3IOXTH. 
 
 The system by which consular officers collect information as to busi- 
 ness conditions in the countries to which they are accredited is, under 
 present conditions, far from efficient. This fact is generally recognized 
 by consuls who have taken the proper interest in promoting Ameri- 
 can commercial interest- in the United Kingdom. England is. by 
 far. the greatest purchaser of American goods and produce, and the 
 business interests existing between the two countries are so elaborate, 
 complex, and constantly widening that the methods now employed in 
 the collection of industrial data are not sufficiently thorough and sys- 
 tematic. The developments of the world's trade demand the reorgan- 
 ization of our service. Under a new form of routine, it could work 
 with renewed energy and better results. The utility of its reports 
 would be greatly increased by a closer and more active cooperation of 
 the diplomatic and consular service, as suggested in the Department 
 circular. 
 
 To this end. I would respectfully suggest that each of the im- 
 portant embassies there be accredited a commercial attache whose 
 sole duty it should be to watch and further the commercial interests 
 of America. Through him all consular officers should make their 
 reports, which should be confined to their respective districts. Those 
 matters which apply to the country at large should be covered by the 
 reports of the attache himself. This would prevent duplicate matter 
 being prepared at unnecessary expense and labor. It would also 
 greatly reduce the editorial work of the Department at home. The 
 present lack of diplomatic status would in this manner be supplied. 
 Such an innovation would be of great service to America. 
 
 Jos. G. Stephens. Consul. 
 
 SHEFFIELD. 
 
 In compliance with circular of August -k I have the honor to sub- 
 mit herewith my views. 
 
 I am of the opinion that if the suggestions embodied in the circular 
 to diplomatic officers were put in force in their entirety it would 
 result in putting the diplomatic service of the country upon a com- 
 mercial basis that would inevitably lower its standing and decrease 
 its efficiency without corresponding benefit to business interest-. 
 
 There are some lines, however, along which the diplomatic corps 
 could cooperate with the consular force with benefit to trade interests 
 without injuring its standing in the least. This is notably the case 
 in all inquiries sent out relating to legislation or change in the laws 
 of the country inquired about. The diplomatic corps, by reason of 
 its location at the capital or near the seat of government, would be 
 able to furnish more complete and exhaustive information on these 
 subjects than the best trained and experienced consul could hope to 
 obtain. 
 
 If the suggestions in the circular were put into force, it would be 
 manifestly impossible to expect the ambassadors to give their per- 
 sonal attention to this matter. The work of investigation would 
 necessarily have to be delegated to subordinates. By so doing a great 
 portion of personal prestige would be lost; information that would 
 
. 
 
 PROMOTION OF TRADE INTERESTS. 105 
 
 freely and fully given to the principal would often be scant and 
 curt if asked for by anyone else. This being the case, the result 
 desired could best be obtained b}^ the appointment of a commercial 
 attache to all of the leading embassies. An appointee of this charac- 
 ter carefully selected for his business experience and judgment, prop- 
 erly accredited to and accepted by the government of the country to 
 which he is appointed, backed up by the prestige of the diplomatic 
 corps, of which he would be a member, could make himself of great 
 help to the consular force and would in time become a powerful 
 agency for the extension of home trade. 
 
 The suggestion that consular reports be transmitted through the 
 diplomatic corps, there to be reviewed and annotated and then for- 
 warded to the Department for final decision as to what should be 
 printed, would be a good plan. It is easily conceivable that a consul 
 might write so fully and freely about local conditions that actually 
 existed within his immediate sphere of observation as to give offense 
 or perhaps cause embarrassment in the diplomatic relations that 
 existed "between the two governments, but if his reports were revised 
 and annotated and the unwisdom of their publication either wholly 
 or in part pointed out, this danger would be avoided. 
 
 Ci-ias. N. Daniels, Consul. 
 Sheffield, September 1, J904- 
 
 SOUTHAMPTON. 
 
 In the circulars remitted to this consulate by the last mail I find 
 one relating to the " Promotion of trade interests," and I respectfully 
 submit the following views on the subject: 
 
 1. From the consular point of view, I can see no reason why the 
 cooperation suggested between the diplomatic officers and the consular 
 service in the interest of trade extension should not prove distinctly 
 advantageous and satisfactory. My personal observation of the prac- 
 tical working of this plan in connection w T ith the service of another 
 country, as carried out in South America, leads me to believe that the 
 same could be adopted by the American service with positive and per- 
 manent results. 
 
 2. The free initiative on the part of the consular service should be 
 fully maintained. That has been the distinguishing feature of the 
 service, and has led to the splendid results which have marked it, and 
 has won praise from the whole commercial world and from its most 
 prominent commercial bodies. In the operation of this plan, I make 
 free to suggest, there should be constant and cordial touch between 
 legations and consulates, such as is not maintained in all cases at the 
 present time. With regard to the plan of France, which is above 
 referred to, there is a perfect entente eordiale between the two 
 branches of the service: and they are further aided by commercial 
 attaches, holding semiconsular rank, whose duties may be said to be 
 more of a technical character, but still generally used. The extra 
 cost of obtaining comprehensive information relating to a subject, or 
 group of subjects, thus involved is all provided for governmental ly, 
 and the favoring results for France in those countries abundantly 
 testify to the wisdom of the plan. It may be said that our own Agri- 
 
106 PROMOTION OF TRADE INTERESTS. 
 
 cultural Department successfully follows out this method in a way 
 in maintaining in the field competent investigators, whose reports 
 have been of a value far beyond common expectation. 
 
 3. In my own experience at Montevideo, where for nearly six years 
 I worked diligently for an uplift of trade with the United States — 
 and worked alone, not being able to secure diplomatic aid — -I learned 
 the helpful value of a willing legation. I learned how much an 
 amiable legation counts for in trade when I saw commercial advan- 
 tages slipping out of our own hands 'through the lack of such coop- 
 eration — slipping into hands, too, of other nations where practical 
 methods prevail through cooperative efforts. In cases where partial 
 success was brought about, it was through other and personal means 
 and influence. 
 
 4. In my opinion, the commercial work in every field of the foreign 
 service of the United States begins at the door of the embassy and 
 legation and ends only with the outgoing cargo. The consul, tts the 
 direct commercial representative, should be the initiator .^ The influ- 
 ence and prestige of the diplomatic representative should be freely 
 and generously extended. There is no need of friction. There is 
 nothing more surely required than the widest and frankest coopera- 
 tion to the end of extending American trade to the utmost throughout 
 every portion of the globe, and promoting the interests and the 
 growth of our country in every foreign field. 
 
 Albert W. Swalm, Consul. 
 Southampton, August 25, 190 If. 
 
 GREECE AND THE BALKAN COUNTRIES. 
 
 Report from, the Legation. 
 
 American Legation. 
 
 Athens , August 87. 190 If. 
 
 I have the honor to acknowledge the due receipt of the Depart- 
 ment^ circular of the 29th ultimo, relating to the " Promotion of 
 trade interests." In view, however, of the complicated character of 
 my mission, it is practically impossible for me to give categorical 
 answers to the questions contained therein. 
 
 In Greece, we have two American consuls, one of whom resides in 
 the capital, and two non- American agents, one living at the Piraeus, 
 only a few miles distant from Athens. Generally speaking, these 
 officials are not permitted to communicate directly with any Greek 
 ministry. 
 
 In Roumania and Servia, we have one official each, gentlemen of 
 non- American nationality, residing and carrying on business in the 
 respective capitals. In accordance with the terms of the consular 
 conventions of 1881. these officials are expressly authorized to commu- 
 nicate with the Governments concerned in some instances, and in 
 practice they arc usually permitted to correspond with the ministers 
 of foreign affairs whenever they find it expedient to do so. 
 
 In Bulgaria, we have no consular representative of any kind. 
 
PROMOTION OF TRADE INTERESTS. 107 
 
 Our commercial relations with Greece and Servia, respectively, are 
 based upon most-favored-nation treaties of 1837 and 1881. Those 
 with Bulgaria we base upon the so-called "capitulations" of 1830 
 and 1862, although the local government does not fully recognize our 
 claims and is at present desirous to negotiate a commercial conven- 
 tion. With Roumania Ave have no other basis for our commercial re- 
 lations than the general principles of international law. 
 
 In Greece, in addition to their representation at the capital and the 
 consular officials stationed at Patras and Corfu, where we also are 
 represented, all or most of the following countries have consular 
 representatives at Syra, Volo, Zante, Cephalonia, and Kalamata : 
 Austria, Belgium, Denmark, France, Great Britain, Holland, Ger- 
 many, Italy, Portugal, Russia, Spain, and Turkey, while several of 
 them have representatives at other places as well. 
 
 In Roumania, 13 consular offices exist at Galatz, 12 at Constantza, 
 11 at Braila, 7 at Sulina, 5 at Craiova, and others at Jassy, Giurgiu, 
 Tulcea, etc. In Servia there are but few (Austrian and Turkish) 
 consular officers outside of Belgrade. In Bulgaria, Austria, Bel- 
 gium, France, Germany, Great Britain, Greece, Italy, Russia, and 
 Turkey have consular representatives at Philippopolis, Rustchuck, 
 Varna, and Burgas, or at nearly all of these places, while Holland 
 and Spain are also represented at Varna. 
 
 So far as I am aware, none of the countries to which I am accred- 
 ited have regular commercial attaches abroad, and there are no .for- 
 eign commercial attaches resident in their capitals. On rare occa- 
 sions the British commercial attache at Vienna has visited Greece, 
 and his colleague at Constantinople was in Roumania last summer. 
 There is a delegate of the Hungarian ministry of agriculture per- 
 manently stationed in Roumania, but he is not attached to the 
 Austro-Hungarian legation at Bucharest. 
 
 Under the circumstances, and in view of the fact that American 
 commercial men rarely visit this part of Europe, it will readily be 
 seen that American trade is considerably handicapped in these coun- 
 tries. Personally, I am of the opinion that " the Balkans " offer a 
 good field for American trade, but that field must be worked with 
 knowledge and consideration of local conditions, and I am strongly 
 in favor of the appointment of Americans, either as consular officers 
 or commercial attaches, to reside in Roumania, Servia, and Bulgaria. 
 It is useless to expect the inhabitants of those countries to order 
 American goods on their own initiative, when foreign goods are to 
 be had on shorter notice and easier terms, and it is equally useless to 
 expect a United States consular official of non- American nationality — 
 who usually is the agent for non- American commercial houses as 
 well — to show any great amount of zeal in the development of a 
 market for American goods. The more or less frequent distribution 
 of advertising matter, generally printed in English, does not do much 
 good, and but little can be hoped for until Americans begin to take 
 up the question seriously and to study the local commercial conditions. 
 
 I ^ee no reason why it should not be practicable for me to transmit 
 to the consular officers in the countries to which I am accredited such 
 instructions as the Department may see fit to send from time to 
 time, and I would, of course, be glad to give these officers any assist- 
 ance in my power to enable them to carry them out in a satisfactory 
 
108 PROMOTION OF TRADE INTERESTS. 
 
 manner. I am also ready to revise and annotate their reports to 
 the best of my ability, although, as will readily be understood, my 
 sources of information must frequently be more restricted than 
 theirs. Generally, in the services of the countries with which I have 
 any acquaintance, consular officials are more directly subordinate to 
 the diplomatic mission in the country in which they serve than is 
 the case with us. In foreign diplomatic and consular services, how- 
 ever, the conditions of rank, tenure of office, etc., are so different from 
 ours that it is difficult to make comparisons. 
 
 Undoubtedly, our diplomatic and consular services may, at time-. 
 be " powerful auxiliaries in the great and constantly growing work 
 of equipping our manufacturers and exporters for effective compe- 
 tition in the world's commerce," but it has been my experience that, 
 in Europe, at least, but little A^aluable information to this end can be 
 obtained through official sources. Trade competition generally is 
 becoming keener and keener and really useful information can 
 rarely be obtained except by interested experts acquainted with local 
 conditions, as well as the qualities, etc., of the goods which they wish 
 to place. That our diplomatic and consular officials should cooperate 
 in the promotion of American trade interests, however, seems to me 
 to be not only possible and practicable, but wholly natural. 
 
 Under existing conditions, many American articles are imported 
 into this part of Europe through middlemen (Hamburg, Trieste, 
 Liverpool) without the buyer either knowing or caring anything 
 about their origin, or their appearing as American goods in the-local 
 statistics. 
 
 John B. Jackson. 
 
 P. S. In reply to question 3 in the circular referred to above. I 
 have to say that I do not think that any additional assistance would 
 be needed to enable me to carry into effect the programme described 
 under question 1, unless the Department should consider necessary 
 the occasional employment of a lawyer or other expert. 
 
 Opinions of Consular Officers. 
 
 ATHENS. 
 
 In response to the Department's instructions of the 4th ultimo, 
 which inclosed a copy of a circular to the American diplomatic officer- 
 in regard to a plan for the " coordination and improvement of exist- 
 ing facilities for the collection of commercial intelligence and the pro- 
 motion of American trade interests abroad," and requested an expres- 
 sion of my views upon the subject, I give my views as briefly as 
 possible. I have read and reread the plan, and have given it much 
 thought. As I believe that it would humiliate the consuls, cause 
 serious friction between the diplomatic and consular services, and 
 have quite the opposite effect to that desired, I have nothing to say 
 in its favor. 
 
 Daniel E. McGinley, Consul. 
 
 Athens, September 10, 190 Jf. 
 
PROMOTION OF TRADE INTERESTS. 109 
 
 PATRAS. 
 
 Replying to your circular dispatch of 4th of August, entitled " Pro- 
 motion of trade relations," and a request for comment thereon, I have 
 the honor to state that in my judgment were a consul invested with 
 the right and privilege of asking from a diplomatic officer, located in 
 a country or district where both were officiating, a reasonable amount 
 of information of a specific nature, bearing upon commercial or trade 
 relations, for transmission to the home government, he would unques- 
 tionably be in a position to secure through the agency of such diplo- 
 matic officer much desirable and even valuable information which it 
 might otherwise be extremely difficult for a consular officer to obtain 
 by his own unaided efforts. 
 
 The proposition, as contained in your circular already referred to, 
 is a commendable one, and has been so explicitly set forth that it 
 practically leaves no further views that I might originate upon the 
 subject. 
 
 James Verner Long, Consul. 
 
 Patras, August £7, 1904. 
 
 ITALY. 
 
 Report from the Embassy. 
 
 American Embassy, 
 
 Rome, September 9, 190 It. 
 In reply to the Department's printed instruction of July 29, 1904, 
 in regard to cooperation between the consular and diplomatic services 
 for the better collection of commercial intelligence, I beg leave to 
 report as follows: 
 
 I. 
 
 An ambassador might easily deliver to consuls requests for reports, 
 with recommendations, and might correct reports, according to his 
 ideas and information, as they passed through his hands on their 
 way to the Department. But human nature being what it is, consuls 
 would sometimes ignore, as far as they could, the embassy's sugges- 
 tions; and if they knew what the criticism or emendations of the 
 embassy were concerning their reports the}" would often feel irri- 
 tated thereby. Moreover, except occasionally, the suggestions and 
 criticisms of an ambassador would not be worth much, as his many 
 social and purely diplomatic duties would prevent him from giving 
 profound attention to commercial questions. An ambassador may 
 with propriety consult only ministers and high officials, and to ap- 
 proach these without giving offense at the foreign office is sometimes 
 delicate business. 
 
 A secretary who occupied himself entirely with industrial, agri- 
 cultural, or commercial investigations -could indeed supply the am- 
 bassador with valuable suggestions and criticisms ; but in that case 
 the secretary might as well be an attache representing the proper de- 
 partment at Washington, just as military or naval attaches represent 
 the War Department or the Department of the Navy. Therefore, if 
 the embassies are to extend their duties so as to include a more minute 
 
110 PROMOTION OF TRADE INTERESTS. 
 
 attention to the collection of commercial intelligence than at present, 
 I think that each ambassador or minister should have a commercial 
 attache, duly credited, and with a recognized diplomatic rank, which 
 would not give him precedence, probably, over the military or naval 
 attaches. 
 
 There might be much said in favor of making the consular service 
 entirely subordinate to the diplomatic representatives, upon whom 
 would rest then all initiative duties, as well as the responsibility of 
 general control and direction ; but to leave each service independent 
 as at present, and to try to make them work together in respect to 
 certain reports, would be, in my mind, to contrive a machine which 
 would cause friction, and tend, by dividing the meed of praise as well 
 as the feeling of responsibility, to destroy the spirit of initiative. 
 The action of the Department of State in amending or suppressing a 
 report in whole or in part would, of course, be accepted with silence 
 and respect; but every decision of that kind might cause secret irri- 
 tation, not against the Department, but in one service against the 
 other. 
 
 The establishment of regular commercial attaches would, in my 
 judgment, secure for the Government the service which is described 
 in the circular as desirable. Such a man should have a technical 
 knowledge of agriculture, commerce, and industry, and should know 
 the language of the nation to which he is sent. He might wisely be 
 chosen from the consular service, or, before arriving at his post, might 
 be required to spend some time in the principal American consular 
 office of the country. His pay should be adequate, he should have a 
 competent clerk, and money should be allowed to pay his traveling 
 expenses when conducting investigations away from the seat of the 
 embassy. An attache accredited to two countries could not wisely be 
 allowed to spend the most of his time in the one he preferred, to the 
 detriment of work in the other. 
 
 If commercial attaches existed, the consular corps might be almost 
 exclusively occupied in attending to the consular duties, as they are 
 generally understood. The consul -general should not be at the capi- 
 tal, but at the principal port or business center. In Italy this would 
 be a Genoa. Rome is not a manufacturing town, or a port of entry, 
 or even a railway terminus. To the other cities of Italy it holds 
 much the same position as Washington does to other American cities. 
 
 II. 
 
 The consular and diplomatic services of Italy are much more 
 closely united than the American consular and diplomatic services. 
 The nominal importance of consuls is much less, and the position of 
 the consul-general, as we understand it, hardly exists in fact. Com- 
 mercial attaches have been ajopointed in a number of cities, but in 
 reply to inquiries I am told that it is yet too soon to say what the 
 results are. Consular reports concerning American affairs which 
 are most esteemed in Italy come from the office of the Italian consul 
 in New York. The diplomatic status of the Italian commercial 
 attache is not clearly defined, but he is, as a matter of fact, closely allied 
 to the ambassador. In Rome the commercial attache of the British 
 embassy, who is also attached in Vienna, is received at court on the 
 rare occasions of his presence in Italy. It is the experience of the 
 
PROMOTION OF TRADE INTERESTS. Ill 
 
 British embassy in Rome that a commercial attache should be obliged 
 by the regulations of the service to be actually in each country to 
 which he is accredited a fixed period of time each year. If we had 
 a commercial attache at this embassy, and if it were desired to have 
 him work in Italy and another country, the other country, in my 
 opinion, should be Switzerland and not Austria. Two countries 
 would fully occupy an industrious man. 
 
 If cooperation such as outlined in the Department's circular 
 existed between the American consular and diplomatic services in 
 Italy, the embassy at Rome would require another secretary and an 
 additional clerk for him. The embassy's offices would have to be 
 enlarged and the contingent fund increased to pay for additional 
 domestic service, cleaning, heating, lights, etc. An effort should also 
 be made to have all the employees about the embassy American citi- 
 zens. No foreigner should be employed about the place even in the 
 smallest capacity. 
 
 Lewis Morris Iddixgs, GharqL 
 
 Opinions of Consul- General. 
 
 ROME. 
 
 In answer to Department's circular, " Promotion of trade in- 
 terests," I have to say that I have given of late years much attention 
 to this subject, and in a report made by me in 1898, after an inspec- 
 tion tour of consulates, I suggested to the Department : 
 
 In view of the recent circular of the Department, dated August 5 last, re- 
 quiring from the consular offices a very minute report on the commerce, indus- 
 tries, and other economical, governmental, and municipal matters, and consider- 
 ing the importance and usefulness of such a carefully prepared report, I have 
 taken this subject up with various consuls under my jurisdiction while on my 
 inspection duties, and with them have come to the conclusion that the public 
 interests would be better served and the aim of the Department attained if in- 
 stead of each and every consul preparing and sending to the Department an 
 independent report, all containing very much the same matter, each consul 
 made a report upon the special commercial, industrial, and other interesting 
 features of his respective district and sent it to the consul-general. The con- 
 sulate-general would compile these various reports, giving to each district 
 proper credit for the information furnished by it, and add, furthermore, to 
 same all the statistical and other data it is in better condition than the consuls 
 to gather at the capital, where all the public departments are centralized. 
 
 It is easy to conceive that all the consulates cooperating in and contributing 
 to one and the same work the result could not fail to be most satisfactory. 
 Such a report would necessarily be very complete and cover a great deal of use- 
 ful information upon every branch of commerce, industry, finance, and gov- 
 ernment and city administrations. It would also have the advantage of an- 
 swering many inquiries from American correspondents, inquiries which often- 
 times can not be answered for the lack of means of procuring the desired in- 
 formation, and when answered, seldom in as satisfactory a manner as one 
 would wish. 
 
 It still is my opinion that commercial and trade reports to be com- 
 prehensive, thorough, and useful should be prepared by the consul- 
 general at the central seat of the government to which he is accred- 
 ited. Said report should be based upon information furnished by 
 each individual consulate at request or upon its own initiative 
 and especially upon reliable statistics and other information obtained 
 by the consulate-general from the various government departments. 
 
112 PROMOTION OF TRADE INTERESTS. 
 
 Such information is always more readily obtained by this office and 
 with less red tape and conventionalities' than by the channel of the 
 embassy, which, by the diplomatic rules, may only communicate with 
 or through the foreign office (a very slow process), while the consul- 
 general may correspond with or interview any government official di- 
 rectly and without intermediary. This is so true that the embassy 
 always use the consulate for any speedy information they may re- 
 quire, while the consulate has no need to call for assistance upon the 
 good offices of the embassy except in special diplomatic cases. 
 
 Italy has no commercial agents attached to her embassies or lega- 
 tions in Europe. England has lately appointed such an agent to the 
 embassy in Rome. England, however, has no consul-general at the 
 capital. 
 
 The appointment of a commercial attache would certainly lighten 
 the burden of the consular officers and relieve them of some extra 
 work, though a profitable one. when it is considered that while the 
 consular officers gather and supply commercial information to the 
 commercial world they at the same time educate themselves and ac- 
 quire such experience as will better fit them to continue in the career 
 or to render personal and useful services for the benefit of American 
 commercial interests. 
 
 I think that the object contemplated by the appointment of a com- 
 mercial attache could be carried out in the following manner : 
 
 1. That all commercial reports and trade information be prepared 
 by the consul-general. 
 
 2. That consuls, by request or upon their own suggestion, forward 
 to him individual reports upon the special industries and trade rela- 
 tions interesting their districts. 
 
 3. That the Department allow to the consulate-general an appro- 
 priation not to exceed $800 per annum for the purpose of securing 
 adequate clerical help and statistical information for the preparation 
 and compilation of said reports. 
 
 I. That once in a while the consul-general at the most convenient 
 time visit personally the consulates within his jurisdiction for the 
 purpose of consulting with his colleague and the local chambers of 
 commerce upon all matters of interest to our commerce and industries. 
 all of which would be incorporated in a special report. One month 
 should suffice for such a mission, at an expense not to exceed $400. 
 
 5. If advisable, the consuls-general might, in addition to their 
 title, be given that of " commercial adviser ? ' attached to the embassy, 
 and this simply in view of securing for them more consideration. 
 
 This suggestion if carried out would, I believe, fill all the wants 
 and fully answer all purposes. 
 
 With the system novr in use. the consular reports must obviously 
 be incomplete. Xone of the offices is sufficiently equipped in clerical 
 force and otheiwise to adequately cope with this work. On the 
 other hand, the consuls in the provinces have not at their disposal 
 the general statistics nor the central government's source of informa- 
 tion upon which the consul-general can constantly draw. Such 
 consuls must and do apply to the consulate-general for information 
 they can not secure in their own districts, with the result that 
 their reports often conflict and contain useless repetitions. It i> 
 also to be considered that the Italian laws governing trade and 
 commerce and its agencies are national: that all amendments, 
 
PROMOTION OF TRADE INT E RESTS. 113 
 
 changes, and interpretations must emanate from the central gov- 
 ernment. It is therefore obvious that the consul-general at the 
 capital is placed in a better position than his colleagues in the 
 provinces to secure reliable information. 
 
 What I say of the consul-general would be true of the commercial 
 attache, if one be appointed, and therefore either measure would, I 
 believe, be a step in the right direction. 
 
 It is, however, proper to observe that the problem of promoting 
 trade between America and Italy can not, in my opinion, be solved 
 by the appointment of a commercial attache or otherwise as long 
 as our American manufacturers will not themselves show a desire 
 of cooperating with official efforts and entering the field in compe- 
 tition with other countries. My experience of seven years in Italy 
 has confirmed me in the belief that American manufacturers are, as 
 a rule, not at all anxious to invade this market. This is easy to 
 understand, too, when one considers the continuous commercial and 
 industrial prosperit} r in America and the vast home consumption 
 which absorbs almost the total production. Outside of natural 
 products, of some specialties, and of certain articles which fear 
 no competition, there is comparatively very little exported from 
 America into Italy. This is wholly due to the fact. that the Ameri- 
 can manufacturers, finding a ready home market for their products, 
 will not change their methods for the sake of doing business abroad, 
 unless obliged to. They are not willing to meet the same condi- 
 tions as granted by European producers. So far I know of only 
 one enterprising shoe concern, of Lynn, Mass., which has an active 
 agent in Europe who, two or three years ago, undertook a business 
 tour of this county. The first year his success was indifferent, yet 
 he managed to place a few orders; he was sufficiently encouraged 
 to persevere, and last year, when he visited my office, he told me 
 that the concerns he had dealt with had since more than trebled 
 their orders and that he had secured new customers, realizing thereby 
 a great deal more than he had hoped for in such a short time. That 
 shoe concern adopted the same methods and agreed to the same 
 conditions accorded by German, Austrian, and other European manu- 
 facturers. It made a personal effort to introduce its goods, got 
 acquainted with the prospective clients, studied their financial stand- 
 ing, ascertained the amount of credit they might be allowed; in a 
 word, it met the commercial conditions of the market and was thus 
 enabled to successfully compete with European manufacturers. 
 
 I suppose that that particular shoe concern was pushed to seek new 
 markets on account of the unsatisfactory condition of the shoe busi- 
 ness in America, due to great competition and overproduction. Their 
 agent in Europe was an intelligent and competent man; he went to 
 AYork in the right direction, and was rewarded by success. One thing 
 is certain and let it be borne in mind : "American goods, on the same 
 terms, will always command the preference," for they have a reputa- 
 tion for workmanship, quality, and durability. 
 
 I am, therefore, afraid that, as long as prosperity prevails in the 
 United States, there is little cooperation to expect from our manu- 
 facturers and producers. Hard times, such as we had before 1897, 
 may change the situation. I have been preaching for the last seven 
 years, and I have tried to convert the American manufacturers and 
 
 H. Doc. 245, 58-3 8 
 
114 PROMOTION OF TRADE INTERESTS. 
 
 capitalists I hare come into contact with to my views, inviting them. 
 to study the Italian market, while they did not need it, in order to be 
 ready for business at a time when conditions and overproduction in 
 America would make the seeking of foreign markets imperative. 
 
 ]\Iy colleagues, as well as myself, constantly respond to inquiries 
 from American . correspondents in regard to business prospects in 
 Italy. We promptly give all possible useful information and encour- 
 agement ; but I, for one, am yet to find the concern that has taken the 
 trouble of going deeper into the question than their first inquiry. 
 Therein lies, in my opinion, the difficuhty of the situation. The 
 markets are open to our products if our producers will only take the 
 trouble of entering them in the proper way. 
 
 While I was writing the above, I met an American gentleman, 
 agent of a very large coal company in Penns3dvania, and I under- 
 stood from him that he had just succeeded in making some satisfac- 
 tory contracts for supplying cargoes of American coal. He had, of 
 course, first of all Al coal; secondly, he made a personal effort to 
 convince the buyers of the superiority of his goods, and thirdly, he 
 secured orders at a higher price than British coal is sold in the 
 market. This is another proof that the market is here, if only our 
 manufacturers and exporters will make a serious effort to secure a 
 share of it. 
 
 Another important point connected with the development of Amer- 
 ican exports into Italy is the necessity of establishing direct banking* 
 relations between the two countries, which would greatly facilitate 
 commercial intercourse. The establishment in Italy of an American 
 banking institution should receive the attention of our financiers. 
 
 Hector de Castro, Consul-General. 
 
 Rome, October 13, 1904. 
 
 Opinions of other Consular Officers. 
 
 CASTEIXAMARE DI STASIA. 
 
 I have the honor to acknowledge the receipt of the Department's 
 instruction regarding " Promotion of trade interests " of August 4, 
 1904, with the circular to diplomatic officers inclosed. 
 
 It is evident that the advantages of cooperation of the consular and 
 diplomatic services must depend upon the case in point, and a gen- 
 eral rule would be difficult to lay down. I believe, however, that the 
 two corps could work together advantageously if something like the 
 following suggestions were adopted : 
 
 If a consular officer receives an instruction from the Department, 
 some portion of which calls for information which he believes could 
 be better obtained by the diplomatic representative than by himself, 
 he should then write a report containing such information as he had 
 been able to gather and forward it to the embassy or legation, with 
 a request that the questions which he, the consular officer, was unable 
 to answer be replied to, and the completed dispatch forwarded to the 
 Department. 
 
 Another method of obtaining the same result is the following : Let 
 all consular officers be instructed that when information is required 
 

 PROMOTION OF TRADE INTERESTS. 115 
 
 by the Department which, in the consul's opinion, could be obtained 
 AA-ith more dispatch and accuracy by the diplomatic representative 
 than by himself he, the consul, should then write directly to the diplo- 
 matic representative, requesting that the information be sent to him. 
 The consul could then embody the information thus obtained in his 
 report, noting what portion was supplied by himself and what by the 
 embassy or legation. 
 
 An instruction from the Department permitting consular officers 
 to correspond with diplomatic officers whenever, in the opinion of 
 the former, the exigencies of the service required it would at once put 
 the two corps into cooperation. The correspondence could, of course, 
 be carried on through the consulate-general, but this might cause 
 some delay. 
 
 C. S. Crowninshield, Commercial Agent. 
 
 Castellamare di Stabia, September 1. 190 If. 
 
 CATANIA. 
 
 After careful consideration of the circulars dated July 29 and Au- 
 gust 4 last, I beg to offer as my opinion that the conferring -of diplo- 
 matic status on consuls would not be an additional advantage in 
 regard to securing commercial information. As far as concerns this 
 consulate and the Italian officials of the consular district, the consul 
 has always had every courtesy shown him in official dealings with 
 officers of all departments, governmental, provincial, and city. All 
 information asked for is given promptly and obligingly. The em- 
 bassy at times requests information from the consul regarding prod- 
 ucts and statistics of the district, which information is always 
 promptly and cheerfully given. 
 
 Catania, October 15, 1904. 
 
 Alexander Heingartner, Consul. 
 
 GENOA. 
 
 In reply to the request contained in Department circular, Promo- 
 tion of Trade Interests, of August 4, for an expression of opinion on 
 the circular to diplomatic officers inclosed therewith, I beg to say that 
 the idea of establishing some central authority for the direction and 
 subsequent oversight of the reports prepared from time to time by 
 the consuls of the country on a given subject seems very desirable. 
 At present consuls in different districts often collect with much effort 
 identically the same material. Such overlapping and reduplication 
 result in much useless consumption of time for those who prepare the 
 reports, and must necessarily result in further waste of time and dis- 
 appointment for the bureau which intends to derive practical results 
 from them. With an intelligent direction from some one who would 
 acquaint himself with the general field of the country and the situa- 
 tion of its various parts with regard to the inquiry proposed, each 
 consul could work upon a portion of it assigned him and coulcl thus 
 be both more brief and more forcible and thorough than now. He 
 would cooperate with his colleagues in a combined effort instead of 
 replacing and often conflicting with them. 
 
116 PROMOTION OF TRADE INTERESTS. 
 
 A trained commercial attache assigned to the embassy would seem 
 to be an excellent means of bringing about this end: or the powers 
 of the consul-general might be increased in this way and a small 
 
 appropriation made to aid in the work. 
 
 William Henry Bishop. Consul. 
 Genoa, Septcmhcr (J. 1904. 
 
 LEGHORN. 
 
 Acknowledging receipt of circular of August 4, I have the honor, 
 as requested, to submit my views on the subject, as follow> : 
 
 Generally speaking, statistical information relating especially to 
 the volume of trade within a particular consular district (imports. 
 exports, shipping, etc.) is furnished by local officials, who it may be 
 said, and speaking from my experience here, are usually willing to 
 assist the consular officer in this respect, so far as lies in their power. 
 It is. however, undoubtedly true that the sources of accurate official 
 information which a consular officer can without great difficulty dis- 
 pose of are in most instances limited to his own district and in many 
 cases simply to the place where he is located. To overcome such diffi- 
 culties in the preparation of reports on subjects of more general inter- 
 est and importance the plan outlined in the circular above referred to 
 appears to be one of great utility. 
 
 The suggestion as to the appointment of commercial attaches, 
 charged with the special duty of collecting industrial and trade 
 information, is certainly a most practical one. It frequently occurs 
 that, in the collection of commercial data for private parties in the 
 United States, as well as for the Department, a visit to the locality 
 or localities where fuller and more accurate knowledge might be 
 obtained would be of great advantage and render possible the com- 
 pilation of more comprehensive reports on the subject. At present a 
 consular officer is not authorized to incur any expense in such cases, 
 but a commercial attache, in touch with the centers of official infor- 
 mation, and with authority which would enable him in special cases 
 to personally make investigations or empower the consular officer to 
 do so on the spot, would, cooperating with the consular officer, be in 
 a position to render very valuable service. 
 
 There are, doubtless, many other considerations favorable to the 
 project, including that of the saving of much valuable time, etc., 
 which will be brought to the attention of the Department by con- 
 sular officers, whose views have been requested on the subject. For 
 myself, I should be very glad to see the work of collecting informa- 
 tion facilitated, and I am, therefore, most heartily in favor of the 
 proposed plan. 
 
 Jas. A. Smith, Consul. 
 
 Leghorn, August 27. 190 4. 
 
 3IESSINA. 
 
 In reply to circular of August 4. " Promotion of trade interests.'" 
 I have to report as follows : 
 
 In an experience of eleven years at this consulate, I have never 
 found occasion to apply to the diplomatic officer at Eome for his 
 
PROMOTION OF TRADE INTERESTS. 117 
 
 intervention in securing commercial information. The circulars 
 received have always asked for facts or statistics appertaining to 
 this district, which, if at all attainable, could be gathered by me on 
 the spot. Indeed, there are a great many facts that a consul can get, 
 which the ambassador could not. 
 
 -Instead of the ambassador being of service to the consul in ques- 
 tions of commerce, I look upon the situation as reversed, for in 
 numerous cases the latter can be of great service to the former. Of 
 course, to a consul-general residing at the capital, who is called upon 
 to make reports upon subjects, data, and statistics which can only 
 be obtained from the government offices there— such, for instance, 
 as the department of public works, direction of forestry, etc. — the 
 embassy can be of assistance by corresponding directly Avith the 
 officials, thus avoiding the delays which the consul-general would be 
 sure to encounter before he would receive a satisfactory reply. 
 
 A commercial attache at each embassy, I respectfully suggest, 
 would be useless and detrimental to the efficiency of the service. As 
 the matter stands at present, the Department of Commerce and Labor 
 or the Bureau of Trade Relations receives inquiries from all parts of 
 the country for information, and those that are deemed worthy are 
 reduced to a circular and transmitted to the consuls, who prepare 
 their replies to the best of their ability and forward them directly to 
 the Bureau. If tKey are too prolix they are " boiled down," but the 
 essential information required remains. If, on the other hand, these 
 reports should be transmitted through the commercial attache, the 
 filtration through his office would probably eliminate many vital fac- 
 tors. An infallible consequence, I feel sure, would speedily follow 
 his appointment — -the diversion from the Washington bureau of a 
 greater part of the correspondence, which would find its way to his 
 office, with the result, I fear, that instead of him alone, a number of 
 clerks would be required, and each country would have at its capi- 
 tal a heavily worked branch of the Washington bureau. 
 
 Chari.es M. Cauohy, Consul. 
 
 Messina, September 10, 1904. 
 
 MILAN. 
 
 In reply to the circular " Promotion of trade interests," I have the 
 honor to report as follows: 
 
 To consuls who take pride in their work the greatest incentive to 
 voluntary commercial reports lies in the fact that in recent years 
 their efforts to better trade have found such complimentary indorse- 
 ment, both at home and abroad, and in their belief that in developing 
 this field they were adding materially to the prestige of the consular 
 corps. While they will undoubtedly give good service under any ar- 
 rangement that the Department puts into effect, divided responsibil- 
 ity and credit can not foster pride in the work. The Department 
 proposes to adjudicate between the consular and the diplomatic offi- 
 cers in case of difference of opinion, but, nevertheless, the consul's re- 
 port is subject to the diplomatic official, and under the system pro- 
 posed he will not know whether it is the diplomatic official or the 
 Department that has made alterations. 
 
118 PROMOTION OF TRADE INTERESTS. 
 
 The diplomatic service has channels of information that the consuls 
 covet and that should be utilized if possible. If there could be an 
 attache to the embassy who would work in harmony with the con- 
 suls, who could be applied to at any time for information, who would 
 visit the different consulates, and, working with them, organize for 
 the best results, the effects could not but prove of value. Any service 
 that is specialized is certain to give the best results. 
 
 Correspondence with American business firms who are seeking 
 trade openings is developing at such a rate that the consuls find less 
 and less time to devote to reports outside of those specifically called 
 for, and if possible the incentive to greater work should be increased 
 rather than minimized. 
 
 Under the present system, there is a large amount of general infor- 
 mation that each consul is seeking independently which could be fur- 
 nished from headquarters; this, of course, to be supplemented by the 
 local statistics and observations. Reports could be sifted, indexed, 
 filed, and so arranged at headquarters that this great mass of infor- 
 mation gathered in the country in the course of years would be avail- 
 able for instant use and in the most satisfactory shape. Duplication 
 of reports and unnecessary work would also be avoided. 
 
 If three or four men who have shown special fitness for the promo- 
 tion of trade interests and statistical work should be stationed at 
 American embassies in Europe fcr a year, with the idea of carrying 
 out some such plan as the one above proposed, I do not believe the 
 experiment would prove unsatisfactory. 
 
 A great deal has been accomplished, but far more is possible. With 
 a growing army of American exporters anxiously seeking the best 
 methods and expert advice, with unfortunate first attempts discour- 
 aging efforts that might otherwise lead to a trade aggregate of mil- 
 lions, the further systematizing and energizing of this branch of con- 
 sular work rises above any question of expense. 
 
 Harlan W. Brush, Consul. 
 Milan, September 19, 1904. 
 
 NAPLES. 
 
 I have the honor to acknowledge the receipt of the Department's 
 circular " Promotion of trade interests," and to report that I most 
 heartily approve of the plan set forth for the coordination and im- 
 provement of existing facilities for the collection of commercial intel- 
 ligence and the promotion of American trade interests abroad. I am 
 of the opinion that the work w.ould be greatly simplified by the 
 establishing of commercial attaches at the embassies and legations, as 
 they would be in a position to systematize the collection and prepara- 
 tion of all reports, and would "know practically the existing condi- 
 tions in each consular district under their supervision. 
 
 A. II. Byington, Consul. 
 Naples, August 30. 1904. 
 

 PROMOTION OF TRADE INTERESTS. 119 
 
 TURIN. 
 
 Answering- Department circular in regard to the proposed plan for 
 the cooperation of consuls with diplomatic officers for the purpose 
 of gathering commercial intelligence and promotion of American 
 trade interests abroad, I would say that, in my judgment, the plan is 
 a practical one. At times here I find it difficult to reach " the center 
 of official information," and in such cases hints from our diplomatic 
 officers would bo welcome, as well as helpful, in the collection of the 
 desired information. On the other hand, consuls, by diligent efforts, 
 could render efficient service to our diplomatic officials by collecting 
 and forwarding to them information on any desired subject, and the 
 ministers, with their assistants, by revising, condensing, eliminating 
 duplications or errors, etc., from such reports, could provide the 
 Department with data in a much more finished and desirable form. 
 In brief, I consider the plan proposed by the Department not only 
 practical but business like and* excellent. 
 
 PlETRO ClINEO, Consul. 
 
 Turin, August Ui 1904. 
 
 VENICE. 
 
 In reply to the request contained in Department circular dated 
 August 4, 1904, for the views of consular officers upon a plan for " the 
 coordination and improvement of existing facilities for the collection 
 of commercial intelligence and the promotion of American trade 
 interests abroad,'' I am necessarily somewhat confined in my view to 
 the experience which has come to me in Italy only. 
 
 Taking into consideration the subjects submitted to consular offi- 
 cers for report and investigation, it appears that, with rare excep- 
 tions, they are intended <~o cover some specific topic of a purely local 
 character — that is, within the district embraced by the consulate. 
 To illustrate this: A consular officer is called upon, generally, to 
 submit his views on the possible introduction with profit into his 
 district of certain articles of American manufacture or production; 
 this is perhaps the most common kind of report which is required 
 in the service. Or a consular officer occasionally is directed to report 
 on labor conditions, on emigration, on the methods and details of 
 some industry, and the like. Lastly, there is the so-called "Annual 
 Report," which covers the general yearly commercial and trade sta- 
 tistics of the consular territory, with details of interest to American 
 manufacturers and exporters. In all these instances the consular offi- 
 cer bases his replies on personal observation and on inquiries among 
 local dealers, manufacturers, the chambers of commerce, and local, 
 municipal, and government officials. It is seldom that these methods 
 fail to supply all the details which are necessary to meet the demands 
 made by the Department of State, provided that the questions do 
 not tend to reach too intimately into the workings of a private busi- 
 ness. This occasionally happens, with the result that it is quite 
 impossible to secure the desired information; nor would the inter- 
 vention, in such event, of the diplomatic representative prove of the 
 least assistance. 
 
120 PROMOTION OF TRADE INTERESTS 
 
 However, in the second group of reports mentioned above, it is 
 sometimes the case that, in order to obtain certain statistics or infor- 
 mation, it may be necessary to have recourse to some government 
 department, the local representative of which can not or will not 
 supply the desired information, and it is to such exigencies that the 
 plan evidently refers, for it is said in the circular, " It is to be under- 
 stood that the Department would continue to communicate directly 
 with consular officers as to matters pertaining exclusively to their 
 districts." From the experience of the writer, the Department has 
 always directed that lie report only on conditions existing within 
 his district. Nevertheless, as pointed out above, cases may occasion- 
 ally arise where suggestions or specific information furnished by the 
 diplomatic officer, together with the Department's instructions, would 
 not only greatly facilitate and expedite the work of the consular 
 officer, but would also enable him to give more accurate information, 
 and in this particular would be a benefit and materially tend to 
 increase the usefulness of consular reports. 
 
 It appears to me, however, that the plan suggested by the Depart- 
 ment, if put into operation, might seriously affect a phase of our 
 consular service which has considerable to do with that utility to 
 which reference is made by the Department in its circular; that 
 phase being its independence and its distinctness from the diplo- 
 matic service. This freedom — for a consul is directly subordinate to 
 the Department of State, usually through a consul-general — from 
 correction and direction by a service which is distinctly separate, is 
 no doubt one source of incentive and accounts for much of the present 
 activity and conscientiousness of the consular service. To remove 
 partially that incentive would seem to risk a setback, unless the 
 resulting gain in another direction would more than compensate for 
 the loss. 
 
 It has been admitted that it would be of considerable advantage to 
 the consular officer, and consequently to the commercial interests of 
 the United States, to have information regarding questions submitted 
 by the Department of State furnished consular officers by their 
 diplomatic representatives, but it has also been shown that the in- 
 stances are very few where it would be necessary for the obtaining 
 of the required data to seek it through the representative at court. 
 Heretofore when, on rare occasions, it has been necessary, the con- 
 sular officer, I believe, has applied to the consul-general, or to the 
 diplomatic officer through the consul-general, for the information 
 desired. What data the consul-general is unable to supply he ob- 
 tains readily from the ambassador or minister. The consul, there- 
 fore, is accustomed, when necessary, to apply to his consul-general 
 for, and to receive from him, data of a special nature. It is also 
 usually customary for consuls and commercial agents to submit their 
 reports to the Department of State through their consuls-general, and 
 it is to be supposed that any notable errors would be called to the 
 attention of the writer for correction before their reports were finally 
 forwarded to Washington. This being the case, it would not be a 
 charge to apply the plan to the office of the consul-general, which 
 would eliminate the clanger of subjugating the consular to the diplo- 
 matic service. The office of the consul-general and the embassy are 
 usually situated in the same city, and the officers thereof are in close 
 touch with one another, so that when the consul-general could not 
 
PROMOTION OF TRADE INTERESTS. 121 
 
 supply the information himself he could readily obtain it, as has 
 been done heretofore when occasion demanded, by the diplomatic 
 representative's good offices. Thus no change would be instituted 
 in the present working of the two services. 
 
 The plan of the Department of State, therefore, appears to me to 
 be valuable in that it promises to enhance to American exporters the 
 value of certain consular reports, but it seems to menace the inde- 
 pendence of the service, which is of value as an incentive to its mem- 
 bers to increase year by year its usefulness to American manufactur- 
 ers and exporters. Inasmuch as the cases are few to which the plan 
 would apply, and the work suggested may be performed by the 
 consul-general's office, it appears to me that the plan would be more 
 effective if applied to the consuls-general rather than to the ambas- 
 sadors or ministers. 
 
 It would be running a serious risk of disastrous friction to have the 
 two services touch at this one point and at no other. Either the con- 
 sular service should be placed entirely under the direction of the 
 diplomatic service or it should remain separate, as it has always been. 
 
 Eobt. W. Bliss, Consul. 
 
 Venice. October 3, 1904. 
 
 MALTA. 
 
 Opinions of the Consul. 
 
 With reference to circular of August 4, Promotion of Trade Inter- 
 ests, I would say that, never having been stationed in a country 
 where I was subordinate to any authority other than the Department, 
 I can hardty speak from practical experience as regards countries 
 wherein are located embassies and many consulates. I am placed in 
 a peculiar position in that my district takes in a whole colony, and T 
 am the only consular or other officer representing our Government. 
 The local government is supreme, practically, and, being the only 
 American officer here, I am able to secure without delay any statistics 
 or other official favors that I may require for my reports. I never 
 have occasion to request or to provide information from or to any 
 but the Department direct. 
 
 As far as Malta is concerned, for the reasons I have above given, I 
 can see no benefits likely to arise through making this office subor- 
 dinate to any outside the Department. My duties are, to a certain 
 extent, both of a consular and diplomatic nature. Quite a number 
 of our consular officers are in a similar position. The Department 
 does well to refer to " the spirit of initiative." Many of us are 
 jealous of that right, and some could not do as good work if ham- 
 pered. Most consuls interested in preparing and sending in reports 
 have two objects in view. One of them is to increase trade in Amer- 
 ican goods in their districts, the other is to make good records and 
 gain the approbation of the Department. This, greatly tends to 
 engender a spirit of initiative, which should be not only preserved, 
 but also carefully guarded. 
 
 With reference to countries in which are located, besides our em- 
 bassies or legations, various consular officers, I have long thought 
 that if in each there could be established an officer charged with the 
 
122 PROMOTION OF TRADE INTERESTS. 
 
 duty of selecting -trade topics of interest to our merchants, with 
 authority to call upon the various consular officers in the country to 
 which he might be accredited for reports upon given subjects, the 
 Department would be in a position to receive valuable matter in a 
 comprehensive form where it now receives but a short, if useful, 
 report covering only a limited territory. It is also very Kkely that 
 if a consul, in preparing a report upon his own initiative, could secure 
 from the capital city information and statistics in the manner indi- 
 cated by the Department's circular, he would be enabled to make 
 such report much more valuable. I apprehend that the chief danger 
 would be in the matter of making appointments of commercial 
 attaches. An appointee, alive to trade conditions and requirements, 
 used to making investigations, required to often take the initiative in 
 selecting trade topics for reports and calling upon his subordinates 
 for assistance, could and would be of great service. On the other 
 hand, one who made it a practice to rely upon a report from some 
 active consul, that had to pass through his hands, and gain credit by 
 incorporating it in his work, would but in time demoralize and deaden 
 the spirit of initiative and enterprise of many of our consular officers. 
 One of the reasons why our service has been providing so many 
 reports is its freedom from intermediaries. Again, many of our 
 reports are effective and lead to good results on account of being so 
 promptly published after preparation. Often to delay publication 
 merely for the sake of collecting a group of reports would render 
 usele-s the object of the report. The general idea of a commercial 
 attache seems to me to be a good one, but to need careful considera- 
 tion in working out. 
 
 Johx H. Grout. Consul. 
 Valetta. September 28. 1904- 
 
 NETHERLANDS. 
 
 Opinions of the Consul- general. 
 
 I have the honor to acknowledge receipt of Department circular 
 dated August 9. 1901. inclosing copy of a circular entitled " Promo- 
 tion of trade interests," sent to Ainerican diplomatic officers. The 
 Department desires my views, and I beg to present the following: 
 
 In the first place, I should consider it highly desirable that a closer 
 connection of some sort be established between American diplomatic 
 and consular officials in order that a consul may feel authorized and 
 quite free to apply to the legation of the country in which he is lo- 
 cated for information necessary for reports. Facts are frequently 
 called for in reports to be made by consuls under instruction from 
 the Department of State which can not be ascertained except through 
 the various legations, and when the aid of legations is invoked in such 
 cases it is sometimes cheerfully given; at others in an indifferent 
 manner if not under silent protest, and besides, as a rule only after 
 long delay. 
 
 It is a well-known fact that no European Government departments 
 or authorities are very anxious to furnish any important statistics or 
 facts as to the status of the industrial and commercial interests of 
 
PROMOTION OF TRADE INTERESTS. 123 
 
 their respective countries, particularly to American inquirers, as they 
 are very jealous of our enterprising and pushing manufacturers and 
 fear that the aggressive commercial campaign carried on by our busi- 
 ness men in Europe will interfere with the success of the native manu- 
 facturers and dealers. Such information is seldom cheerfully given. 
 It is perhaps only natural that ambassadors and ministers, for whom 
 it is very desirable to be on a friendly footing and have nothing but 
 pleasant relations with the various cabinet officers and chiefs of de- 
 partments of the Governments to which they are accredited, should 
 hesitate at times to present a long string of questions, required for 
 some report by a consul, when he (the ambassador or minister) knows 
 that this request will cause even momentary displeasure or annoy- 
 ance to the department chief in question. 
 
 It would, therefore, be very gratifying if means could be found 
 whereby cooperation between the diplomatic and consular service 
 could be established. It is, according to European ideas, hardly 
 proper or consistant with the dignity of an ambassador or minister 
 that he, in his official capacity, should appear to take an active inter- 
 est in manufacturing and mercantile affairs or as a seeker of infor- 
 mation in this direction, and for this reason it would, in my opinion, 
 be more desirable and in every way more advantageous to our coun- 
 try if commercial attaches were sent to the various legations. These 
 should be active, intelligent men, with a commercial or consular 
 training, who would understand the requirements of the American 
 commercial and industrial interests, and know just what kind of sta- 
 tistics, facts, and general information would be required by our busi- 
 ness men. Their position as attaches of legations would give them 
 the entree at the various departments of the government in the coun- 
 tries where they were stationed, and they should cultivate the acquaint- 
 ance and establish friendly personal relations not only with the 
 heads of departments, but also with chiefs of bureaus, chief clerks, 
 and other officials with whom it might be desirable to come into con- 
 tact in order to gain any information desired for reports, etc. In this 
 maimer much valuable information could be obtained which it 
 would be well-nigh impossible for a minister to secure through a 
 written official request, and, what is of great importance, it could 
 often be obtained in a day, whereas we now often have to wait two 
 or three months in order to get some simple question answered 
 through the usual official channels. 
 
 I should, however, feel inclined to advise against any furtheV 
 change in the official relations of the diplomatic and consular officers 
 than that the consul should feel free and have the right to call on his 
 legation at any time for information required for reports which 
 could not be obtained except through such legation, and that the 
 commercial attache should then procure such information, if obtain- 
 able, as speedily as possible. In other words, I would not consider 
 it advisable or for the best interests of the service if consuls received 
 requests for reports through the legations instead of, as now, direct 
 from the Department of State, nor should the reports be transmitted 
 to the Department through the legations for the purpose of having 
 the minister correct, revise, or strike out portions which he might 
 not approve of. Friction might easily arise. If a commercial 
 attache was stationed at the legation, he might know as much about 
 the contents and aims of the report of the consul as the latter — seldom 
 
124 PROMOTION OF TRADE INTERESTS. 
 
 more, provided the report was written by a consul who had seen 
 some service, and, consequently, had some experience and knowledge 
 of the conditions in his district; but with all due respect to our 
 ambassadors and ministers. I would venture to submit that, while 
 they undoubtedly are highly capable gentlemen, far superior to con- 
 suls in knowledge of diplomacy and statecraft, they would not, as a 
 rule, be as well posted on the intrinsic value of a report for com- 
 mercial or industrial purposes as the average consul. 
 
 Again, in case the supervision of reports was left with the com- 
 mercial attache: While any consul, as a good disciplinarian, cheer- 
 fully accepts and executes any order issued by the Department of 
 State, he would not like to have some young attache dictate to him, 
 and perhaps curtail or change a report upon which he (the consul) 
 had expended much time, thought, and labor. It might happen, as 
 an American minister lately expressed himself to me, that " some 
 young attache might try to lord it over the consuls." I do not think 
 that any good results would evolve from a change giving the legations 
 supervision of consular reports, and friction might ensue. 
 
 At the risk of being suspected of arguing for personal promotion, 
 I would venture to offer the suggestion that the consuls-general of 
 the various countries, or at least some of them, might be fit subjects 
 to be considered in connection with the appointment of commercial 
 attaches. The consuls-general are stationed at or near the capital 
 of the country they reside in, and there could probably be no objec- 
 tion to giving them the grade of " commercial attache " in connection 
 with the office of consul-general. They would then have the entree at 
 government departments and bureaus, and would know just where 
 and how to get the information desired by them and by the consuls 
 of their respective districts, which latter could apply direct to the 
 commercial attache for all needed information. 
 
 By following this course, the expense of stationing a commercial 
 attache at the various legations would also, to some extent, be mini- 
 mized, as it would probably only be necessary to allow a consul-gen- 
 eral designated as attache an. extra clerk in his office or a moderate 
 increase of his salary. 
 
 S. Listoe. Consul- General. 
 
 Rotterdam, September 9, 190 1}. 
 
 Opinions of Consul at Amsterdam. 
 
 I have the honor to transmit herewith the following memorandum, 
 on the " Promotion of trade interests," in accordance with the instruc- 
 tion of the Department contained in circular dated August, 1904, 
 inclosing a copv of circular to the diplomatic officers, dated July 
 29. 1904: 
 
 I assume that at the present epoch the main work of both Ameri- 
 can diplomacy and consular effort is to further the commercial inter- 
 ests of the United States. At an earlier time the protection of the 
 American citizen and American citizenship was an important func- 
 tion of the consular as well as the diplomatic officer, and the necessity 
 of such protection led to the establishment of even many consular 
 offices, and was invoked as an efficient argument for the presence of 
 
PROMOTION OF TRADE INTERESTS. 125 
 
 large naval forces on foreign stations. AVitli the spread, however, 
 of the principles of western civilization over all the world, even in 
 the less enlightened regions, the closer relations following the estab- 
 lishment of steamship lines, cables, international business and bank- 
 ing houses, and the extension, given latterly, to missionary effort and 
 foreign travel; with all these changes in the aspect of things inter- 
 national, our officers, civil and military, do not stand in loco parentis 
 to their fellow-citizens temporarily abroad to the extent that pre- 
 vailed in those former periods of comparative isolation; while in 
 European countries, at least, the American denizen or transient, or 
 those that represent American interests, much less seldom invoke the 
 assistance of the Government's officials in maintaining their personal 
 rights, but in case of difficulties consult local attorneys, like residents, 
 and resort freely to the local courts, as any other citizen or subject of 
 the country. 
 
 In any discussion of this and allied topics Ave may then, I think, 
 premise : 
 
 1. That it is conceded that all the foreign government agencies of 
 the United States, diplomatic, consular, or naval, find their largest 
 measure of justification and their most constant employment in fur- 
 thering directly and indirectly the commercial interests of our 
 country. 
 
 2. That there is prevalent very little, if any, spirit in our diplo- 
 matic service that the consideration or adjustment of commercial 
 questions is beneath its dignity. 
 
 3. That our diplomatic representatives, quite independently of their 
 ability to represent our Government properly and creditably from the 
 purely diplomatic standpoint, are generally possessed of the business 
 capacity to aid the consular officers wisely in matters of that character. 
 
 With respect to the Netherlands : 
 
 The situation here is somewhat peculiar. In this country we have 
 two diplomatic officials and seven consular officers, not including the 
 clerk of this consulate, who is and long has been, for all practical pur- 
 poses, deputy consul. The consulate-general at Rotterdam is twenty 
 minutes and Amsterdam forty-five minutes from The Hague. The 
 Hague, which is locally designated as the residence of the sovereign, 
 if it be a capital, is so in a sense that is also quite peculiar. It is 
 officially the seat of the royal residence. The chambers of parliament 
 also meet there, but the distances from the homes of the members are 
 so short that few, if any, except the The Hague representatives, reside 
 there even during the sessions. 
 
 Nor is The Hague the scientific center, and the universities are at 
 Leyden, Utrecht^ Amsterdam, and Groningen. Add to this absence 
 from The Hague of the chosen representatives of the people who are 
 activtly engaged, generally speaking, in the ordinary avocations of 
 life and I doubt if there be any capital in the world that is more com- 
 pletely detached from the ordinary commercial life of the country 
 than The Hague. The Dutch saying that fortunes are made in Rot- 
 terdam, consolidated at Amsterdam, and spent at The Hague is a 
 sufficiently accurate characterization for our purpose. Amsterdam is 
 to the Netherlands, of which it is locally called the Hoofdstad — chief 
 
 « There is no capital provided by statute, and Amsterdammers, at least, always 
 refer to their city as the capital. 
 
126 PROMOTION OF TRADE INTERESTS. 
 
 city — what New York is to the United States, with something of the 
 character of a capital added, while Rotterdam, lying at what is com- 
 mercially at least the mouth of the Rhine, rivals Antwerp as a fast 
 growing contestant of Hamburg's supremacy, long held as the pre- 
 mier port of the continent. 
 
 Under the present minister at The Hague and during his absences, 
 while Mr. John TV r . Garrett has been acting as charge d'affairs, which 
 period covers my service here of five j^ears, both consular officers, as 
 I understand, certainly the incumbent of this office, have been prac- 
 tically commercial attaches, through the practice initiated by the 
 legation and responded to by the consulates of coordinating generally, 
 and I believe successfully, the actual work to which we fell common 
 heir, the diplomatic representatives calling upon us at intervals, and 
 we seeking certain data through the legation's good offices whenever 
 our local resources fell short. 
 
 In this entire jurisdiction I think, however, instead of creating* 
 friction it would simplify matters materially in case comprehensive 
 inquiries of a certain character from the Department should be sent 
 directly to the legation here to be either prepared, with the aid or co- 
 operation of the consular officers, or finally annotated, cut down, re- 
 shaped, or amended, or, if the minister should deem it wise, to direct 
 either or both officers, or anyone he sees fit, to prepare the report. The 
 class of reports that I have in mind, and in making up which time is 
 not usually a prime consideration, are the annual reports for Com- 
 mercial Relations, in which, as at present transmitted, there must be 
 a vast deal of reduplication ; such inquiries as have been made on the 
 mercantile marine in foreign countries, emigration, rivers and har- 
 bors, trust and trade combinations in Europe, in short those elaborate, 
 statistical, sociological, and economic inquiries of large scope, which 
 the legation from its undoubtedly wider view point could plainly bet- 
 ter direct. 
 
 Furthermore, it may be that the legation could more efficiently and 
 readily secure the right kind of statistical data, properly tabulated, 
 which in a complete form is often painfully lacking in these full re- 
 ports, however voluminous the isolated figures transmitted are. At 
 any rate, all three agencies endeavoring at the same time, quite in- 
 dependently of one another, to secure from the government identical 
 data would be avoided. 
 
 With respect to the larger countries, such as Brazil and Germany, 
 for example, where the facilities at the capital are immeasurably su- 
 perior to those of the seats of the outlying consulates and where the 
 local consular officer is almost certain to be affected by the sentiment 
 and interests of the State where he is located, my opinion is that the 
 more closely such officers could be brought under the supervision of 
 the legation without being subjected in their work to what might 
 easily become in practice the vexatious interference of inexperienced 
 subordinates, the more desirable it would be. Consuls-general in such 
 countries would not generally, being consuls themselves with clearly 
 defined districts, be able or perhaps willing to direct consular officers 
 under their jurisdiction with the unquestioned authority of the dip- 
 lomatic representative, either minister or full secretary of legation. 
 I should suppose that such an officer as commercial attache would be 
 a very useful adjunct to the legation. Such reports, for example, as 
 those made by Mr. Gastrell, of the British service at Berlin, on the 
 
 
PROMOTION OF TRADE INTERESTS. 127 
 
 larger aspects of foreign trade and finance, which have been thought 
 so valuable as to be reprinted entire by the Department of Commerce 
 and Labor at Washington in the Monthly Summaries of Commerce 
 and Finance, could scarcely be made by any American consular officer 
 charged with the routine duties, day in and day out, of our offices. 
 Further, under the recent, and as I believe wise tendency to restrict 
 consular officers to their districts as regards the subjects, in the main, 
 of their reports, though not the method of treating the same, consular 
 officers, not consuls-general, would not feel at liberty to take up such 
 exhaustive inquiries on their own initiative. 
 
 My opinion is that an added official to the legation personnel; under 
 present conditions as described, would not readily find a great deal 
 to occupy himself with, and that he might easily, and perhaps quite 
 unconsciously, if, after having gotten his official statistics from the 
 central government offices at The Hague, he sought to push his in- 
 quiries, which would then have just begun at Rotterdam and Amster- 
 dam, become a disturbing rather than a connecting link between the 
 legation and the consulates subordinate thereto in their common 
 work. For example : It took the present incumbent of this office the 
 better part of his first two years at this post to establish relations 
 with the most effective helpers here for his purposes, and some, at 
 least, of these gentlemen who aid so cheerfully in the voluntarily 
 imposed task of supplying or helping to secure data take a pride in 
 the fact that they have been singled out as authoritative persons in 
 their branch. While, of course, they are not by any means the exclu- 
 sive sources of supply, and information is gathered in all ways open, 
 yet if a legation official should begin to organize here, independently, 
 by letter, or personal intercourse, a sort of bureau of information, 
 he might, perhaps, estrange present helpers and hamper or damage 
 seriously the little " bureau of publicity " which has been slowly 
 built up here. 
 
 In general, however, I am prepared to believe that some carefully 
 ihouglrUout plan can be adopted that will coordinate more perfectly 
 the commercial work of both the diplomatic and consular agencies, 
 without impairing at all the spirit of initiative on the part of the 
 consular corps, and without throwing upon our diplomacy a mass of 
 consular work which it has not the time, taste, or machinery to 
 dispose of. 
 
 Frank D. Hill, Consul. 
 
 Amsterdam, September 27, 190^ 
 
 RUSSIA. 
 
 Opinions of the C onsvl-General. 
 
 I have the honor to acknowledge receipt of the Department's circu- 
 lar under date of the 4th instant, and to say in reply that I fully 
 approve of the suggestion contained therein, that commercial at- 
 taches to our embassies and legations be created to better facilitate 
 foreign trade relations with our country. I am satisfied that through 
 this influence, with the advice and assistance of our ambassadors and 
 ministers, great advantage would be realized by consuls-general or 
 consuls in the performance of their duties, especially in a city like 
 
128 PROMOTION OF TRADE INTERESTS. 
 
 St. Petersburg, where it is very difficult to get information from the 
 various ministers upon trade matters. I would recommend, how- 
 ever, that, instead of creating new and special officers in this capacity, 
 existing consuls-general and consuls be made also commercial at- 
 taches to American embassies and legations, therelr> giving all the 
 advantages without the expense to our Government for separate 
 members of the staffs of our embassies and legations. I believe 
 results under this arrangement would be productive of more good, 
 and without the chance of complications or friction arising between 
 consular officers and commercial attaches, than if the offices of sep- 
 arate commercial attaches were created. 
 
 Ethelbert Watts, Consul-General. 
 
 St. Petersburg, August 23. 190 4. 
 
 Opinions of other Consular Officers. 
 
 BATOOM. 
 
 I have duly come into possession of the circular of the Depart- 
 ment, dated August 4, covering copy of a circular to the American 
 diplomatic officers in regard to a plan for the coordination and 
 improvement of existing facilities for the collection of commercial 
 intelligence. The contents of the circular to the diplomatic officers 
 have had my careful attention, but in view of the fact that my con- 
 sular appointment only dates from a few months back, I do not feel 
 that I have had sufficient experience of the working of the system 
 now in force to warrant my offering an opinion as to any modifica- 
 tion thereof. Speaking from a business point of view. I should 
 say that the scheme outlined in the circular of the Department would 
 certainly tend to efficiency and reliability. It appears to me, however, 
 that it would be desirable that reporting consular officers should be 
 notified of the annotations or corrections made on their reports by the 
 respective diplomatic officers, with a view to thoroughly elucidating 
 the points in question and at the same time, such a course would 
 enable the consular officers to rectify, for future guidance, any inac- 
 curacies in the information recorded in their offices. 
 
 TT. EL Stuart, Acting Vice-Consul. 
 Batoom, September 24, 1904- 
 
 WARSAW. 
 
 I have the honor to reply to the Department's instructions, dated 
 August 4, in reference to the participation of the diplomatic service 
 in the promotion of American trade interests, as follows: 
 
 Many diplomatic officers take a lively interest in the promotion 
 of our commercial prosperity as it is, and it is through the embassy 
 that much of the statistical data to be obtained in this country is 
 obtainable. I feel, however, that, in Russia especially, the active 
 participation in commercial affairs by the diplomatic officers accred- 
 ited to its government would lessen the dignity and, perhaps, reduce 
 materially the prestige now possessed by American embassies. 
 
PROMOTION OF TRADE INTERESTS. 129 
 
 I assume the proposed plan to mean the addition of a commercial 
 bureau to each embassy. In Russia, from the status of the people 
 with whom diplomatic officers are most in contact, I fail to see 
 how the new bureau would accomplish its purpose unless departing 
 from those associations, and this departure would, I think, lessen 
 the rights which should be inherent in the highest diplomatic officer 
 of our Government. 
 
 Presuming the new bureau to become a fact, what can it accomplish 
 toward the actual promotion of American commercial interests which 
 the properly exercised functions of the consul-general, usually located 
 in the same city, will not do? The transmission of reports via the 
 'embassy would, in my opinion, retard somewhat our commercial 
 activity, especially in regard to reports which I consider to be in 
 the emergency class — reports of opportunities existing for the Amer- 
 ican manufacturer, of which immediate advantage must be taken, if 
 at all. 
 
 I would, of course, welcome any addition which would tend to our 
 commercial growth abroad, but I certainly do not feel that the amount 
 of gain commercially would compensate for the loss of position. I 
 do not doubt that the circumstances may differ vastly in other gov- 
 ernments, but as to Russia I feel convinced as to what is above 
 
 outlined. 
 
 Warsaw, August 29, 190 If. 
 
 Clarence Rice Slocum, Consul. 
 
 SPAI^. 
 
 Report from Minister Hardy. 
 
 American Legation, 
 
 Madrid, October 18, 1904. 
 
 In reply to your circular of July 29 last, on the " Promotion of 
 trade interests," which I find here on my return from leave of ab- 
 sence, I have the honor to submit the following considerations : 
 
 As regards the first part of question 2, Spain has at present no 
 commercial attaches, and relies entirely upon its consular officers for 
 the promotion of its trade interests abroad. The existing law pro- 
 vides for commercial attaches, and some years ago was for a time- 
 in practical operation; but I am informed the results were very un- 
 satisfactory, the law was allowed to lapse, and is not likely to be 
 revived. It is alleged that the chief reason for the discontinuance 
 of commercial attaches was that they engaged in trade. As this is 
 not a necessary result of the system and could easily be checked by 
 suitable regulations, I am inclined to believe that the poor results 
 must be ascribed to other causes, such as defective organization and 
 the desire for economy, and that the experience of Spain affords no 
 real argument against the usefulness of the officers in question. 
 
 In reply to the second part of question 2, " Would such attaches, 
 in your judgment, be useful for the United States?" I have no hesi- 
 tation in answering in the affirmative, provided — 
 
 First. That competent men were appointed. By competent I mean 
 
 IT. Doc. 245, 58-3 9 
 
130 PROMOTION OF TRADE INTERESTS. 
 
 that the} 7 should have both commercial training and commercial ex- 
 perience, and should speak the language of the country to which they 
 are sent. 
 
 Second. That adequate provision was made for efficient work. By 
 adequate provision I refer not only to the compensation required to 
 secure competent men, but also to the facilities for travel which should 
 be afforded whenever the collection of facts and data made personal 
 observation or investigation important, and to the clerical assistance 
 necessary in the preparation of reports. 
 
 Third. That such an adjustment of duties was made between the 
 consular officers and commercial attaches as would preserve the 
 initiative of the former and obviate friction. 
 
 In other words, a man who makes an excellent secretary of lega- 
 tion would as a commercial attache be a useless incumbrance unless 
 specially qualified for the work, and unless afforded proper facilities 
 would not achieve results superior to those attained under the pres- 
 ent system. While under the present system valuable reports on 
 the industrial and commercial interests of their districts are made 
 by the consuls or consuls-general, the fact that the duties of these 
 officers rarely permit them to go outside of their districts renders 
 their reports incomplete and local in character. I do not believe that 
 under a suitable adjustment of duties the value of these local reports 
 would be impaired by the creation of commercial attaches, while on 
 the other hand these latter, having, as diplomatic officers, immediate 
 access to the centers of official information, would be able to supply 
 that comprehensive information on subjects of general interest and 
 importance to which the circular refers. 
 
 The general plan outlined in question 1 presents to my mind no 
 difficulty if it contemplates the assignment of a commercial attache 
 to the mission. It would often be embarrassing for the head of 
 the mission to undertake to revise and supplement consular reports 
 in answer to instructions for particular inquiries from the Depart- 
 ment. Xo such embarrassment would arise in the case of a com- 
 mercial attache, who has, strictly speaking, no diplomatic function; 
 that is, whose duties are understood to relate solely to commercial 
 affairs, and whose connection with the legation or embassy is chiefly 
 for the purpose of securing for him free access to the ministerial 
 departments of government specifically concerned with trade inter- 
 ests. While the head of a mission may render valuable assistance 
 in the promotion of the trade and commerce of the country which 
 he represents, his influence in this respect will, in my judgment, 
 be far greater if the diplomatic and commercial interests of the 
 missison are, so far as he is concerned, kept distinct. 
 
 Moreover, his contact with business men and his knowledge of the 
 movements and opportunities of the business Avorld are far less inti- 
 mate than would be those of an attache specially qualified and 
 assigned to such work. Nor can he consistently with his other duties 
 absent himself from the capital for investigation or consultation. 
 
 Our consular service is generally recognized abroad as most effi- 
 cient, and its efficiency has steadily increased. It labors, however, 
 under certain disadvantages: First, the fact that it has no direct 
 access to central sources of information, and that the indirect access 
 supplied by the mission is slow and not always thorough: second, 
 that its officers, for obvious reasons, are not always able to obtain the 
 
PROMOTION OF TRADE INTERESTS. 131 
 
 large view or grasp of general subjects necessary to complete and com- 
 prehensive reports, and, third, that, although theoretically a commer- 
 cial agent, it sometimes happens that a consular officer has had no 
 business training or experience whatever. 
 
 These defects would be remedied by the appointment of commercial 
 attaches if, as already indicated, they were qualified to act as such. I 
 see no practical difficulty in the way of such appointments, and have 
 observed none in the case of the commercial attaches of Great Britain 
 and Portugal at this post, both of whom are exceptionally efficient 
 officials. On the contrary, I have frequently had occasion to observe 
 the thoroughness of their work and their extreme usefulness in afford- 
 ing information to their heads of mission as well as to their Govern- 
 ments. 
 
 Arthur S. Hardy. 
 
 Opinions of Consular Officers. 
 
 CAKTHAGENA. 
 
 As I am unacquainted with the duties attaching to the diplomatic 
 service, I can offer no opinion as to the feasibility of the proposals 
 embodied in the Department's circular. Speaking on general lines, 
 it would seem advisable to have some centrally located officer, who 
 could obtain any desired information from official sources. Such 
 information would probably be of a statistical character, and would 
 most likely be obtained at the expense of some loss of time, due to the 
 slow routine which characterizes all government offices in this coun- 
 try. Apart from statistics, I think that local officers in close touch 
 with importers and exporters are beter qualified than the diplomatic 
 service to state facts and offer opinions regarding the conditions of 
 trade in their respective localities. 
 
 •* Jos. Bowron, Consul. 
 
 Carthagena, September i, 190 >+. 
 
 JEREZ FRONTEKA. 
 
 I have the honor to state, in answer to circular dated August 4-, 
 1904:, that in Jerez, a city of 65,000 people, there are no records of ves- 
 sels arrived and departed, nor any of Spanish and foreign tonnage 
 engaged in export and import trade. The city taxes nearly every- 
 thing that comes in, in addition to customs duty, but there is no rec- 
 ord kept, for the reason that the business of taxing imports into the 
 city is farmed out to private parties who pay the government a cer- 
 tain sum for the privilege, and these parties are not willing to make 
 public the quantity of imports nor the amount collected. Although 
 taxes are levied on all live stock in the district, as well as on real 
 estate and improA'ements, there is no record accessible to supply infor- 
 mation. All these statistics can be obtained at Madrid from the gen- 
 eral offices by our minister. It is especially true of Spain that our 
 minister at Madrid, cultivating agreeable relations with the depart- 
 ments, can furnish valuable statistics impossible for consuls to pro- 
 
132 PEOMOTION OF TRADE INTERESTS. 
 
 cure. Generally, a minister's more influential position, political and 
 social, provides much greater possibilities than a consul's. 
 
 M. M. Price, Commercial Agent. 
 Jerez Froxtera, September 1 : 190Jf. 
 
 MALAGA. 
 
 Replying to Department circular, ''Promotion of trade interests," 
 I would say that the scheme as outlined in the accompanying circular 
 to the diplomatic officers appeals to me as being an excellent one for 
 the purposes stated. During my twenty months of service, it has 
 many times occurred to me that a coordination along the lines sug- 
 gested would eliminate many elements of uncertainty and more fully 
 cover all points of interest without danger that items of commercial 
 value would be lost by reason of misunderstanding. 
 
 Sweeping changes are often made in the laws and regulations of 
 a foreign power, which even if not of commercial importance are 
 interesting in a general way. Such changes, affecting all Spain, 
 could, I think, be more comprehensively reported by the diplomatic 
 officer in Madrid, for the very reason stated in the Department circu- 
 lar, " The inability of consular officers to reach the center of official 
 information." It may be, however, as is the case in Spain, the capi- 
 tal city not being an exporting center, that changes of a commercial 
 character will not come prominently to the attention of our minister ; 
 but if closer relations were established between consular and diplo- 
 matic officers, the danger of losing a valuable piece of information 
 would be lessened. 
 
 My official relations with our present minister in Madrid, Hon. 
 Arthur S. Hardy, have been confined to a line of correspondence other 
 than commercial, but I have always had ready reply and wise counsel 
 upon such matters as I addressed to him. I would be glad to be 
 brought more closely into contact with him, and would take pleasure 
 in rendering him all assistance possible. 
 
 Malaga, November 7, 1904. 
 
 D. R. Birch, ConsuL 
 
 SEVILLE. 
 
 Replying to the Department's circular, " Promotion of trade inter- 
 ests. "' I would state that with my long and varied experience in both 
 the diplomatic and consular services I am decidedly of opinion that 
 our commercial relations with foreign countries would be greatly 
 benefited by means of cooperation with the diplomatic service. 
 Commercial or industrial attaches at our embassies and legations 
 would undoubtedly bring about surprisingly good results. Such 
 representative ought to be thoroughly familiar with the products 
 and manufactures of the United States, the language, customs, and 
 requirements of the country to which he is accredited, its resources, 
 importations by country of origin, existing commercial treaties, etc. 
 Moreover, agencies established at capitals would have a grand oppor- 
 
PROMOTION OF TRADE INTERESTS. 133 
 
 tunity for obtaining early information, which might lead to a large 
 sale of our products and manufactures in the construction of public 
 works, railroads, telegraphs, new inventions, and many other ways 
 too numerous to mention. 
 
 Important trade reports, the scope of which cover a whole nation, 
 might best be furnished to such agent, since in many instances but a 
 portion of the queries now sent to us are applicable to all of the 
 consular districts of the country. Undoubtedly a commercial or in- 
 dustrial attache, by the aid of the diplomatic representatives, would 
 be enabled to gather a great deal of important information and sta- 
 tistics connected with the trade which it is difficult, if not impossible, 
 for a consul to obtain. » 
 
 The world's commerce is daily becoming more and more competi- 
 tive, and if we desire to increase our own no means for doing so 
 should be overlooked. A commercial attache should be stationed at 
 every capital, with facilities for obtaining and disseminating infor- 
 mation. He should have at hand statistics, newspapers, and direc- 
 tories of the leading cities, reports from various chambers of com- 
 merce — in fact, his office should be a bureau of information to the 
 Government and our merchants. There is no necessity for friction 
 between his office and the consulates since the object is to benefit the 
 nation, and I would give my most hearty cooperation to anyone who 
 might hold such office. 
 
 We have our military and naval attaches, whose duties are to 
 gather information for their respective Departments. Information 
 relating to industrial and commercial affairs obtained by commercial 
 attaches would be for the benefit of our industries and manufactures, 
 and this object appears to me of quite as great national importance 
 as any information that might be gathered by the two former. 
 
 R. M. Bartleman, Consul. 
 
 Seville, August W, 1904. 
 
 SWEDEN AND NORWAY. 
 
 Report from Minister Thomas. 
 
 American Legation, 
 Stockholm, August 25, 1904- 
 
 I have the honor to acknowledge the receipt of circular instruction 
 of Juh" 29 upon the " Promotion of trade interests " and to submit 
 the following memorandum in reply thereto, premising that as I am 
 now on the eve of departure for America upon leave of absence my 
 reply must necessarily be brief. 
 
 In regard to point 1 of the circular this question seems naturally 
 to arise: As our consuls are preeminently commercial officers, and 
 as their reports of recent years have been so able, thorough, and imme- 
 diate as to be the object of imitation and emulation by other nations, 
 are not they (our consuls) as a rule better informed upon the com- 
 mercial and industrial subjects upon which they naturally report to 
 the Department than are our diplomatic representatives: and if so, 
 would the reports of our consuls be improved by being revised and 
 annotated by our diplomats? Furthermore, would not such subor- 
 dination of consuls to diplomatic representatives inevitably give rise 
 
134 PROMOTION OF TKADE INTERESTS. 
 
 to that friction between the two branches of the service and dampen 
 that spirit of initiative on the part of the consular corps, the danger 
 of which is indicated in the circular ? 
 
 In reply to point 2, I beg to state that I am informed by the for- 
 eign office that commercial and industrial attaches are unknown to 
 the diplomatic service of Sweden and Norway. 
 
 Such attaches could no doubt be useful, but is there not danger 
 that the chief consular officers at the capitals where such attaches 
 were stationed would regard them as in some sense duplicate consuls, 
 and consider that if the commercial attaches were appointed specially 
 to report upon commercial matters the consular officers were in some 
 measure relieved from doing so, at least in so full and thorough a 
 manner as at present ? 
 
 Under existing conditions, and with our diplomatic and consular 
 corps constituted as they are, the exports of the United States, not 
 only of raw materials, but also of manufactured products, have in- 
 creased of late years both in volume and in value in those magnificent 
 proportions which form, I apprehend, a record in the commercial 
 history of the world. 
 
 William W. Thomas. 
 
 Opinions of Consular Officers. 
 
 BERGEN. 
 
 Replying to circular, " Promotion of trade interests,'' I think there 
 is no doubt but that in general diplomatic officers can and do render 
 consular officers invaluable assistance in gaining commercial infor- 
 mation; and the closer the relations the better it will be for obtain- 
 ing trade information, and, in most cases, the more reliable and 
 up to date will be the information given in consular reports. The 
 sources of obtaining the best and most recent data on subjects are 
 always open to our diplomatic officers, which is not true in even 7 case 
 of consular officers, especially when they do not reside in the capital. 
 
 In Sweden-Norway, however, our legation is situated at Stock- 
 holm (Sweden), while the offices where recent information can be 
 obtained concerning commercial matters are at Christiania (Norway) , 
 so it would seem the advantage with reference to Norway will not be 
 so great. Nearly all information not published must be obtained 
 from the ministerial officer in charge, who is located in Christiania, 
 and for this reason it sometimes happens that up-to-date information 
 can not be obtained by the consul-general in Christiania, when our min- 
 ister would require greater time and be no more reliable. It seems to 
 me that answers to questions requiring up-to-date reports, covering 
 the entire country of Norway, can only be obtained by the consul- 
 general, since he is the only officer who has an opportunity to per- 
 sonally visit these bureaus. That he will assist other consular officers 
 in Norway so far as his time permits in obtaining information on 
 subjects in which they are specially interested there is no doubt, and, 
 being on the ground, he will, I think, be able to procure more 
 promptly up-to-date information than would our minister at 
 Stockholm. 
 
 E. S. Cunningham, Consul. 
 
 Bergen, September 12, 1904. 
 
PROMOTION OF TRADE INTERESTS. 135 
 
 CHRISTIANIA. 
 
 I have the honor to acknowledge receipt of circular, '•Promotion 
 of trade interests," and in answer express my views on the subject, 
 as requested. 
 
 The Christiania consulate is somewhat singularly situated, inas- 
 much as Sweden, where our legation is located, and Norway, are 
 both independent states, with their separate governments and laws. 
 During the time I have held the Christiania consulate, I have never 
 experienced any special difficulty in obtaining information on sub- 
 jects of interest for the promotion of American trade. Commercial 
 information is generally secured from merchants and importers with 
 whom I have become acquainted. When called upon to furnish 
 information regarding state institutions and other similar matter. I 
 have always been able to secure it by applying, either by letter or 
 verbally, to the proper department. Matters of a specific diplomatic 
 nature, if such should come to hand, will promptly be referred to the 
 legation at Stockholm. 
 
 Hexry Bordewich. Consul- Gene red. 
 
 Christiania. August £6, 1904. 
 
 f GOTHENBURG. 
 
 With reference to the circular of August 4, I beg to say that I 
 think the proposition in said circular is a good one, especially for the 
 purpose of obtaining statistics which the consuls are often called 
 upon to furnish in official reports. 
 
 I have often found it difficult to obtain the data wanted. The 
 complete statistics of imports and exports, industries, etc., are pub- 
 lished sc\ late that they are practically of not use, Preliminary or 
 incomplete statistics are, to a certain extent, issued earlier; but as 
 they are printed in the capital they could most easily and quickly 
 be obtained by the officers stationed there. It should be remembered 
 that the statistics cover the whole country, although the complete 
 statistics give certain facts for each port or county. Consequently, 
 a consul must either give the figures for the whole country, or must 
 laboriously add together the figures for all the cities within his con- 
 sular district, if he is requested to report upon his own district alone. 
 Certain statistical reports from Swedish officers and corporations 
 are never published, but simply kept in the archives in Stockholm. 
 and a consul stationed at another place could not, without consider- 
 able trouble and expense, obtain a statement of their contents, but 
 expenditures for obtaining information for reports are seldom 
 authorized. 
 
 Incomplete statistics about the shipping and import and export of 
 a city, are usually published in the local newspapers; if the consul 
 wants these figures earlier or more in detail, he must pay local officers 
 for preparing the statements from the written registers or records. 
 But information which can be given without much work or writing- 
 can usually be obtained, and has been obtained by me, free of charges 
 through the courtesy of business men and local officers, in the city 7 
 where the consular officer is residing. 
 
 If the proposition is carried into effect, the consular officers could, 
 
136 PROMOTION OF TRADE INTERESTS. 
 
 of course, continue to furnish information as to the names of import- 
 ers, etc., in their respective cities, to American manufacturers and 
 exporters asking for such information, and could also find out the 
 opinion of merchants about American goods in the market or about 
 to be introduced, about packing, terms, and other matters of similar 
 character. 
 
 I think, however, that a consular officer called upon to furnish cer- 
 tain information ought to be told whether or not the same request 
 or questions have been sent to any other consular officer within the 
 same country. 
 
 Robert S. S. Bergh, Consul. 
 Gothenburg, August 31. 190 ^ 
 
 SWITZERLAND. 
 
 Report from Minister Hill. 
 
 American Legation, 
 Berne, August 16, 190 %. 
 In reply to the Departments circular on the ;; Promotion of trade 
 interests,*' dated July 29, 1904, 1 have the honor to make the following 
 observations : 
 
 1. It would be entirely practicable for this legation to transmit to 
 consular officers of the United States in this country instructions 
 from the Department making particular inquiries, with such sug- 
 gestions as would be likely to aid them in securing desired informa- 
 tion. It would also be practicable to supplement their reports with 
 such information as the legation might, in addition, be able to obtain. 
 The " revision " of such reports would, however, seem liable to incur 
 a double disadvantage: (1) A divided responsibility for the contents 
 of the reports; and (2) the possibility of a misunderstanding and, 
 perhaps, discussion, between the legation and the consulates. It 
 would, possibly, meet entirely the needs and views of the Department 
 if, in a separate and additional report from the legation, any errors 
 or omissions which might be observed in the consular reports were 
 pointed out, together with any expressions likely to give offense to 
 the Swiss Confederation. 
 
 2. Xo such cooperation as that outlined above exists, so far as I can 
 ascertain, between the diplomatic and consular services of Switzer- 
 land. The Swiss Government has no commercial or industrial 
 attaches. 
 
 In answer to the question whether, in my judgment, commercial 
 attaches connected with the diplomatic missions of the United States 
 would be useful. I have to reply that, while in my opinion, commer- 
 cial experts might prove exceedingly useful to the commerce of the 
 United States, it would not be desirable to connect them with the 
 diplomatic body. The reasons for this view are: (1) that their 
 duties would naturally associate them more intimately with the con- 
 sular service; (2) that no distinct advantage would be derived from 
 their connection with the diplomatic representation which could not 
 be otherwise obtained; and (3) that questions and incidents might 
 easily arise through the employment of the diplomatic representation 
 
PROMOTION OF TRADE INTERESTS. 137 
 
 as a commercial agency which would tend to embarrass its operations 
 and diminish its influence in those matters for which a diplomatic 
 mission is specifically intended. That a diplomatic representative of 
 the United ' States should be deeply interested in the commercial ad- 
 vantage of his country, and that he should labor assiduously to pro- 
 mote it are propositions too obvious to be discussed; but that he 
 should be directly responsible for the acts of an exclusively commer- 
 cial representative connected with his official family might prove a 
 cause of anxiety and of inconvenience. An aggressive commercial 
 campaign in any country is not unlikely to excite a certain measure 
 of opposition among its people and officials. It does not detract from 
 the desirability of conducting it to say that a diplomatic officer can 
 be more useful as an aid in accomplishing its success if he is not too 
 closely identified with all its operations. 
 
 It appears to me, therefore, that if the Government of the United 
 States is disposed to send commercial experts to foreign countries for 
 the purpose of promoting the trade of the United States they could 
 accomplish every good result if they were attached to the consulate- 
 general rather than to the legation in Switzerland, with authorization 
 to spend their time in visiting every part of the country. The lega- 
 tion could in many ways promote the success of their labors without 
 itself directing the enterprise, which would not only bring it under 
 the critical observation of the Federal Government of this country, 
 but might possibly create the impression that the chief purpose of the 
 legation was not to cultivate friendly relations between the two coun- 
 tries, but to obtain the greatest amount of gain from the Swiss people. 
 
 David J. Hill. 
 
 Opinions of the Consul-general. 
 
 r 
 
 ST. GALL. 
 
 I have the honor to acknowledge the receipt of Department's cir- 
 cular entitled " Promotion of trade interests," directed to the Ameri- 
 can diplomatic officers, on which I am instructed to give my views. 
 
 I can not see in what manner the Department would benefit by 
 transmitting its instructions through the diplomatic officers to the 
 consuls, instead of through the consuls-general. In the general mer- 
 cantile policy of the Government, as it tends to the increase of our 
 trade, I think the consul-general, who is acquainted with the condition 
 of his district, and therefore knows which consul is best qualified to 
 make a report, is the officer who should transmit the directions of the 
 Department. No doubt the diplomatic officer benefits by the consular 
 reports, but as he receives, I suppose, the daily printed consular 
 reports, which give him the local color and business of the country to 
 which he is accredited, he has the information in a more concrete 
 form and with less personal work than that entailed by receiving the 
 reports directly from the consul. The annual report made by consuls, 
 based as it is on statistics for the whole country, would simply be 
 a repetition of information which the diplomatic officer already has. 
 
 The advancement of trade, the sale of American products in Eu- 
 rope, or the transplanting of European industries in America, arise 
 from personal and natural causes. Thus, our tariff laws compelled 
 
138 PROMOTION OF TRADE INTERESTS. 
 
 many German industries, and industries from other lands, to move 
 to America and to build and operate plants of more or less magnitude. 
 while the increased sale of American raw products and manufactured 
 articles was due, first, to the necessity of Europe, and second, to the 
 active canvass of the consular corps, their reports to the Department, 
 and letters in answer to firms requesting information on hundreds of 
 different questions. It seems to me that the introduction and sale of 
 articles of American produce is largely a local matter, and that that 
 local matter can best be attended to by the consular officer accredited 
 to a particular district, that, in other words, a trained consul can do 
 as well as a trained commercial attache. 
 
 TTe of the consular corps can inform our merchants and manufac- 
 turers on almost any question they may specify. We can go so far as 
 to induce European merchants to make small sample orders, thus plac- 
 ing the wedge in the door for greater orders. The subsequent steps 
 to hold an increase of trade must be taken by the manufacturer and 
 his agents. 
 
 I can not see that the diplomatic officer could do more or has ever 
 done more. The consular corps could be bettered by retaining men 
 of long standing and ability, who would be well acquainted with the 
 local conditions of trade in America, and the requirements of the 
 people to whom they are accredited, and working in harmony under 
 a trained consul-general they would, to my mind, represent a body of 
 men under perfect organization, rendering the best service to their 
 country obtainable. Any information, local or general, that it is 
 possible for a consul to give is given gladly, at the request of any dip- 
 lomatic officer. 
 
 The Department has done me the honor to ask my views on this sub- 
 ject, and they are that the two corps would work better as separate 
 institutions, both reporting to the one Department. 
 
 Thomas Willing Peters, 
 
 Consul-General. 
 
 St. Gall, August 30, 1904. 
 
 Opinions of other Consular Officers. 
 
 BASEL. 
 
 Department circular of August 4, transmitting the circular of 
 July 29, ** Promotion of trade interests," addressed to diplomatic offi- 
 cers, has been duly received. 
 
 I have long been convinced that something might be well under- 
 taken for the better coordination of consular reports on trade. The 
 reports of several of my more eminent colleagues in Europe are cer- 
 tainly of great value: but it frequently happens that the labor and 
 time involved in their preparation have been employed by several 
 consuls at the same time in covering substantially the same ground. 
 If I am not mistaken, identical statistics of exports and imports have 
 been several times repeated in the reports from a given country. 
 
 It is especially this defect in the service of collecting commercial 
 information that I should expect to see removed by the plan sug- 
 gested. The diplomatic officer would, of course, assign to the clif- 
 

 PROMOTION OF TRADE INTERESTS. 139 
 
 ferent consuls the work which each is best fitted, 03^ his situation or 
 aptitude, to perform in the preparation of all reports except those 
 having reference to matters in their several districts. 
 
 I had thought that this supervision might be exercised by the con- 
 suls-general, but the greater authority of the ministers would, no 
 doubt, give more satisfactory results in this direction, as well as in the 
 others mentioned in the circular. 
 
 Geo. Gieford, Consul. 
 
 Basel, September /, 190 Jf. 
 
 BERNE. 
 
 I have the honor to state in answer to the circular, " Promotion of 
 trade interests :" 
 
 1. That the difficulty upon the part of consular officers in obtaining 
 information from the Swiss federal authorities is more fancied than 
 real. Here in Berne they seem to distinguish between commercial 
 and diplomatic matters, and we have no difficulty in obtaining an}' 
 trade information we desire. We find the different federal depart- 
 ments courteous and willing in their replies. 
 
 2. The value of a revision of a consular report by the legation 
 would depend on whether the personnel of the legation was literary or 
 commercial. Granted that the members of the legation possessed 
 sound business experience and the commercial instinct, the revision 
 would be valuable. Otherwise, a report might be improved as a 
 literary production, but hardly improved commercially. 
 
 '3. Where the consular officers are doing the work they can and 
 should, a " commercial attache " would be like the " fifth wheel of a 
 coach." It, would seem that we have machinery enough, and all that 
 is necessary is to work it'. 
 
 Edward Higgins, Consul, 
 
 Berne, October IS, 1904. 
 
 GENEVA. 
 
 In reply to the circular directing an expression of views on the 
 probable promotion of American trade interests abroad by the coop- 
 eration to that end of diplomatic officers with consuls, under the more 
 immediate direction of the diplomatic officers, I have the honor to 
 report that in the particular case of this consulate I am not of 
 opinion that instances would arise, unless possibly in such rare cases 
 as not to create a consideration, wherein the channels of information 
 open to the consulate are not amply sufficient for the obtaining of 
 such information as the consulate is called upon to furnish. 
 
 In the Kepublic and Canton of Geneva, the various bureaus of the 
 Government respond readily to any requests from the consulate for 
 information and also furnish pamphlets that may have been pre- 
 pared on different subjects — such as adulteration of food, road build- 
 ing, sanitary regulations, control of sale of food, public instruction, 
 police regulations, statistics of population (floating and permanent), 
 health statistics, general statistics, etc. — on request. 
 
 It would therefore seem under special conditions prevailing here 
 
140 PROMOTION OF TRADE INTERESTS. 
 
 that the instances wherein the legation would alone be able to act 
 effectively would have to be of a purely diplomatic nature, and such 
 would come into the exclusive hands of the legation from the com- 
 mencement. 
 
 It might further be observed that a difference in language — and, 
 to a corollary extent, in the habits of the people — occasions definite 
 differences in the demands in the markets of this, the French-speak- 
 ing section of Switzerland, from those prevailing in other parts of 
 the country where the German language is spoken; so that informa- 
 tion obtained at Berne, the capital, in a German-speaking section, 
 would not always be applicable in Geneva, situated as it is in the 
 French-speaking part of the country. 
 
 As regards directions from the legation, there can be no doubt that 
 practical benefit would be derived from the broader knowledge of a 
 minister in touch with an entire country. 
 
 Horace Lee Washington, Consul. 
 
 Geneva, September 9, 190Jf. 
 
 EUCERXE. 
 
 I have the honor to acknowledge the receipt of the Department's 
 circular, together with the circular to the diplomatic officers, dated 
 July 29, 1904, in regard to a plan for the coordination and improve- 
 ment of existing facilities for the collection of commercial intelli- 
 gence and the promotion of American trade interests abroad. The 
 plan outlined by the Department would operate, in my opinion, to 
 obtain a far more comprehensive report on the subject of trade con- 
 ditions where the report covered the entire country under considera- 
 tion. It is frequently noticed that a group of reports made by con- 
 sular officers are often conflicting, either through errors of fact or 
 judgment, and are in consequence misleading and ineffective to our 
 manufacturers and exporters. 
 
 Henry H. Morgan, Consul. 
 
 Lucerne, September 17, 1904- 
 
 TURKEY, a 
 
 Report from Minister Leishman. 
 
 American Legation, 
 Constantinople, September 27, 190Jf. 
 I have to acknowledge the receipt of the Department's circular note 
 of July 29, 1904, asking for certain information with a view of enlist- 
 ing the services of the diplomatic officers abroad in the " Promotion 
 of trade interests." 
 
 The Department will always find me a cheerful and earnest sup- 
 porter of any move toward the extension of American commerce, and 
 I am quite of the opinion that very material assistance can be ren- 
 
 « Including both Turkey in Europe and Turkey in Asia. 
 

 PROMOTION OF TRADE INTERESTS. 141 
 
 dered by diplomatic officers, especially in an extraterritorial country 
 like Turkey. 
 
 1. In answer to your inquiry as to whether it would be practicable 
 for the minister to transmit inquiries concerning commercial matters 
 to the several consulates, together with any suggestions that may ap- 
 pear advantageous, and to revise the answers in the manner indicated 
 in your circular note, I beg to say that I can see no good reason why 
 this could not be done, provided that proper assistance be furnished 
 the legation to enable it to conduct the business in an intelligent and 
 proper manner. 
 
 The question of avoiding friction with the consular corps is always 
 a delicate matter, and in cases somewhat of a problem, so much so in 
 an extraterritorial country like Turkey that all of the European 
 powers find it desirable to place their consular officers in the Otto- 
 man Empire under the immediate direction of the ambassador, and 
 most of these have either a commercial attache or a special dragoman, 
 who performs the same functions, and this man is directly attached 
 to the embassy. 
 
 The British Government pays its commercial attache here £1,000 
 per annum, plus traveling expenses, etc., and he also looks after com- 
 mercial interests in several of the Balkan States. 
 
 A commercial attache could not be expected to exert any direct in- 
 fluence upon trade, but a capable man could furnish the Department, 
 legation, and consulates with information that would assist the sev- 
 eral Departments very materially in the prosecution of pioneer work, 
 which is most necessary to establish American commerce on a fair and 
 iasting footing in Turkey, which is a rich and practically a virgin 
 field for American products. 
 
 Although a beginning has been made and a fairly steady growth 
 maintained, American trade in the Orient is practically in its in- 
 fancy, and should be assisted, like other infant industries. American 
 manufacturers bear an excellent reputation, and the fear of encroach- 
 ment upon what has been heretofore the undisputed trade of Europe 
 is undoubtedly the foundation for most of the jealousy and conse- 
 quent intrigues on the part of our Continental neighbors. 
 
 2. As the Turks are neither a commercial nor a manufacturing 
 race, little or no attention is paid to the development of the natural 
 resources of the country, and nothing in the shape of a commercial or 
 industrial attache exists. 
 
 3. Should the Government decide to put the programme described 
 under question 1 into effect, it would be necessary to make provision 
 for a commercial attache and an extra secretary or clerk, as the large 
 amount of business alread}^ devolving upon the legation keeps the 
 present force very busily employed, long hours and frequent night 
 work being the rule rather than the exception, so much so that I have 
 frequently been tempted to beg the Department to appoint a third 
 secretary to assist in keeping up the current work. 
 
 There is another point which I respectfully beg leave to call to the 
 Department's attention that is of vital importance in the promotion 
 of American trade interests in the Orient, and that is the question of 
 transportation. English boats* can readily be chartered in America 
 for direct shipments of full cargoes of heavy material, such as the 
 order for 20,000 tons of rails which was secured last spring from the 
 Ottoman Government for an American firm through the good offices 
 
142 PBOMOTIOU OF TRADE INTERESTS. 
 
 of the legation, but miscellaneous goods must be transshipped, gen- 
 erally at Liverpool, Harve. Hamburg, or Marseilles, invoving delays 
 and considerable extra expense, both of which operate very materially 
 against American manufacturers. To overcome this serious obstacle 
 10 the advancement of American interests, a direct line of steamships 
 should be established between the United States and Turkey carry- 
 ing the American nag, something that is never seen in these waters 
 except upon an occasional yacht. I am quite of the opinion that a 
 modern line of steamers plying between Xew York and Constanti- 
 nople would do wonders in assisting the development of American 
 trade in the Orient and would in time become self-supporting, but 
 for the first fifteen or twenty years, it would be necessary for the 
 Government to grant a sufficient subsidy to warrant the undertaking. 
 Xo better missionary work could be done here, and I request the 
 Department to incorporate such a recommendation when making its 
 report to Congress. 
 
 John G. A. Leisiimax. 
 
 Opinion* of the Consul- general. 
 
 C ONST AXTIX OPLE . 
 
 The vice-consul-general at Constantinople asks me to reply to the 
 Department's circular of August 1. calling for suggestions with the 
 view of promoting our foreign trade. He also incloses for my infor- 
 mation, and to be forwarded to the Department, an answer to this 
 circular from Consul Jewett, of Sivas. 
 
 I fully indorse the following opinion of Consul Jewett : 
 
 I think the plan a good one. provided the work of the diplomatic officers and 
 consuls-general can be so divided and systemized as not to cause a conflict of 
 authority or a division of responsibility that would lead to confusion and dimin- 
 ish activity on the part of each branch of the service, and if the two can work 
 together harmoniously, as they should. 
 
 As to the legation being instructed to take an active part in further- 
 ing our trade interests, I regard this as of the highest importance. 
 For years I have been working for what is now outlined in the 
 Department's circular. The obstacles that have been met Avith in this 
 matter in Turkey have not been the fault of the consuls-general or 
 of our ministers so much as the petty jealousies and grudges between 
 some of the native employees in the two offices. For example, to let 
 a dragoman from the consulate-general into the more or less sacred 
 presence of a minister of the Porte might impair the exclusive 
 authority and the prestige which the dragoman of the legation has 
 so long enjoyed. Of course, the commercial matters which my office 
 is unable to accomplish could be taken up by the legation and they 
 have often been referred to it for that purpose, and when results 
 were unsatisfactory it was, perhaps, through no fault of the lega- 
 tion. The legation has been much overworked with diplomatic mat- 
 ters and has not much time to do anything to advance American 
 trade. Last September, our minister. Mr, Leishman. authorized a 
 Iragoman from my office to go to the minister of commerce and to the 
 Dalace to assist the Penns}dvania Steel Company in selling 20.000 
 tons of rails to the Government for the Mecca railway. A great deal 
 
- PROMOTION OF TRADE INTERESTS. 143 
 
 of time was consumed — more, probably, than the dragoman of the 
 legation could have given to it — but the contract was obtained. 
 
 The great mass of our commercial work is made up of compara- 
 tively small items, but they are all-important, if we are to make 
 progress in the Eastern markets, and the prompt and active coopera- 
 tion and sympathy of the legation in such work would be of the very 
 highest advantage. It should not be regarded as of less consequence 
 than diplomatic work. It is not so regarded by the representatives 
 of other countries at Constantinople, and that is the principal reason 
 why they are able to prevent the more rapid growth of our business. 
 So far as I can judge, the obstacles put in the way of American com- 
 merce in Turkey are suggested by our commercial rivals, not by the 
 Turkish officials. The Turks are not manufacturers, and are inclined 
 to encourage commercial rivalry among other nations, unless they are 
 influenced to do otherwise. 
 
 As to the value of a commercial attache at Constantinople. I think 
 such attache would be useful, if he were a man of business experience, 
 with a taste for trade and interested in extending the commerce of his 
 country. The British ambassador at Constantinople has had, I 
 believe, no business training, but he is deeply interested in holding 
 and extending the trade of Great Britain. To this end, nothing is 
 beneath his notice. It may be that he and his first dragoman are 
 doing the work which should be done by the commercial attache. I 
 know they examined with great care the goods at our new American 
 depot in Constantinople shortly after it was opened, and the ambas- 
 sador has talked with me a number of times about our commercial 
 work in Turkey, showing his entire familiarity with the subject. 
 
 It is my opinion, therefore, that well-equipped commercial attaches 
 at our embassies and legations, working in conjunction with the con- 
 sular body, would be very useful and that inefficient ones would be 
 useless. Until Congress shall make provision for the employment 
 of such attaches, the consul-general should be able to do that work 
 with reasonable success. An experienced consul-general should have 
 his office work so organized that he can be absent from it a part of the 
 time without detriment to the service. Such time could be profitably 
 employed in visiting the principal consuls under his supervision and 
 advising and cooperating with them in planting and extending 
 American commerce. I have found such visits extremely stimulating 
 and helpful, and the consuls have generally shown an enthusiasm and 
 a cooperation that have given us very satisfactor}^ results. 
 
 Chas. M. Dickinson, Consul- General. 
 
 Binghamptox. X. Y.. October T?\ I9O4. 
 
 Opinions of other Consular Officers. 
 
 AUEXAJVDRETTA. 
 
 A consular officer in Turkey would not be of much use to the lega- 
 tion in the promotion of trade interests except to reply to direct ques- 
 tions that may be sent him. Turkish statistics are so unreliable that 
 but a general idea could be given. No census has been taken in this 
 country for many years ; in fact, no complete census was ever taken. 
 
144 PROMOTION OF TRADE INTERESTS. 
 
 No note is taken of transshipments. Goods coming from England, 
 reshipped at Alexandria, are credited to Egypt. The exports from 
 this port to the United States have greatly increased the last few 
 years. The number of invoices at this office has grown from 28 in 
 1900, to 79 in 1903. The rate of increase is about the same for 
 Aleppo. But I am sorry to say that the imports from the United 
 States have not increased, the lack of direct communication being the 
 chief hindrance. 
 
 Wm. Boss Davis, Consul. 
 Alexaxdeetta, October 3, 190 Jf. 
 
 BEIRUT. 
 
 Replying to instructions contained in circular c; Promotion of trade 
 interests," I would respectfully submit the following : 
 
 In Turkey, official commercial statistics are not only unreliable, but 
 published from two to three years after the time to which they apply. 
 Consuls in Turkey obtain their data with regard to the industries and 
 commerce of the country from their own observations, from individ- 
 ual merchants, from customs officials, from port companies, from for- 
 eign chambers of commerce, if there are any, from members of impe- 
 rial commissions established for the purpose of constructing railways, 
 exploiting mines, etc. Consular officers in the Ottoman dominions 
 enjoy a quasi-diplomatic status, and have a very free hand, at least 
 outside of Constantinople. In the latter place, our consul-general 
 may be somewhat handicapped if the question concerns applications 
 for franchises or bids for furnishing supplies for public undertak- 
 ings, as such matters seem to be determined to some extent by consid- 
 erations of international politics and of the personal interest of native 
 officials. 
 
 No doubt a clever American commercial attache of diplomatic 
 rank accredited to Turkey, Greece, Bulgaria, Servia, and Roumania 
 would prove exceedingly valuable to our manufacturers, exporters, 
 and capitalists, especially along the line of keeping them informed of 
 concessions contemplated and Government projects. He could also 
 assist the consuls in their endeavors by furnishing them news from 
 behind the curtains. I learn, for instance, that a concession for an 
 electric plant in Damascus (light and street railway) has been ap- 
 plied for ; also that the municipality of Damascus is planning a mod- 
 ern system of waterworks. I follow these schemes through the 
 mysteries of Damascus only to discover that there is some hitch in 
 Constantinople concerning their realization. I naturally wish to 
 ascertain before sending my report home what the prospects are for 
 the approval of these plans, but in the absence of sources of informa- 
 tion in Constantinople to which I feel free to direct myself I lose 
 track of the matter, and probably do not hear more of it until I read 
 in the Vienna Neue Frie Presse or Berliner Tageblatt or London 
 Standard (there are practically no newspapers in Turkey worthy of 
 the name) that the contracts have been given to some enterprising 
 German. I have had similar experiences also in connection with the 
 construction of the Damascus-Mecca Railroad. In the latter case, 
 however, because the Pennsylvania Steel Company had a representa- 
 tive on hand in Constantinople, who spent weeks mingling with the 
 
 
PROMOTION OF TRADE INTERESTS. 145 
 
 proper officials, it fell to the lot of Americans to furnish thousands 
 of tons of rails. Only two days ago I heard from the governor- 
 general of the province of Damascus that these rails were giving 
 excellent satisfaction, and that the local commission, in reports to 
 Constantinople, would so recommend them as to open up possibilities 
 for further contracts with American manufacturers. 
 
 In the Department circular, to which I now have the honor to 
 reply, attention is most properly called to the necessity of close and 
 active cooperation between diplomatic and consular officers in com- 
 mercial efforts. This does not exist in Turkey in our case, as far as 
 my experience goes. It would also seem essential that between con- 
 sular officers and consuls-general, and between consuls mutually, there 
 should be encouraged a stronger feeling of solidarity and more 
 genuine fellowship. 
 
 A striking instance of the gratifying results of such harmony and 
 exchange of views and cooperation was brought to light, four or 
 five years ago. in the establishment of direct steamship connections 
 between Xew York and the Levant. Consul-GeneralDickinson then 
 had all the American consuls in these parts solidly behind him, and 
 a pull together brought about facilities which had been the subject 
 of promiscuous consular writing for scores of years. " Even now,'* 
 so reads a quotation from the Round Table of May 28, 1869, " there 
 is before Congress a petition for a subsidy for a line of steamers 
 between New York and Alexandria, which shall touch at Beirut." 
 
 Mr. Peirce. Third Assistant Secretary of State, in his report upon 
 a tour of consular inspection in Europe (1903) discusses various 
 defects in our consular system which affect the consular morale and 
 which naturally impair the usefulness of our consular officers in their 
 capacities of advance scouts of commerce and of sentinels placed at 
 foreign outposts to guard our national customs revenues. There are 
 defects, serious and demoralizing ones, and in reporting upon the 
 suggested appointment of commercial attaches, it will probably occur 
 to many of our consuls that while such a departure no doubt would 
 be highly beneficial to our foreign trade, as international competi- 
 tion is ever growing fiercer, and new instruments should be thought 
 of in time, it might also be worth considering whether the already 
 existing means for the collection of commercial intelligence and for 
 the promotion of our trade expansion could not be materially 
 improved. 
 
 Before closing this report, I would respectfully suggest that it 
 would seem highly important, in the interest of the public service, 
 that inspection of consulates, as recently performed by the Third 
 Assistant Secretary of State, be developed into a regular system. 
 
 G. Bie Bavndal, Consul. 
 
 Beirut, October 29, 1901 
 
 SIVAS. 
 
 In reply to circular of August 4, asking for the expression of opin- 
 ion upon a proposed plan for the coordination and improvement of 
 existing facilities for the collection of commercial intelligence and 
 
 H. Doc. 245, 58-3 10 
 
146 PROMOTION OF TRADE INTERESTS. 
 
 the promotion of American trade interests abroad. I have the honor 
 to say that I think the plan a good one, provided the work of the 
 diplomatic officers and consuls-general can be so divided and system- 
 atized as not to cause a conflict of authority or a division of respon- 
 sibility that would lead to confusion and diminished activity on the 
 part of each branch of the service, and if the two can work together 
 harmoniously as they should. Perhaps, in this country, such work 
 would be of less value than in countries where there is a better organ- 
 ized and more efficient central government. Turkish official statistics 
 are months or years out of date, confused, and inaccurate. 
 
 Milo A. Jewett. Consul. 
 Sivas, September 19, 1904. 
 
 SMYRNA. 
 
 In reply to circular. " Promotion of Trade Interests," I have to 
 say: As far as obtaining reliable trade information from chiefs of 
 departments in Turkey is concerned I am inclined to believe that the 
 American minister at Constantinople will find it as difficult as it is 
 for a consul to obtain similar information from the local officials to 
 whom he is accredited. What commercial information the Turkish 
 officials have is readily obtained, but it is not satisfactory. Records 
 of the goods passing through the local custom-houses are kept, but 
 not accurately. 
 
 An officer whose duty it would be to attend solely to American com- 
 mercial interests, attached either to the legation or consulate-general, 
 would be a most useful official. He would be in a position to save 
 much annoyance and extended correspondence to both the minister 
 and consul-general, and being frequently in touch with the chiefs of 
 the customs department, could possibly devise means of smoothing 
 the paths of commerce which are now so often obstructed by minor 
 officials. 
 
 I am inclined to think that the supervision of consular trade reports 
 and the preparation of such trade reports by the minister himself 
 would so materially add to the labors of our diplomatic officer as to 
 interfere with his usefulness in other directions. If, however, par- 
 ticular points of interest requiring the minister's attention could be 
 singled out and presented to him by a commercial agent attached to 
 his office, the result would be highly beneficial to American commerce. 
 
 Bufus W. Lane, Consul. 
 
 Smyrna, Septembe?' 26, 190J h 
 
 TREBIZOND. 
 
 Replying to circular, " Promotion of Trade Interests,'* I have the 
 honor to say that, basing my opinions upon my brief experience in 
 the service as well as upon a practical experience for a number of 
 years as promoter and manager for commercial enterprises (during 
 which time I was brought in contact with many of our consuls), 
 I feel that our commercial progress can be best advanced by a greater 
 concentration of power in the hands of the consuls-general. The 
 

 PROMOTION OF TRADE INTERESTS. 147 
 
 esprit de corps of the service can be best preserved in that manner. 
 In my opinion, the revising of consular reports, Avith " annotations 
 indicating errors of fact or judgment," should be intrusted to the 
 consuls-general. I am not in favor of having that work assigned 
 to the diplomatic representatives or their subordinates. The multi- 
 farious and exacting duties which are intrusted to our diplomatic 
 representatives render it impossible for them to do proper justice 
 to such an important matter. In many instances their lack of experi- 
 ence in commercial affairs, as well as the uncertainty of their tenure 
 of office, would impede rather than further the ends in view. 
 
 With the view of having the work of the consular corps effective, 
 the consuls-general should be men of practical business experience, 
 and their subordinates likewise. In this progressive and practical 
 age, a theorist or inexperienced man can not hope to advance the 
 commercial progress of the nation he represents any more than he can 
 succeed in our marts of commerce at home. In the successful prog- 
 ress that has been made in capturing the markets of the world, some 
 credit is, of course, due to the energy of the consular corps, but it 
 is evident that it by no means represents the success that would have 
 been achieved had our consuls-general and consuls been more gener- 
 ally men of business experience. 
 
 I am also of opinion that the appointment of commercial or indus- 
 trial attaches, under the supervision of the consuls-general and acting 
 in unison with them in the capitals of the various nations, would 
 be of incalculable benefit, and that such attaches would prove a valu- 
 able auxiliary in promoting and expanding our commerce. They 
 should be recruited from the ranks of experienced business men, and 
 their positions made permanent. The consuls-general should be 
 empowered, whenever in their judgment they deemed it proper, to 
 send them into the consular districts under their jurisdiction, to report 
 on the work of the consuls, and, wherever possible, to render them 
 assistance in their commercial work. I do not favor placing such a 
 functionary under the jurisdiction of the diplomatic representatives. 
 
 A British commercial organization has inaugurated a system of 
 sending young men abroad to work under the guidance of the local 
 consuls, that organization furnishing the salar} 7 and necessary 
 expenses of the persons referred to. Two and a half years ago, a 
 young man was sent to this district by that organization. His mis- 
 sion has proved a failure, and British trade has declined rather than 
 increased during that period. This is due to the fact that he has had 
 no practical commercial experience. A theorist can not make a 
 favorable impression on a practical merchant. 
 
 Germany and Italy have recently sent to this country commercial 
 representatives to investigate and study the existing conditions and 
 report on the best methods to be employed for increasing their com- 
 merce. Their mission has been productive of beneficial results. 
 
 The absence of a parcel-post system is perhaps one of the great- 
 est barriers to our progress. Small trial orders and bulky samples 
 can not be sent through our mails unless at great expense. Mer- 
 chants are unwilling to purchase from illustrated catalogues, and 
 where it was tried, in a few instances, I am sorry to say some mer- 
 chants in America did not fulfill their obligations, and a want of 
 confidence has thus been created. The European system of parcels 
 post furnishes one of the greatest means for promoting their com- 
 
148 PROMOTION OF TRADE INTERESTS. 
 
 meree. I Trill illustrate one instance : A small trial order recently 
 sent to a New York house, amounting to $3.50. met with this reply; 
 " The mail charges on the package would amount to $5.40, and the 
 express charges $3." The charges for a similar package from 
 London would be about 50 cents. 
 
 Our manufacturers do not give proper attention to the various 
 suggestions made in the consular reports. This perhaps may be due 
 to a great extent to the greatness of our home market, as well as to 
 want of confidence in the practical knowledge of the writers. Ameri- 
 can manufacturers, in some instances, quote impracticable terms to 
 intending purchasers, and thereby lose an opportunity to promote 
 trade. Among numerous cases which have come under my notice. I 
 quote one from a firm of manufacturers in Xew York City. who. in 
 reply to a request for prices and terms addressed to them by a repu- 
 table dealer in this city, say : 
 
 Our terms are strictly cash in advance, and care must be taken to send suffi- 
 cient money to cover the cost of the goods, prepay the postage on j?ame. as well 
 as the postage used in the correspondence. 
 
 This arbitrary action lost a valuable customer. I am satisfied no 
 European manufacturer would write such a letter. 
 
 With confidence, unity of purpose, and a better understanding 
 between our manufacturers and consuls, we can look forward with 
 every hope to the time, which can not be far distant, when our nation 
 will lead the world in commercial activity and importance. 
 
 Edward J. Surltyax. Consul. 
 
 Trrbizoxd. September -J. 1904. 
 
 XORTH A3IERICA. 
 
 CANADA. 
 
 Opinions of Consuls-general. 
 
 HAXEFAX. 
 
 Department circular. " Promotion of trade interests." is not appli- 
 cable to the Dominion of Canada, as there is no American ambassador 
 or minister accredited to this country. I can see no objection on the 
 part of consuls to submitting reports on special subjects to an ambas- 
 sador or minister for amendments or suggestions, but I apprehend 
 such officer would not desire to read all the reports consuls forward. 
 I think they could add something of interest to such reports as might 
 be submitted to them. 
 
 The Canadian department of trade and commerce has " commercial 
 agents " in Australia. Xew Zealand. South Africa. The West India 
 Islands. Norway and Sweden. Denmark. France, and the cities of 
 London. Manchester. Leeds, and Birmingham. England. The duties 
 of these agents are similar to those performed by American consuls, 
 and they receive S3.000 per annum, with an allowance for help, sta- 
 tionery, rent, and incidentals. 
 
 The Canadian Manufacturers' Association, feeling that the number 
 of commercial agents did not cover sufficient territory, have supple- 
 
PROMOTION OF TRADE INTERESTS. 149 
 
 mented the same by the appointment of a number of " foreign 
 agents " of their own, with similar duties, at Calcutta, Hongkong, 
 Yokohama, Cario, Cape Town, Buenos Ayres, Valparaiso, Rio de 
 Janeiro, Melbourne, Sydney, Paris, Copenhagen, Amsterdam, Brus- 
 sels, St. Petersburg, Glasgow, and Belfast. These agents receive but 
 $50 a year and nothing for incidentals, and their reports are pub- 
 lished in Industrial Canada, a monthly publication devoted to the 
 interests of the Canadian Manufacturers' Association. 
 
 The newspapers and business men's associations are zealously en- 
 gaged in an effort to create a public sentiment in favor of purchasing 
 homemade goods, and many articles are marked " Made in Canada." 
 
 The principal impediment in the way of increasing the trade of 
 the United States with Canada is the preferential tariff of 30 per 
 cent in favor of England. But for that, there can be no reasonable 
 doubt but the United States would command a larger per cent of the 
 Canadian foreign trade. While we are their strongest competitors in 
 business, our social relations with the authorities and people are ami- 
 cable and cordial, and being near neighbors, we are allied by business 
 interests, kindred ties, close market, satisfactory goods, excellent 
 means of transportation, and a personal acquaintance with the lead- 
 ing firms of exporters in their respective lines. Indeed, there is 
 scarcely a prominent firm in Canada that has not some member of his 
 family or near relative in business in the United States. The inter- 
 course between the two countries is constantly increasing. In fact, 
 Canada is becoming so Americanized that it is impossible to distin- 
 guish a large proportion of Canadians from citizens of the United 
 States. 
 
 W. R. Hollo way, Consul- General. 
 
 Halifax, AuguM W, 190 J^. 
 
 MONTREAL. 
 
 Responding to inquiries in circular, " Promotion of trade interests," 
 this consulate-general respectf ulty submits the following : 
 
 It is thought that the most effective method of securing informa- 
 tion on the points desired would be to submit the interrogatories to 
 the consul-general, with directions to secure replies from the officials 
 having knowledge to impart, the same to be returned to the Depart- 
 ment through the consul-general, with such comment as that official 
 may present, to be utilized by the Department, in whole or in part, as 
 may be deemed best. It occurs to this consulate-general that the 
 reports can be made to cover more details and be of greater utility 
 than a more direct communication without such intervention. 
 
 The foreign consular service in the Dominion of Canada has no 
 attaches assigned to the duty of furnishing commercial reports espe- 
 cially, such reports being so far furnished by the consuls or vice- 
 consuls from the respective countries represented. 
 
 It is not believed that an attache to the American consular service 
 would fill the requirements suggested as to the Dominion service so 
 well as recognized consular officers by personal investigation, or per- 
 haps, in a special case, b}^ a special representative under the direction 
 of the Department. By keeping in touch with the Department and 
 the consular service within his jurisdiction, the consul-general would 
 
150 PROMOTION OF TRADE INTERESTS. 
 
 be enabled to anticipate many requirements. In some instances 
 there might be a necessity for an appropriation for extra consular 
 work to cover the expenses of personal visits or examinations in 
 obtaining information while absent from the post of duty. 
 
 Montreal is the commercial center of the Dominion and the metrop- 
 olis of Canada, having a population of 300.000. or. in other words, 
 about four times that of any other city in the Dominion. Here are 
 located the head offices of the two principal trunk lines of Canada, 
 the head offices of the banks, insurance companies, importers and 
 exporters, manufacturers, etc. The location of the harbor commis- 
 sioners, navigation of St. Lawrence River, pilotage, and canal service 
 being here, it is assumed that more accurate and reliable facilities for 
 securing information can be obtained at Montreal than at other 
 points. 
 
 The opportunities in the commercial area of Canada are almost 
 limitless, and assiduous cultivation of them can but bring most favor- 
 able results. A vast country, rapidly filling with intelligent people, 
 up-to-date in ail that tends to successful empire, and backed by inflow- 
 ing capital and enterprise, seems to open up the grandest possibilities 
 to its American neighbors, who are welcomed with open arms. 
 
 The increase of American interests in the establishment of foun- 
 dries, factories, etc.. and the multiplying of products of general util- 
 ity, is rapid, and every month needs noting as to the results of vary- 
 ing conditions and influences upon commercial enterprise in order to 
 point out wherein the field may be cultivated most profitably for the 
 benefit of our producers. This is not only true as to Montreal, but 
 all along the line, from the Atlantic to the Pacific, in the Dominion 
 of Canada, whose purchasing power is constantly growing. 
 
 It should be considered that the facilities for Americans to visit 
 the different large cities of Canada are so superior that it is easy for 
 them to travel through the Dominion with the object of placing their 
 goods on the market. 
 
 Canada has no consular service, but it is entitled to the services of 
 British consuls the whole world over ; it is claimed, however, in many 
 quarters that they are of but little service to Canada. In Canada 
 there are nearly 500 consuls, vice-consuls, and commercial agents rep- 
 resenting foreign countries. Out of that number 188 are in the 
 American service, and it has been pointed out by Canadian members 
 that the American consular service in Canada is of great benefit to 
 the United States in studying commerce and pointing out additional 
 openings for trade to the American people. 
 
 At the fifth congress of the chambers of commerce of the British 
 Empire, held in Montreal in August. 1903, the following resolutions 
 were passed : 
 
 That in the opinion of this congress it is urgently necessary, in the interests of 
 the commerce of the British Empire — 
 
 First. That His Majesty's Government should resolutely maintain and extend 
 our commercial treaty rights. 
 
 Second. That the consular service should be reorganized and strengthened on 
 lines calculated to make it more effective for the promotion of the trade of the 
 British Empire. ■ 
 
 Copy of this resolution to be sent to the British colonies. 
 
 Canada has commercial agents who are under the department of 
 trade and commerce, and that department invites correspondence 
 from Canadian exporters or importers upon all matters pertaining to 
 
PROMOTION OF TRADE INTERESTS. 151 
 
 trade and will cause special inquiries to be made by the commercial 
 agents into any subject of general interest when so desired. It is 
 also suggested that the Canadian commercial agents should be kept 
 supplied with catalogues, price lists, discount rates, etc., and the 
 names and addresses of trade representatives by Canadian exporters. 
 
 The Canadian commercial agents are stationed at the following 
 places: At Sydney, Australia, for New South Wales, Queensland, 
 and New Zealand; at Melbourne, Australia, for Victoria, South Aus- 
 tralia. Western Australia, and Tasmania; at Cape Town, Cape 
 Colony, for South Africa; at Birmingham, England, for Birming- 
 ham ; at Leeds, England, for Leeds and Hull ; at Manchester, Eng- 
 land, for Manchester; at Bristol, England, for Bristol; at Paris, 
 France, for Paris; at Yokohama, Japan, for Japan; at Kingston, 
 Jamaica, for Jamaica ; at St. John, Antigua, for Antigua, Mont- 
 serrat, and Dominica; at St. Kitts, for St. Kitts, Nevis, and Virgin 
 Islands; at Port of Spain, Trinidad, for Trinidad and Tobago; at 
 Christiania, Norway, for Norway, Sweden, and Denmark. 
 
 The department of trade and commerce of Canada publishes 
 weekly reports containing reports of commercial agents and trade 
 inquiries. 
 
 In addition to the foregoing, the Canadian immigration agents are 
 directed to answer inquiries relative to trade matters, and their serv- 
 ices are available in furthering the interests of Canadian trade. 
 There are 5 located in England, 1 in Scotland, 2 in Ireland, 1 in Bel- 
 gium, 1 in Wales, and 1 in France. 
 
 * It will be noticed that there are no Canadian commercial agents 
 for the United States. 
 
 A. W. Edwards, Consul- General. 
 
 Montreal, September 17, 190 i. 
 
 OTTAWA. 
 
 In response to circular of August 4, requesting an expression of my 
 views concerning the desirability of cooperation by the diplomatic 
 officers with the consular service in the collection of commercial intel- 
 ligence and the promotion of trade interests abroad, 1 have the honor 
 to state that, while I assume that in many countries such cooperation 
 would be exceedingly valuable, it does not seem to me that in a self- 
 governing dependency like Canada any advantage could be obtained 
 by the proposed method. 
 
 The Canadian departments have always been most courteous in 
 granting my requests for commercial information, and I have never 
 found any disposition on the part of Canadian officials to withhold 
 intelligence which they would have been willing to give to diplomatic 
 officers. 
 
 I am inclined, moreover, to belieA^e that Canadian national senti- 
 ment would be better pleased by direct requests from a consul-general 
 resident at Ottawa for commercial information and such matters as 
 come distinctively within consular jurisdiction, than to have such 
 requests forwarded through so circuitous a channel as the London 
 embassy. 
 
 • John G. Foster, C onsul- General. 
 
 Ottawa, August 13. 1904. 
 
152 PROMOTION OF TRADE INTERESTS. 
 
 Opinions of other Consular Officers. 
 BRITISH COLUMBIA. 
 
 VANCOUVER. 
 
 I have the honor to acknowledge the receipt of the circular, " Pro- 
 motion of trade interests." 
 
 The Dominion of Canada is a self-governing colony of the British 
 Empire, and the information required to enable our consul to make 
 reports of the greatest value is generally to be secured from the 
 Dominion government at Ottawa. I do not know what difficulties 
 the American consul-general at Ottawa may meet in his endeavors to 
 secure information, but assume that the American ambassador at 
 London might give the consul-general most valuable assistance. 
 
 The seat of government of this province is at Victoria. I do not 
 know whether or not our consul at that port encounters obstacles in 
 his efforts to procure information of value to the merchants and 
 manufacturers of the United States. 
 
 As this consular district is remote from both capitals, T have not 
 sought for information that can only be derived from official sources, 
 beyond such as the local officials can give. I have always found the 
 local officers of both the dominion and provincial governments willing 
 to give me some information, but in matters of much importance I 
 am always told that the information can only be given by the chief 
 officers at the seat of government. 
 
 As you have asked me to express my views regarding the plan for 
 the coordination and improvement of existing facilities for the col- 
 lection of commercial intelligence, I can only say that I believe the 
 active cooperation of the diplomatic officers with the consuls in this 
 work would result in a very substantial increase in the value of the 
 reports. 
 
 L. Edwin Dudley. Consul. 
 
 Vancouver, August 23. 190^. 
 
 
 VICTORIA. 
 
 I have the honor, referring to Department circular, " Promotion of 
 trade interests.'' to report as follow- : 
 
 It would be entirely practicable for your consul at Victoria to 
 transmit instructions to different consular officers in western Canada, 
 or an} r orders received from the Department of State, and to note in 
 the dispatch transmitting same such suggestions as might seem 
 appropriate or necessary from information secured from the pro- 
 vincial officers who are necessarily resident in Victoria. If consular 
 officers are directed to transmit answers to such instructions through 
 this consulate, the most painstaking care would be taken (with per- 
 mission and direction of the Department) to edit them so as to 
 eliminate known errors of fact or judgment. Of course, I should 
 understand, as suggested, that any annotations would be subject to 
 the approval of the Department, and the original as well as edited 
 report would be transmitted for the Department's consideration. 
 
 There are no dominion officers here in Victoria who have any 
 

 PROMOTION OF TRADE INTERESTS. 153 
 
 diplomatic status or any connection with the consular service of 
 their own or any other country. Connected with the provincial gov- 
 ernment there are in the various departments of finance, public works, 
 mining, etc., officers who make specialties of statistics. Your consul 
 has always cultivated friendly relations with them, and has fre- 
 quently received advance copies of statistics, estimates, projected 
 plans, etc., which information has as promptly as possible Deen for- 
 warded to the Department. 
 
 As to whether any additional assistance would be required at this 
 consulate to carry out the suggestion contained in question 1, that 
 would naturally depend upon the number of consular officers desig- 
 nated to report to this consulate and the number of communications 
 made. In any event, not more than one additional clerk would be 
 necessary. 
 
 I would respectfully suggest that permission be given the consul 
 to visit portions of the province where projects of importance are 
 being started or in progress, and important special information could 
 be secured at first hands, and that he be allowed necessary expenses 
 incurred in so doing. If this were insured, more reliable fresh data 
 could frequently be obtained. Your consul at Victoria has always 
 been ready to assist any consular officer in obtaining information 
 from the provincial departments. 
 
 As the provincial capital, the headquarters of the British Pacific 
 squadron, and the British Columbia sealing fleet, Victoria must 
 necessarily continue to be of the first importance in regard to the 
 varied interests of Western Canada. 
 
 Abraham E. Smith, Consul. 
 
 Victoria, October ,26, 1904. 
 
 YUKON REGION. 
 
 Replying to circular of August 4, I desire to signify my apprecia- 
 tion of the method proposed by the Department for the promotion of 
 American trade interests abroad, and to facilitate the efforts of con- 
 sular officers to keep American manufacturers and exporters fully 
 advised of all matters likely to aid them in increasing American 
 commerce. 
 
 Our embassies and legations, having at their disposal all Govern- 
 ment publications and reports and all trade and commercial journals, 
 besides being likely to see the trade notes appearing in the press 
 of the capitals, are certainly in a position to be fully informed on all 
 ^natters* touching upon manufactures and commerce, and I judge, 
 therefore, that should consular reports, whether emanating from 
 consuls directly or under instructions from the Department, be sent 
 through our diplomatic officers, they could make most valuable sug- 
 gestions for a supplementary report from the consul or greatly add 
 to the value of the original one by giving, from Department publi- 
 cations in their possession, the result of Government investigation 
 of the same subject. 
 
 During the time I have been stationed in Canada, I have always 
 received every assistance from the authorities in my endeavor to 
 obtain trade information, and the several ministries have been good 
 
154 PROMOTION OF TRADE INTERESTS. 
 
 enough to send me, upon my application, all reports, publications, 
 and maps issued by their departments. 
 
 L/eo Bergholz, Consul. 
 Dawson, Yukon Territory, September 16, 1904- 
 
 MW BRUNSWICK. 
 
 MONCTON. 
 
 Replying to circular of the 4th instant, I beg to say that I have 
 always received every courtesy and assistance in any applications I 
 have made to Canadian officials in reference to matters of trade or 
 industry, and have tried, from time to time, to report such as seemed 
 to me might be of use to business men of the United States. 
 
 At the same time, I have had a considerable number of inquiries 
 from United States manufacturers and others in reference to matters 
 of which I had no knowledge or means of getting any, by reason of 
 the fact that no business in the particular line about which inquiries 
 were made was carried on in or near this consular district. On the 
 other hand, when circumstances have arisen in this country which 
 it seemed might affect United States business interests, I have fre- 
 quently hesitated about reporting them lest other consuls in closer 
 touch with the circumstances should have done so. 
 
 There is no doubt, I think, that, with a properly organized arrange- 
 ment, a larger business could be done between this country and the 
 United States, and that business would be helped by the appointment 
 of a " commercial attache,' 5 or by the establishment of a commecial 
 information bureau for each of the provinces of the Dominion, to 
 whom the different consuls could report matters of interest arising 
 in their several districts. This bureau could then annotate and con- 
 dense these reports, and forward such portions thereof as were 
 deemed of importance in consolidated form to the Department. 
 Then, too, if the central bureau or agency was established, as sug- 
 gested, all general inquiries could be sent there, and the agent-general 
 could get required information from such of the subordinate officials 
 as might be in possession of it, and this he could supplement with his 
 general knowledge of the Province and the reports from time to time 
 received by him. 
 
 Gustave Eeutelspacher, Commercial Agent. 
 
 Moxctox. Xew Brunswick, August 16, 1904. 
 
 ST. JOHN. 
 
 In reply to your circular of August 4, asking for an expression of 
 views of consuls upon the subject of promotion of trade interests in 
 their districts, I have the honor to state that, inasmuch as there are 
 no diplomatic officers of the United States located in Canada, there 
 could be no conference with such ; but there might be, with profit, a 
 conference of the different consular officers in the Maritime prov- 
 inces to formulate plans for the promotion of our trade interests 
 in that section of Canada. The trade statistics of Canada are for- 
 
 
PROMOTION OF TRADE INTERESTS. 155 
 
 warded to the office of the commissioner of customs at Ottawa (and 
 it is impossible to secure such from the different collectors of cus- 
 toms in these Provinces), and can be obtained only through the 
 consul-general at the Dominion capital. We are, therefore, restricted 
 in securing such valuable information within time to be of any im- 
 mediate practical benefit to the manufacturers of the United States. 
 If the Department considers the suggestions herein practicable and 
 the consul-general at Halifax were instructed to call such a confer- 
 ence there would probably be considerable benefit derived therefrom. 
 
 Ira B. Myers, Consul. 
 St. John, New Brunswick, September 19, 1904. 
 
 ST. STEPHEN. 
 
 In reply to Department circular of August 4, I have the honor to 
 inform }^ou that I regret not to be able to offer suggestions for the 
 improvement of existing facilities for obtaining commercial intelli- 
 gence or the promotion of American trade in this consular district. 
 
 While it is true that we depend upon the heads of departments for 
 much of our information, this office is in such good standing with the 
 officials here that no difficulty has been experienced in obtaining 
 statistics wanted. Although aware that this source of information 
 might be closed to us at any time, the possibility is very remote. 
 Should it occur, however, I have not the slightest doubt but a way 
 would be found to get possession of all that we should desire. At the 
 present time, I confers my inability to suggest any other plan. 
 
 The situation of this consulate, its whole length bordering on the 
 United States, and the fact that the business interests here are in such 
 close touch with American manufacturers and producers and are 
 satisfied with trade conditions as to credits, quality of goods, packing, 
 etc., make it difficult to conceive of any way to materially increase 
 American trade by other means than those now in force. 
 
 Charles A. McCullough, Consul. 
 
 St. Stephen, New Brunswick, August 31, 1904- 
 
 NOVA SCOTIA. 
 
 SYDNEY. 
 
 Iii compliance with circular of August 1, I have the honor to report 
 as follows : 
 
 It would greatly facilitate the work of this consulate if instruc- 
 tions were received specifying any particular business or class of 
 manufactures it was desired to obtain information in regard, to, with 
 suggestions from the consul-general as to the mode to be used in pro- 
 curing such in formation as seems best adapted to each particular 
 consulate under his jurisdiction. 
 
 Heretofore this consulate has maintained the most cordial relations 
 with the merchants engaged in all classes of trade, and has, as the 
 large catalogues of manufacturers, wholesale dealers, and commission 
 
156 PROMOTION OF TRADE INTERESTS. 
 
 brokers have been received, laid them before the merchants for their 
 inspection and consideration, and informed merchants and others 
 interested that such catalogues were at their dispo'sal at any time for 
 consultation in the office of the consulate. 
 
 The same cordial relations have also been maintained with the 
 offiecers of the coal, iron, and steel companies located in this consulate 
 jurisdiction, and, on application being made, they have kindly fur- 
 nished statistical information for use in the report on " Commerce 
 and industries " submitted by me each year. 
 
 The same courtesy has also been extended by the commissioner of 
 customs at Ottawa in regard to the dutiable and free imports and 
 exports into the ports of Sydney and North Sydney (they forming 
 separate customs collection districts) , for each fiscal year, by specified 
 classes of goods from the United States, Great Britain, and other 
 countries, this consulate reimbursing the gentleman detailed by the 
 commissioner for the labor involved in making up the statistics from 
 the files at Ottawa. 
 
 As is well known to the Department of State, the section of Nova 
 Scotia in which this consulate and its agencies are located is not 
 largely populated, except in and around the coal mining districts, 
 and at Sydney, where the Dominion Iron and Steel Company is 
 located. Neither is it a manufacturing center for any class of goods 
 used generally by the inhabitants. I am pleased to state, however, 
 that in the last several years there has been quite a large increase in 
 the quantity of American goods brought into this immediate vicinity, 
 owing in a measure, I think, to the merchants having had brought to 
 their attention through this consulate, as well as by their receiving 
 direct from the manufacturers and others, catalogues and prices of 
 various classes of American-made goods. The fact remains, on the 
 other hand, that this section of Canada has a large corps of ener- 
 getic commercial salesmen constantly on the ground, representing 
 British manufacturers in all classes of goods; also carrying large 
 lines of samples, and with the differential tariff in favor of Great 
 Britain, and with long credits, thev control a large portion of the 
 trade and are close competitors with Canadian manufacturers, mak- 
 ing it exceedingly difficult for American goods to be placed on this 
 market, unless they possess great superiority in style, quality, and 
 price. 
 
 This consulate would warmly welcome any suggestions or instruc- 
 tions whereby it might more effectively promote the interests of 
 American manufacturers for the introduction of their goods or 
 wares into this market. 
 
 George X. West, Consul. 
 
 Sydney. Nova Scotia, August 16, 1904. 
 
 WINDSOR. 
 
 In reply to the circular " Promotion of trade interests," I beg leave 
 to say that, as there are no American diplomatic officers in Canada, 
 there could be no conference of American consuls with them as sug- 
 gested in the circular. But there are over forty odd American con- 
 suls in Canada, and. barring a few French consulates, the districts are 
 
PROMOTION OF TRADE INTERESTS. 157 
 
 all English speaking, with like tastes, culture, and habits as the 
 American people — indeed, more like Americans than the English — 
 and yet these consuls are all strangers to each other, seldom meet, and 
 scarcely ever write to one another, except briefly on official business. 
 Nothing would be more valuable to the consular service, nothing- 
 would do more to promote trade interests with Canada, than the per- 
 mission to the American consuls in Canada to form associations and 
 meetings for the discussion of consular business pertaining to their 
 respective consulates. Such associations might be authorized, with 
 simple rules and regulations, under the jurisdiction of a consul- 
 general, perhaps, and thus obtain for the Department the combined 
 judgment of the whole body of consuls instead of the conflicting- 
 reports and separate findings of individual consuls. 
 
 The diplomatic circular inclosed with the instruction of August 1 
 well states an important truth when it says " that the machinery for 
 collecting information as to business conditions in foreign countries 
 should be made as efficient and automatic as the means will allow.* 7 
 This valuable suggestion, as well as many others contained in the cir- 
 cular, could be better considered by a meeting or convention of Amer- 
 ican consuls in Canada than by each consul in his office. Even a con- 
 ference of two consuls alone on Department questions would pay both 
 the consuls and the Department. At least, the Department might 
 allow the consuls of the maritime provinces to effect an organization 
 or association, under the direction and control of the consul-general 
 at Halifax, for the discussion of consular duties, laws, and regula- 
 tions and all matters pertinent to the office of consul. 
 
 f Joseph T. Hoke, Consul. 
 
 Windsor, Nova Scotia, September 22, 190J+. 
 
 ONTARIO. 
 
 CORNWALL. 
 
 I have the honor to acknowledge the receipt of circular " Promo- 
 tion of trade interests." In ansAver to question No. 1, I would state 
 that it would be practicable to transmit to consular officers instruc- 
 tions from the Department of State. These reports could be revised 
 and suggestions made as to eliminating errors, etc. As to question 
 No. 2, there is perfect harmony with the Dominion officials in this 
 district, and they cheerfully give information. As to question 3. 
 there is no need of assistance at present. 
 
 John E. Hamilton, Commercial Agent. 
 
 Cornwall, Ontario, October 17, WOJf. 
 
 LONDON. 
 
 Replying to Department circular of date August 4, relative to pro- 
 motion of trade interests, in which an expression of views is solicited 
 from the consular officers, I beg to state that I am unable to see 
 wherein our diplomatic representative in Great Britain would be of 
 
1 58 PROMOTION OF TRADE INTERESTS. 
 
 much service in promoting our trade interests with Canada. I can 
 readily see where he might be of great service in the mother country, 
 but the independence of the British colonies and their trade relations 
 with the mother country arising from the preferential tariff rather 
 isolate them from any direct influence which our diplomatic repre- 
 sentative might have with their ministerial departments. Besides, 
 our nearness to the Dominion and our friendly intercourse with its 
 people, resulting in the wide dissemination of trade intelligence, 
 leave but a small field in which to exert any extraordinary influence 
 in behalf of further trade extension. 
 
 True, we are now deprived of what was formerly accorded us, viz, 
 the latest statistical information from local customs officers as to 
 exports and imports, but this can be obtained, I understand, at the 
 capital upon application to the department of customs. With this 
 exception, consular officers are accorded the fullest information nec- 
 essary to enable them to set forth clearly and fully the trade condi- 
 tions of their respective consulates. 
 
 Were I allowed to make a suggestion, I would say that a commerical 
 agent stationed at the capital might be of great benefit to our manu- 
 facturers and exporters, acting as an aid to the consul-general, with 
 power to call for such special information from consular officers as in 
 his opinion might be important, from time to time, to our interests. 
 
 Henry S. Culver, Consul. 
 
 London, -Ontario, September 16, 1904. 
 
 ORILLIA. 
 
 Replying to circular, " Promotion of trade interests," on which an 
 expression of A r iews is requested, the following is respectfully sub- 
 mitted : 
 
 Undoubtedly the officers of the diplomatic service would be able to 
 procure reliable and authentic official information in less time than 
 the average consular officer in most instances. It would, in my judg- 
 ment, be a distinct advantage to the consular service to have the active 
 cooperation of the diplomatic corps. A consul being unable to pro- 
 cure authentic information through his own efforts, could then rely 
 upon the assistance of officials better able to procure information first 
 hand. 
 
 In Canada, from my own experience, this is not so applicable. 
 Information sought has been readily obtained through the courtesy 
 of local officials or the cooperation of the consul-general at Ottawa. 
 The establishment of direct cooperative communication between the 
 diplomatic corps and the members of the consular service would, 
 however, tend to remove any difficulties and uncertainties which 
 might occur in procuring official information and prevent the appear- 
 ance of any misstatements of any considerable consequence. 
 
 My personal experience has been most gratifying with departments 
 and officials. Information sought in most instances has been readily 
 accessible, and in no instance have I met with anything but consider- 
 ate and courteous treatment. So that in Canada, through the me- 
 dium of personal effort or the assistance of the consul-general, reli- 
 able information is easily obtainable. Generally speaking, the sug- 
 
PROMOTION OF TRADE INTERESTS. 159 
 
 gestions outlined in the circular would in my opinion add to the 
 efficiency of the service. 
 
 E. A. Wakefield, Consul. 
 Orillia. Ontario, September 1. 1904. 
 
 
 TORONTO. 
 
 In reply to circular, " Promotion of trade interests," I have to state 
 that while. the suggestions contained in the circular have reference 
 directly only to countries where both diplomatic and consular officers 
 are stationed, and are not applicable to the Dominion of Canada, 
 where the consular service alone is represented, my judgment is that 
 the cooperation of diplomatic officers, along the lines indicated in the 
 circular, might be of material assistance to consular officers, particu- 
 larly in the matter of statistical and othep information, which, in 
 many cases, can best be obtained from high official sources to which 
 the average consul does not readily have access. 
 
 The transmission of inquiries through diplomatic officers to con- 
 sular officers, and, in turn, a like transmission of their replies, would 
 unquestionably serve the purpose of imparting information, each to 
 the other, and, in my opinion, would result in a cooperation that would 
 greatly facilitate the means of obtaining information valuable to the 
 importer and exporter, and in consequence prove of distinct benefit 
 to American trade and commerce. 
 
 Toronto, Ontario, October 14, 1904. 
 
 E. N. GuNSAULus, Consul. 
 
 QUEBEC. 
 
 STAIsBRIDGE. 
 
 With reference to the circular, " Promotion of trade interests," I 
 understand the object to be the combining of the diplomatic and con- 
 sular services into one alert and intelligent body, studying the world's 
 commerce and looking for commercial opportunities in each country, 
 and reporting the information collected to the Department of State 
 for the benefit of our people. It is my opinion that the aid of the dip- 
 lomatic corps would prove a powerful factor in efforts to extend our 
 commerce. With a combination such as that proposed, I can see no 
 reason why our manufacturers and exporters should not more than 
 double their trade abroad. 
 
 Diplomatic cooperation in Canada, however, is not required. Such 
 information as the consuls desire for use in their reports can always 
 be secured directly from the departments at Ottawa without the inter- 
 vention of a diplomatic officer or the consul-general. The Canadian 
 officials are ever ready and willing to grant the least request. Closer 
 relations should exist between the consular officers of Canada with 
 the consuls-general at Montreal, Halifax, and Ottawa, for the promo- 
 tion of trade between the two countries, and it might be advisable for 
 the consuls-general to make suggestions to the consular officers sub- 
 ordinate to them and revise their reports. The consuls-general are 
 
160 PROMOTION OF TRADE INTERESTS. 
 
 in a better position to cooperate with us than our ambassador or his 
 secretaries at London. Being located in this country and stationed 
 in the most important cities, they can, as a rule, detect the deficiences 
 or mistakes in our reports more readily than officials at a distance. 
 According to their judgment, they could also eliminate such passages 
 in our reports as might give offense or cause embarrassment between 
 the two countries. 
 
 There is at present no cooperation between the British diplomatic 
 corps and the Canadian commercial agents abroad. Canada's com- 
 mercial agents have no status in international law, and are therefore 
 ignored by foreign States. Their number, it is claimed, is too small ; 
 their reports are not sufficiently circulated, and in some cases, their 
 qualifications are not adequate. The Canadians assert that the con- 
 sular service should precede the granting of the right of treaty 
 making, a subject which has been discussed recently. Here is what is 
 proposed for the extension of Canadian foreign trade: First, That 
 an official paper be published setting forth tariff changes, movements 
 in foreign markets, foreign commercial legislation, port and harbor 
 regulations, etc. Second. That an office be established in Ottawa 
 where tariffs, circulars, items of commerce, news, etc., can be referred 
 to b}^ the public, who may inspect and copy. Third. That changes 
 in foreign tariffs be made known more rapidly than heretofore and 
 that projected changes be promptly reported. Fourth. That trade 
 reports appear more frequently and regularly and that copies of them 
 be sent to trade journals. Fifth. That consular reports give the 
 fullest details of industrial conditions. Sixth. That samples of 
 goods be sent home with the reports. Seventh. That consuls report 
 on what other means could be adopted to push their country's trade. 
 Eighth. That consuls be allowed to pay for early statistical informa- 
 tion. Ninth. That sample and specimen rooms be attached to the 
 principal consulates abroad where various classes of Canadian goods 
 ma}^ be kept in view. Tenth. That commercial museums of foreign 
 manufactured goods and products be established in well-chosen 
 centers in Canada, and that exhibitions of Canadian goods be opened 
 at foreign ports or sent in vessels from port to port. Eleventh. That 
 consular officers abroad use their best efforts to place British subjects 
 on a not less favorable footing than foreigners in search of conces- 
 sions or other commercial enterprises and recommmend trustworthy 
 lawyers and accountants. Twelfth. That any such enterprise be 
 reported at once. Thirteenth. That consuls assist in recovering 
 debts. Fourteenth. That consuls report on the solvency of foreign 
 business houses and how far credit may be safely given. Fifteenth. 
 That His Majesty's consuls act as quasi-public prosecutors in cases 
 of trade infringments. Sixteenth. That consuls be chosen from 
 among men possessing commercial qualifications and technical 
 knowledge. Seventeenth. That consuls home on leave shall visit 
 centers of Canadian manufacture and acquire technical knowledge. 
 Eighteenth. That the names and addresses of the consuls and their 
 office hours be made public. Nineteeenth. That Canadian commer- 
 cial attaches be appointed to embassies and legations. Twentieth. 
 That the trade and commerce department be assisted by a council to 
 be chosen from the chamber of commerce. 
 
 I have suggested, for reasons already mentioned, the employment 
 of the consuls-general to cooperate with consuls in making reports to 
 

 PROMOTION OF TRADE INTERESTS. 161 
 
 the Department in lieu of the diplomatic officers in London ; further, 
 that consular officers be allowed to pay for early statistical informa- 
 tion, and, should commercial attaches be employed, that they be 
 placed in large cities and be in charge of sample and specimen rooms, 
 where various classes of American goods may be put on view. 
 
 Felix S. S. Johnson, Commercial Agent. 
 Stanbridge, Quebec, September 26, 1904- 
 
 THREE RIVERS. 
 
 In reply to circular of August 4, regarding plan for the advance- 
 ment of American trade interests, I would say that, in view of the fact 
 that the imports from America into Canada are constantly on the in- 
 crease, and that the contemplated railway construction, on a large 
 scale, is sure to create a demand for manufactured articles, especially 
 those made of iron and steel, an organized system would do much to 
 advance the trade interests of America. I think that, for this country, 
 if a bureau, under the direction of the counsul-general, was equipped 
 at Ottawa for such a purpose, it could there secure information that 
 might be required along these lines. The other consuls throughout 
 the Dominion Would cooperate with the consul-general. 
 
 The importations into this district come through the custom-house 
 located here, and as ( our relations with the Government officials 
 located in Three Rivers are friendly, we could at any time obtain 
 information or statistics that might be required for trade purposes. 
 
 As the population and commercial needs of Canada are increasing 
 rapidly, some organized plan should be adopted at once. 
 
 W. W. Braman, Vice Consul. 
 
 Three "Rivers, Quebec, September 10, 1904. 
 
 MEXICO. 
 
 Report from Ambassador Clayton. 
 
 American Embassy, 
 City of Mexico, September 2, 1904. 
 
 I have the honor to acknowledge the receipt of the Department's 
 circular instruction of July 29 last, relative to the promotion of trade 
 interests. 
 
 Before attempting to answer the three interrogatories therein pro- 
 pounded, I shall avail myself of the invitation of the Department to 
 offer any suggestions that may seem to further the coordination and 
 improvement of existing facilities for the collection of commercial 
 intelligence. The views that I am about to express originate from 
 my standpoint here, and are based upon an experience of over seven 
 years in this Republic. 
 
 I believe that diplomatic representatives should be required by the 
 Department to make all consistent and efficient efforts with the 
 Government to which they are accredited, for the procurement of 
 
 H. Doc. 245, 58-3 11 
 
162 PROMOTION OF TRADE INTERESTS. 
 
 all proper information of a commercial character which consular 
 officers may, from time to time, request: that, where the diplomatic 
 representative entertains doubts as to the propriety of such requests, 
 it should then be his duty in each case to report the facts to the De- 
 partment for instruction. 
 
 Upon the other hand, I believe that consular officers should be 
 required, upon the request of the diplomatic representative, to furnish 
 him, promptly and efficiently, all information concerning local occur- 
 rences which might be the subject of diplomatic correspondence with 
 the Government to which he is accredited; and, that where occur- 
 rences come to the knowledge of consular officers which, in their 
 judgment, might require diplomatic action, they should be required, 
 upon their own initiative, to report the facts connected therewith to 
 such representative. 
 
 With the exception of the cooperation thus outlined, I believe that 
 each branch of the service should remain absolutely separate and 
 independent of the other. Upon the principle that " too many cooks 
 spoil the broth " and the consideration that the efficiency of public 
 officers is greatly stimulated by their desire to secure the approbation 
 of their Government and the commendation of their countrymen, I 
 believe that the officers of each branch of the service should be entitled 
 to full credit for meritorious work without it being divided in the 
 least with the other branch. Hence, I doubt the propriety of the 
 proposed diplomatic revision referred to in interrogatory No. 1. 
 
 It is my opinion that the consular service in Mexico would be much 
 improved if all of the consular officers were under the general supervi- 
 sion of one consular officer, designated as consul-general, and that to 
 him should be delegated the revisory powers referred to in the afore- 
 said interrogatory. For some reason unknown to me, but doubtless 
 well understood, by the Department, we have in Mexico two consuls- 
 general. To the consul-general at Monterey is given supervisory 
 jurisdiction over a number of consulates in the northern part of the 
 Eepublic, while to the consul-general at Mexico no such supervisory 
 jurisdiction is given over the remaining consulates, that jurisdic- 
 tion being given to the diplomatic representatives. I respectfully 
 submit for the consideration of the Department the propriety of 
 relieving the diplomatic representative of this jurisdiction and invest- 
 ing it in the consul-general at the City of Mexico, restricting the 
 general supervision of the diplomatic representative to the two 
 consuls-general. 
 
 In answer to interrogatory No. 1, I have the honor to say that, in 
 my judgment, it would be practicable for the diplomatic representa- 
 tive here to perform the additional duties referred to therein, but 
 it would considerably delay the particular work required of the con- 
 sular officers, and if well performed, would entail upon this embassy 
 much additional labor. 
 
 In answer to interrogatory No. 2, I have the honor to say that 
 I have carefully examined the diplomatic and consular regulations 
 of Mexico, and have extracted such provisions as govern the rela- 
 tions existing between the two branches of the service, either by law 
 or by departmental regulations. A copy and translation of these 
 provisions is inclosed herewith, from which it will be seen that in 
 the Mexican diplomatic and consular service there is no such coopera- 
 tion as that outlined in interrogatory No. 1, and that the Mexican 
 
PBOMOTION OF TRADE INTERESTS. 163 
 
 Government has no commercial or industrial attaches. In my opin- 
 ion, for the reasons expressed in the fifth paragraph of this dispatch, 
 such attaches would not add to the efficiency of the consular service. 
 
 In answer to interrogatory No. 3, 1 have the honor to say that, per- 
 haps with the exception of a first-class clerk, with a salary of not less 
 than $1,200 per annum, the programme described in interrogatory 
 No. 1 could be carried into effect. 
 
 Powell Clayton. 
 
 [ Translations from the Guia Diplomatica y Consular of Mexico for 1902.] 
 
 Article 17 (from the organic law of the Mexican diplomatic corps, dated June 
 3, 1896, p. 10: Chiefs of missions may order, whenever they consider it expe- 
 dient, that consulates within their jurisdiction be visited by one of the secre- 
 taries of legation or by the consul-general, making a report of the result to the 
 depatment of foreign affairs. 
 
 ******* 
 
 Article 47 (of the reglementary law of the Mexican diplomatic corps, dated 
 May 7, 1888, p. 22; : Whenever there is not a consul-general in the country 
 where a legation is established and the business of the office permits, one of 
 the secretaries will take charge of the dispatch of matters of commercial 
 character. 
 
 ******** 
 Paragraph II (of the law relating to the establishment of consular agencies, 
 dated February 12, 1S34, p. 71) : In places where there is only a consul-general, 
 because of purely commercial relations that may exist between the nation to 
 which such an officer is apbinted and the United Mexican States, that function- 
 ary shall attend to such diplomatic business with which the Government may 
 see fit to charge him. 
 
 ******* 
 
 Article 2 (of the regulations of the consular service, dated September 16, 1871, 
 p. 77; ) : The consular corps in a country where there is a Mexican legation 
 shall be subordinate to the same, without this preventing the agents and 
 employees of inferior rank from recognizing the consul-general, where there is 
 one, as their immediate chief. 
 
 ******* 
 
 Article 7 fof the same law, p. 77; : In cases of urgent necessity, in default 
 or inability of a consular agent, the chief of the Mexican legation, or in the 
 absence of the latter, the consul-general of the Republic to the country where the 
 aforesaid case may have occurred, shall appoint, with temporary character, an 
 agent or employee of the proper rank, for the place where his services are 
 required, reporting the appointment, as well as the causes for the same, to the 
 department of foreign affairs, at the first opportunity, in order that the Govern- 
 ment may take proper action. 
 
 Opinions of Consuls- general. 
 
 CITY OF MEXICO. 
 
 In answer to circular, " Promotion of trade interests," I write with 
 diffidence owing to my comparatively brief experience in the service. 
 It seems clear, however, that a slight modification in the system now in 
 vogue with us would insure more satisfactory reports on all subjects 
 of general interest and importance. At present, in Mexico for exam- 
 ple, owing to the lack of general supervision, there must be unneces- 
 sary duplication of work and lack of uniformity in results. Trans- 
 mission of particular inquiries on subjects of general importance 
 either through the ambassador or the consuls-general who could make 
 suggestions, revise reports, and indicate errors of fact or judgment 
 before forwarding reports to Washington would, without doubt, 
 improve the service. But should this be done through the diplomatic 
 
164 PROMOTION OF TRADE INTERESTS. 
 
 officer or the consuls-general? The latter are primarily commercial 
 agents. Will the} 7 not be more successful in the collection of commer- 
 cial and industrial data if their responsibility as commercial agents 
 is not divided with diplomatic officers? Of course, at this post, the 
 consul-general is not now charged with any supervisory powers. His 
 jurisdiction does not extend beyond his immediate district. He is 
 merely a local officer. Nevertheless, it has been customary for consuls- 
 general at Mexico City to issue reports on matters of general interest. 
 Such reports are made evidently with the approval of the Depart- 
 ment. That their value would be greatly enhanced if the consul- 
 general had supervisory power can not be questioned. 
 
 But it is stated that there is an objection to this view owing to the 
 limitations upon the consular service in its lack of diplomatic status 
 in obtaining information at first hand. This objection might be 
 obviated generally, as it is now practically at this post, through the 
 hearty cooperation of our diplomatic agents. A simple understand- 
 ing that diplomatic representatives will render such assistance as may 
 be necessaiy in procuring information is all that is requisite. 
 
 It seems to me that the functions of our diplomatic officers and of 
 our consuls-general are now quite distinct and that it would not be 
 wise to obliterate this distinction. It should be the ambition of our 
 consuls-general to make a record in the collection of commercial and 
 industrial data. Such positions should be filled either by those with 
 special qualifications or by those whose work in subordinate positions 
 has given evidence of peculiar fitness. 
 
 Of course, our diplomatic positions are filled generally by men of 
 high character and unusual abilities, and if such men personally had 
 time to make suggestions touching the preparation of consular reports 
 and to revise such reports, the benefits of the service would be great. 
 But the demands upon them in their representative capacity are such 
 that this work would necessarily be turned over almost entirely to 
 subordinates specially appointed for the purpose at much lower sala- 
 ries than are now paid our consuls-general, and presumably to men of 
 less business capacity. Under such conditions, it seems to me that it 
 could be done to better advantage through the consuls-general. It 
 should be distinctly understood, however, to prevent the possibility of 
 friction, that consular officers are subordinate to diplomatic officers, 
 and that they should exercise great care to insert nothing in their 
 reports likely to give offense or to cause embarrassment to diplomatic 
 officers. Furthermore, they should be encouraged to consult diplo- 
 matic officers and to follow their advice in reports which, through 
 broad generalizations, might endanger legitimate business enterprise. 
 
 It may be that my ideas on this subject are colored largely by con- 
 ditions in Mexico. Here it would be highly satisfactory if the 
 consuls-general could work as suggested under the supervision of 
 the ambassador, who gives us the heartiest cooperation and whose 
 advice we are always glad to follow. 
 
 The additional work at this post could be done if we had a stenog- 
 rapher, so that it would no longer be necessary, as at present, for the 
 consul-general to spend so much of his time either in writing at long 
 hand or in dictating to a machine. 
 
 James Russell Parsons, Jr., Consul- General, 
 
 City of Mexico, September #, 190J±. 
 
PROMOTION OF TRADE INTERESTS. ' 165 
 
 MONTEREY. 
 
 Acknowledging receipt of circular dated August 4, I have the 
 honor to state : 
 
 I see no reason why the diplomatic service could not be utilized 
 with great advantage in furnishing the Department such a class of 
 information as is found to be impossible for consular officers to 
 obtain, and I believe that such information would be of great benefit 
 in the extension of our commerce in foreign countries. I conclude 
 that the Department wishes a candid expression from consular offi- 
 cers on this subject, and I will state frankly that I do not believe that 
 it would be to the advantage of the service to submit consular reports 
 ', to the diplomatic officers for inspection or revision. While I have 
 the highest respect for the diplomatic service of our Government, the 
 officers of that service have their time largely taken up with another 
 class of business, and it is impossible for them to become as well 
 informed concerning commerce as the consular service, since the con- 
 sular service devotes a large amount of its time and attention to the 
 subject of the extension of our commerce in foreign lands. I do, 
 however, believe that our diplomatic officers are in position to obtain 
 a certain class of information which might be very difficult, or even 
 impossible, for consuls to obtain. 
 
 Our consular service is composed of an intelligent lot of Americans, 
 capable of performing the work for which they are commissioned, 
 and I am decidedly opposed to the idea of submitting their reports to 
 the diplomatic service for revision or correction. 
 
 As to the question of the appointment of commercial attaches, I see 
 no necessity whatever for such a class of officers, as I am fully con- 
 vinced that our diplomatic and consular service is fully competent 
 to look after the interests of our Government and people in every 
 particular which may be required. 
 
 » Philip C. Hanna, Consul- General. 
 
 Monterey, August 22, 1904. 
 
 Opinions of other Consular Officers. 
 
 CIUDAl) JUAREZ. 
 
 In accordance with circular instruction of August 4, I have the 
 honor to submit my opinion, as follows : 
 
 It has often occurred to me that a central bureau, or kind of clear- 
 ing house, for commercial news and information in the City of 
 Mexico would be useful. Through such an institution, consuls would 
 be greatty facilitated in their work, and by cooperation of the bureau 
 and the consular corps, reports and commercial information could be 
 so arranged and digested as to prevent duplication — so concentrated 
 and ordered as to prove more valuable and satisfactory to the com- 
 mercial factors in the United States. 
 
 When a particular manufacturer in the United States makes effort 
 to enlarge his market and extend the demand for his product, he does 
 not confine himself to a consular district, but seeks the opportunity 
 embraced in the entire Republic of Mexico. In order, however, to 
 procure the preliminary information that would prove useful to him 
 
166 * PROMOTION OF TRADE INTERESTS. 
 
 he addresses letters (frequently circulars) to all the consuls. Not all 
 the letters, perhaps, are answered; and if they are, conditions are so 
 different in the various districts that the replies do not prove alto- 
 gether satisfactory, and leave the manufacturer in more or less con- 
 fusion as to the extent of his opportunity and the best method of 
 procedure. A concise, well-arranged ansAver, covering all points of 
 information desired, and taking in the entire Republic, would prove 
 more valuable. 
 
 I am of the opinion that there should be a commercial' attache in 
 Mexico City, under the supervision of the embassy, and that, in a 
 general way, and more especially in the propagation of information, 
 there should be strict cooperation between that officer and the con- 
 sular corps. Such an arrangement should not necessarily interfere 
 with the spirit of initiative in the consuls. In the preparation of 
 reports applicable to matters local to their districts, assistance could 
 be rendered the consuls by the attache, and the consuls could cooperate 
 with the attache in supplying material for answers' to 'inquiries and 
 the preparation of special reports. While a spirit of reciprocity 
 would be necessary, I see no reason why it should not exist. 
 
 The commercial attache of the embassy should be well paid, and 
 should possess marked talent for investigation and the preparation of 
 reports. His vocation would be to investigate, digest, arrange, and 
 put into comprehensive form all kinds of matter of a commercial and 
 industrial character. He should be able to see things as they are, and 
 should know how to present them to the American factor in the man- 
 ner best calculated to afford him the proper idea of his opportunities. 
 He should be allowed a stenographer and traveling expenses, and 
 should, when necessary, visit any part of the Republic in quest of 
 accurate information and in the preparation of special reports. In 
 the exercise of his official duties, he could protect American investors, 
 who are attracted by the extravagant prospectuses of ;i fake " rubber- 
 culture and mining companies and other unsubstantial concerns. 
 Since a great deal of American capital is entering Mexico in quest of 
 every kind of investment, it would be an important part of the 
 attache's duty to point out opportunities, and, by investigation and 
 report, to protect the investor from fraud and misrepresentation, for 
 the development of Mexican resources by American capital increases 
 the volume of American commerce. 
 
 Statistics of the importation of a given object into a particular 
 consular district can not satisfy the American manufacturer fully, 
 nor can they afford him the complete and accurate information he 
 desires before seeking a new market. The attache at the embassy 
 could secure at once, no doubt, statistical information covering impor- 
 tation for the entire Republic. By acldressiug the consuls, he could 
 obtain information as to the possibility of increasing the demand for 
 the commodity in their particular districts, and from these sources 
 could prepare and supply to the inquirer information accurate and 
 complete, concise, and comprehending the entire country. The in- 
 quirer would thus receive, .in one report, a full view of the field before 
 him. its opportunities and its limitations. 
 
 I have before me a letter of inquiry from the United States Export 
 Association regarding the introduction of typewriters into Mexico. 
 These queries were, no doubt, sent to all the consuls in Mexico. It 
 appears to me that a commercial attache could prepare an answer that 
 
PROMOTION OF TRADE INTERESTS. 167 
 
 would be more satisfactory than a miscellaneous collection of replies 
 from consuls. The attache could ascertain the number of typewriters 
 imported into Mexico, their quality, price, etc. As typewriters would 
 be distributed mainly through agencies established in Mexico City, 
 he could ascertain the quality of machine for which there is the great- 
 est demand. With the aid of the consuls, if it were necessary, he 
 could furnish the names of probable agents in the various cities. On 
 the whole, the attache's report would cover the typewriter market in 
 all Mexico, and would, I believe, prove more valuable than a collec- 
 tion of answers from the consuls, who would not have the attache's 
 sources of information upon which to draw. 
 
 I have before me a letter from Grinnell, Willis & Co., of New York, 
 asking information that will aid them in introducing a line of cotton 
 goods ; from Boyle, Woolen & Co., of Dallas, who make baskets, boxes, 
 fruit crates, etc. ; from the Advance Pump Company, of Battle 
 Creek. My deductions in regard to answering the inquiries con- 
 cerning typewriters would apply with reference to cotton goods, 
 crates, and pumping machinery. 
 
 Altogether, 1 believe our commercial interests* may be well served 
 by the establishment of a commercial bureau in connection with the 
 embassy. The value of the attache's services would depend, in a large 
 measure, upon the industry, application, and peculiar fitness of the 
 attache himself. As far as the consuls are concerned, I am confident 
 they would heartily cooperate with the attache in promoting the 
 interests of our manufacturers and exporters. 
 
 Charles W. Kindrick, Consul. 
 
 Ciudad Juarez, October 17, 1904. 
 
 CIUDAD POKFERIO DIAZ. 
 
 Replying to circular, " Promotion of trade interests," I beg to say 
 that, while my experience in this service is not extensive, I realized 
 long since that the consular officer is greatly hampered in his work, in 
 this, that he is powerless to command the data from which he is 
 expected to tabulate the information demanded at his hands. 
 
 .There are many things of interest to the trade in the United States 
 to be gathered by each consular officer peculiar to and showing the 
 conditions existing in his particular locality ; but when he is told to 
 report, in tabular form, minute information as to kind, quantity, and 
 value of imports or exports to or from his district, there is nothing 
 left for him to do but apply to the Mexican official having record 
 of the same, who will most likely inform him that he has no force to 
 put upon such work, nor is there any fund at his disposal, etc. The 
 consular officer has then exhausted his resources, and can only report 
 from his general knowledge and best information, all of which is 
 uncertain, incomplete, and unsatisfactory. 
 
 I have hitherto reported to the Department this state of the case. 
 
 The fact is apparent to all, however, that a diplomatic representa- 
 tive is free from the difficulties which stand in the way of the ordi- 
 nary consular officer, having his residence at the seat of government 
 of the foreign country, where there is a proper record of the various 
 industries, and of the export and import of all merchandise to and 
 from the country; and having diplomatic relations in existence 
 
168 PROMOTION OF TRADE INTERESTS 
 
 between the country he represents and the foreign power, he is in posi- 
 tion to have an}- reasonable request granted him. Our diplomatic 
 representative can also, without trouble, procure reports from any 
 part of the foreign country, as to local conditions, from that country's 
 local official, which may be, at his request, either furnished to him or 
 to such consular officer of his own country within whose district such 
 foreign official may reside. 
 
 I heartily approve the plan suggested by your circular, and am of 
 opinion that, if such cooperation as is there contemplated can be 
 secured between the diplomatic representatives and the consular offi- 
 cers, the facilities for collecting commercial intelligence will be 
 greatly enhanced and facilitated. 
 
 I recognize the wisdom of the Department's provision in said circu- 
 lar, reserving the right to determine whether a report of a consular 
 officer shall be amended or suppressed, in whole or in part, and that 
 the annotations made by the diplomatic officer are simply for the 
 assistance of the Department in reaching just conclusions. 
 
 My first impression was that friction might result from the new 
 order of things, especially if the diplomatic representative should 
 fail to be diplomatic in his intercourse with the consular officers, or 
 should show a captious or fault-finding spirit in dealing with the con- 
 sular corps. The danger on this point will be obviated by the pro- 
 vision of the circular, to the effect that the Department will decide 
 finally upon the work of the consular officer. The work of the diplo- 
 matic representative takes the same relation in the final determination 
 of the matters reported as that of a master commissioner in a court of 
 equity,, which the court passes upon, confirms, or ignores in its final 
 determination of the equities involved. Taking this view of the mat- 
 ter, I am satisfied that, if this plan is consummated, the utility of the 
 service will be greatly advanced and a much more satisfactory result 
 will be obtained. 
 
 Lewis A. Martin, Consul. 
 
 CrcDAD Porfirio Diaz, September 1. 190 '4- 
 
 MAZATLAN. 
 
 I have the honor to acknowledge the receipt of circular, " Promo- 
 tion of trade interests."' and would most respectfully submit for your 
 consideration the following : 
 
 It seems to me that the step proposed is second only in importance 
 and far-reaching effect in increasing our trade relations with other 
 competing nations to the creation of the Department of Commerce 
 and Labor, and if the diplomatic and consular service will " take 
 hold " in patriotic spirit, as well as energy, we would soon have the 
 best organized and best equipped commercial bureau in the world. 
 
 The difficulty experienced- by consuls in many countries when they 
 desire to obtain statistics for a comprehensive report, is often in- 
 creased by the natural jealousy excited by the rapid increase of Amer- 
 ican commerce and by the plea on the part of officials that they must 
 obtain permission from their governments before they can give the 
 desired information, which, in cases where there is no direct railroad 
 communication with the capital, would make the report, when re- 
 ceived, practicably useless on account of the length of time consumed 
 
PROMOTION OF TRADE INTERESTS. 169 
 
 in securing the same. Next, almost all officials object to doing such 
 work without compensation, and when ordered by their superior to 
 comply with the request, they sometimes delay the report so long that 
 it becomes worthless. 
 
 I have always made it a point to be on very friendly relations with 
 the heads of the various state and federal departments in my jurisdic- 
 tion, and in every instance that I aeked for information, the promise 
 was quickly and readily given, but the execution of it was usually 
 slow. It would be of the greatest importance to the consular corps, 
 in making the various reports called for by our manufacturers and 
 exporters, if they could have recourse to the diplomatic corps and 
 request them to furnish such information, which could not be obtained 
 in their consular districts without encountering unreasonable delay. 
 Promptness in obtaining the desired information is of the utmost 
 importance, and nothing would facilitate this more than the coopera- 
 tion of the diplomatic corps with the consular corps. 
 
 Being a commercial nation, it would be of untold value for the 
 United States had we a commercial or industrial attache in each 
 country, just as we have already a military attache. The duties of 
 commercial attaches should be principally to secure statistics relating 
 to the exports and imports of the United States ; to report upon the 
 manners, customs, and, habits of the merchants of the countries to 
 which they are accredited; to obtain data showing the place and 
 country from which they import their goods; the value and class of 
 such goods, duties, freights, and also custom-house regulations ; to 
 suggest means of avoiding friction between the custom-house officials 
 and shippers ; to provide information as to railroads and waterways ; 
 their facilities for handling freights, etc. It is evident that a thor- 
 ough business man, with large experience and broad views, would be 
 needed to fill such a position. 
 
 Louis Kaiser, Consul. 
 
 Mazatian, August 27, 1904* 
 
 NOGALES. 
 
 I have the honor to acknowledge the receipt of circular of August 
 4, on which I am instructed to give my views. 
 
 The diplomatic service would be of great assistance in obtaining 
 general statistical information at the seat of government of a foreign 
 country, for the reason that consuls are usually limited to restricted 
 districts. It is my opinion that the advance made in recent years 
 by consular officers in their utility in gathering information has been 
 caused by an improvement in the personnel of the corps and by their 
 pride in an independent service in direct communication with the 
 Department, which holds each one of them responsible for his acts. 
 In case this direct responsibility were assumed by the diplomatic 
 service, would it not take away from consuls the stimulus for their 
 best individual efforts? Valuable information is often reported by 
 consuls, that might give offense if communicated by a diplomatic 
 agent or received his official sanction ; and furthermore, in this coun- 
 try, it is sometimes obtained upon private solicitation when, in my 
 opinion, an official request might be refused. 
 
 Albert R. Morawetz, Consul. 
 
 Nogales, September 5, 190 4. 
 
170 PROMOTION OF TRADE INTERESTS. 
 
 NUEVO LAREDO. 
 
 I have the honor of replying to }^our circular, " Promotion of trade 
 interests," and of giving, as requested, a statement of my opinion. A 
 careful reading of the circular discloses a thorough grasp of the sub- 
 ject, both as to its general plan and the exigencies of its application ; 
 but to confirm its advisability in every particular, and, doubtless, to 
 secure a cheerful concurrence of the officers affected, you have called 
 for an expression of their views. 
 
 To begin with, the plan and its purpose are admirable. An accu- 
 rate and positive method of gleaning trade information is indispen- 
 sable to our foreign commerce, and to intelligent legislation. It 
 can not be less than a patriotic pleasure for the consular service to 
 cooperate with the Department in making this service as effective as 
 possible to that end. 
 
 For reasons which I conceive to be good, I believe the appointment 
 of a commercial attache to be desirable. The duty of such attache, 
 acting as inspector-general of commerce for an entire nation, would 
 be uncompromising in its demand upon his time and energy, and 
 much vigilance and study would be the price of the wide and varied 
 information which must be the basis of reliable calculation. With 
 the requisite time and material, an attache may become a commercial 
 authority, capable of weighing the conflicting data before him, and 
 supplying our tradesmen, and especially our legislative bodies, with 
 such information as would enable them to secure all possible advan- 
 tages to commerce and to avoid mistakes. It is the exclusive work 
 of a capable brain, and could not justly be added to the duties of 
 embassies as now organized. 
 
 If this service is to be performed to its fullest measure, verging 
 upon the competitive spirit which prompts it, such officer might be 
 looked upon with disfavor by the accrediting country, and such duties, 
 performed by our regular diplomatic corps, might work detriment to 
 successful diplomacy in other directions. The incumbent should 
 therefore stand apart and independent of other diplomacy, his prin- 
 cipal relation to the foreign ministry being that of statistician ; never- 
 theless, his diplomatic status should have a dignity adequate to the 
 interests involved. As a means of counteracting any possible hostility, 
 and to make the office as fraternal as possible among mutual compet- 
 itors, I would respectfully suggest that the courtesy of an attache's 
 statistical library relative to his own country be extended to similar 
 incumbents of the accrediting country. 
 
 While the appointee to this office should be a man whose opinion 
 would be valuable, it is, nevertheless, desirable that the Department 
 be responsible for the acceptance or rejection of a report: First, 
 because the consular officer is entitled to be heard at headquarters, 
 and, second, because the attache should not be placed in a position to 
 create offense or to make his authority felt by those with whom he 
 cooperates. 
 
 It is my opinion that annual reports from officers so specialized, 
 bearing upon the multitudinous conditions which affect trade, would 
 enable an administration to take its international bearings, and would 
 go a long way toward removing tariff legislation from a position of 
 indefiniteness to a position more positive and scientific. 
 
 James G. Burr, Acting Vice- Consul* 
 
 Nuevo Laredo, October 6, 190 Jf. 
 
PROMOTION OF TRADE INTERESTS. l7l 
 
 SAXTILLO. 
 
 In compliance with circular of August 4, asking for an expression 
 of my views upon the best method for the coordination and improve- 
 ment of existing facilities for the collection of commercial intelligence 
 and the promotion of American trade interests in this country, I beg 
 to say that suggestions from diplomatic officers on certain inquiries 
 from the Department would be of material assistance to consular 
 officers, the former being acquainted in their diplomatic capacity 
 with facts of commercial value, which are never brought to the 
 attention or knowledge of a consular officer. Such source of informa- 
 tion would certainly facilitate the inquiry and help to make it more 
 exhaustive. 
 
 Victor L. Duhaime, Consul. 
 
 Saltillo, September 2, 190Jf. 
 
 TAMPICO. 
 
 
 In response to circular, " Promotion of trade interests," I submit 
 the following : 
 
 To the American exporter, a commercial attache stationed at the 
 capital of a country where statistical information could be promptly 
 and accurately obtained, where the first news of new enterprises and 
 government works could be secured, would be of great value, pro- 
 vided he be thoroughly posted on the local conditions of the various 
 parts of the country to which he may be accredited and be familiar 
 with the language thereof. Mexico, for example, from its tropical 
 coast to its temperate interior on a plateau 6,000 feet above the sea, 
 offers so varied a field for exploitation, so wide a variety of product 
 and demand, that such commercial attache would be of little use un- 
 less he could advise exporters that mining machinery could not be 
 sold in Tampico, and that the market for thrashers was in Morelia 
 and Jalisco, and not in Vera Cruz. 
 
 I believe such commercial attache should be assigned to an embassy 
 or legation, unless it would detract from the dignity thereof, for the 
 fact that business is paramount over the world to-day, is undoubted. 
 If the collection of statistics was all that is desired, an employee of a 
 consulate could procure them. A competent attache could save time 
 in the Department of State by editing reports from consuls, for they 
 are often duplicates, and such revision, if general, would eliminate 
 reports from the consuls to one country on the affairs happening in 
 other consular districts until such reports were verified, thereby 
 avoiding some mistakes. 
 
 In a country like Mexico, the statistics of imports of any one port 
 are misleading ; the total imports, alone, are of value. Reports show- 
 ing Tampico to have received large shipments of chemicals and ma- 
 chinery bring letters from our exporters asking for the names of 
 the principal wholesalers in those lines in Tampico, and the writers 
 are surprised to learn that there is none such. 
 
 It is most important that the exporter and manufacturer should 
 know of the demand for certain goods in a country, but it is also nec- 
 essary that he should know the part of the country from which the 
 demand comes. This should be the duty of the attache, to be in touch 
 
172 PROMOTION OF TRADE INTERESTS. 
 
 with such needs, and to him all communications to consuls should be 
 referred where the information desired covered more than the imme- 
 diate consular district. 
 
 The questions propounded in the Department circular deserve the 
 most careful consideration; the answers thereto will doubtless vary 
 with the country from which they come. The seriousness and im- 
 portance of the subject would seem sufficient to entitle the idea to a 
 trial; therefore, would it not be wise to select a country which is a 
 keenly competitive market for the American and European merchant 
 and send to it a capable business agent or attache accredited to the 
 embassy and then watch results in the saving of time to the consuls, 
 the quality of the information furnished to business inquirers and the 
 condensing of business reports? The opinion of our manufacturers 
 and exporters of these results — in addition to that of the Depart- 
 ment — would provide a basis for determining whether the plan 
 ■should be extended or abandoned. 
 
 Samuel E. Magili/, Consul. 
 
 Tampico, September 6, 1904. 
 
 VERA CRUZ. 
 
 In response to circular of August 4, " Promotion of trade interests," 
 T have the honor to submit the following : 
 
 Whether or not it would be practicable for the embassy to transmit 
 to consular officers instructions from the Department of State, from 
 time to time, is a question that may be unhesitatingly answered in the 
 affirmative, provided such instructions refer to matters within the 
 consular district, or to points readily accessible. If the embassy, 
 after a careful study of the subject, should give the consul the benefit 
 of its opinions and note the same in the shape of facts or suggestions, 
 the information thus obtained might prove to be of the greatest value 
 and enable the consul to render a report as clear, complete, and com- 
 prehensive as the material at his command will permit. 
 
 Should consular officers be instructed to transmit their reports to 
 the Department through the embassy, the latter doubtlessly could 
 revise, change or correct a report, call attention to possible errors, 
 either of fact or simply of judgment, and if necessary, in the opinion 
 of the ambassador, eliminate entire sections of the same, if of the 
 b>elief that such might give offense to the country to which he is 
 accredited, or embarrass him in his official relations to the same. 
 
 With reference to the possible effect the plan suggested might pro- 
 duce on the consular service, I am prepared to state that this consu- 
 late can not see any serious objections to the proposed innovation, 
 and while not altogether sanguine of its complete success, appreciates 
 the importance of cooperation with the embassy, as the latter, by its 
 diplomatic status, has command of facilities for securing valuable 
 data from the government statistics at first hand not obtainable by a 
 consular officer with the same facility, or perhaps not at all. The 
 embassy, by transmitting such information to the consul, would be 
 of great assistance to the latter in all instances when such data are 
 required to complete and fully cover all points upon which intelli- 
 gence is desired. The diplomatic officer, however, should exercise the 
 greatest care in determining what part of a report should be changed. 
 
PROMOTION OF TRADE INTERESTS. 173 
 
 modified, or possibly eliminated altogether, and his actions should 
 not be governed by mere impressions he may have acquired through 
 other sources, not accesible to the consular officer, as in that case it 
 may result in practically destroying the value of a report altogether, 
 or at least impair its utility. 
 
 In all matters appertaining to a consular jurisdiction, the con- 
 sular officer possesses the inestimable advantage of personal acquaint- 
 ance and daily contact with merchants, importers, and exporters of 
 all nationalities; he is on friendly footing with government officials, 
 state and municipal ; he is or perhaps has been located at the prin- 
 cipal seaport of the country ; is more or less familiar with the methods 
 and customs of the people of his district, and, necessarily, must be in 
 all respects better equipped than a diplomatic officer possibly could 
 be with respect to procuring reliable and trustworthy* detailed intel- 
 ligence from his particular district. This is not at all the case with 
 the embassy, unless an officer specially detailed for the purpose and 
 properly qualified for the position should be appointed. In this case, 
 he should be endowed with authority to pursue his inquiries regard- 
 less of expense or time, should the subject warrant it. However, in 
 this respect, a consular officer, experienced and thoroughly conver- 
 sant with affairs within his consular district, is perhaps better qual- 
 ified for the work* under consideration than a newly appointed 
 attache, provided he is no less restricted or limited in his methods 
 of obtaining intelligence. 
 
 In this respect, the Department, in nry opinion, will act wisely by 
 communicating directly with the consular service, even though all 
 consular reports should be transmitted to the Department through 
 the embassy. It is to be assumed that the latter, in course of time, 
 would gather valuable and reliable intelligence on many subjects by 
 reason of having studied the various consular reports passing through 
 its hands, but whenever a consular officer has information to trans- 
 mit not called for by special instructions, and this information has 
 been secured from sources within the limits of his jurisdiction or 
 from any other trustworthy and reliable source, he should address 
 himself directly to the Department, without submitting the report to 
 the embassy and thereby delaying its transmission, perhaps unneces- 
 sarily, and so impair its usefulness to the public at large. 
 
 Wm. W. Canada, Consul. 
 
 Vera Cruz, September 30, 1904. 
 
 CENTRAL AMERICA. 
 
 Report from Minister Merry. 
 
 American Legation, 
 San Jose, Costa Rica, September 2, 190^. 
 I have the honor ( to forward a memorandum prepared in accord- 
 ance with your circular to diplomatic officers of the United States, 
 dated July 29, 1904, and relating to the promotion of trade interests. 
 
 1. It will be practicable at any time to transmit to consular , officers 
 instructions received from the Department of State for any informa- 
 tion wanted, and to add thereto when forwarding such information 
 
174 PROMOTION OF TRADE INTERESTS. 
 
 anything available that may tend to increase the value of the consular 
 report. The general revision of the consular reports thus transmitted 
 will be of doubtful value, and should, it is suggested, be restricted to 
 errors of fact. Any information that might give offense or cause dip- 
 lomatic embarrassment should be so notified to the Department of 
 State, with request for its being treated as strictly confidential and 
 not available for publication. 
 
 2. All consular officials in this jurisdiction (1 consulate-general, 4 
 consulates, and 6 consular agencies) are required to correspond regu- 
 larly with this legation by every mail (generally trimonthly), and 
 replies from the legation are promptly made. All consular officers 
 in this jurisdiction comply with this instruction except two. who are 
 foreigners with controlling interests not specially friendly to the 
 development of American industries and commerce. 
 
 This legation being accredited to three republics (Costa Rica, Nica- 
 ragua, and Salvador), its usefulness to the Department of State must 
 depend somewhat upon information received from consular officers by 
 means of the correspondence alluded to. ConsequentrY. the legation 
 letters to these officials are largely interrogatory and suggestive, but 
 not intended to call for information properly appertaining to their 
 usual consular reports. On the contrary, occasions have been availed 
 of to suggest that such reports shall be made direct to the Department 
 of State on appropriate topics, and care has been taken to avoid the 
 impression that it is desired to deprive consular officers of the credit 
 appertaining to them in connection with reports made direct. It is 
 obvious to the Department that there is a great difference in the value 
 of consular correspondence; some officers write concise and valuable 
 dispatches while others are poor correspondents, and occasionally 
 there is a disposition to exaggerate the conditions alluded to. Conse- 
 quently, intelligence thus acquired must be used with discretion to 
 avoid sending unreliable information to the Department of State. 
 
 It is my impression that commercial attaches to Spanish-American 
 legations will not be useful to the United States. Recognized as such 
 distinctively, they will be viewed with suspicion by the Governments 
 and by the mercantile and industrial interests of the Republics, and 
 so far from facilitating information to them, it will be withheld, 
 when practicable. At present the consuls, as commercial representa- 
 tives, can obtain the class of information needed for the benefit of 
 our people without being recognized as being specially interested in 
 doing so. 
 
 The consular system of the United States, as proven by its work, 
 is, in my judgment, the best in the world, but can be improved by 
 appointing salaried vice-consuls in place of consular and commercial 
 agents, who are compensated by fees by them collected and allowed 
 to transact other business as well as to hold other official appoint- 
 ments. The additional cost of making this most desirable change 
 would, I apprehend, be inconsiderable, and can be closely estimated 
 without difficulty. 
 
 3. Xo additional assistance would be at present needed at this lega- 
 tion to carry into effect the programme described under question Xo. 
 1. In the case of increased work resulting from many more transla- 
 tions, with reports on commercial and industrial topics, it might be 
 necessary in the future to employ a translator and clerk to prepare 
 documents, under control of the minister and secretary of legation. 
 
PROMOTION OF TRADE INTERESTS. 175 
 
 I shall have great pleasure in carrying out any instructions sent 
 me by the Department of State in this connection. The Department 
 is well aware that there occurs at times considerable friction between 
 neighboring consular officials, and it is possible that some of these 
 officials will consider the execution of the Department instructions 
 in this connection as an interference with their official duties on the 
 part of the legation. I am of opinion, however, that such consular 
 officers are to be considered exceptions, the general disposition being 
 to honestly serve the interests of our Government and its citizens. 
 
 William Lawrence Merry. 
 
 Opinions of Consular Officers. 
 
 BRITISH HONDURAS. 
 
 American Consulate, 
 Belize, August 2^ 190 i.. 
 
 In reply to circular of August 4, requesting an expression of views. 
 I would answer question 1. as the only question that could apply to 
 this particular office. 
 
 I think that the assistance, of legations in giving or revising infor- 
 mation as to trade conditions is only useful and practicable when 
 rendered in the country where the minister resides, and I can not see 
 how the ambassador in London, for instance, can advise of conditions 
 or openings for trade in distant colonies of Great Britain, or detect 
 a errors of fact " in reports, though any errors of language or of 
 judgment might well be passed upon byiiim without any prejudice to 
 the later review by the Department ; that is, if the delay thus caused 
 is not of any consequence. I do not, as a rule, think it advisable to 
 have a consel's report sent to ministers at distant capitals from posts 
 so far away. 
 
 W. L. Avery, Consul. 
 
 Belize, August 21±. 190^ 
 
 GUATEMALA. 
 
 I have the honor to report in reply to circular, " Promotion of to de 
 interests/' that it seems to me it would be better to have the consul- 
 general do the work of a commercial attache, rather than incumber 
 the diplomatic representative with that class of work, which is foreign 
 to most of his more important duties, while it is in direct line with 
 the duties of the first-named officer. It would seem that the social 
 and diplomaic duties of an ambassador or minister would be inter- 
 fered with much in assuming such duties, while they would strengthen 
 the position of the consul-general. 
 
 The relations of the diplomatic and consular officers at the capital 
 should be such that the consul-general could freely confer with his 
 chief on all semidiplomatic questions that might come up in dealing 
 with commercial matters. It would be necessary to enlarge the scope 
 of the consul-general's relations with the Government where he is sta- 
 tioned, either by the Department or by a request on the part of the 
 
176 PROMOTION OF TRADE INTERESTS. 
 
 diplomatic representative that the consul-general be given special 
 privileges in looking up all commercial and industrial matters. 
 This, I take it, would put him in touch with everything necessary 
 to carry out his work. 
 
 Alfred A. Winslow, C onsul-General. 
 Guatemala City, September 19, 190 4. 
 
 HONDURAS. 
 
 CEEBA. 
 
 In reply to circular of August 4, I wish to say that, in my opinion,, 
 any plan for the cooperation of the diplomatic with the consular corps 
 for obtaining commercial information would be a great improvement 
 on the existing facilities. The services of the diplomatic officers 
 would be particularly valuable in obtaining statistical information. 
 Even if the consular officer could obtain such information, it only 
 concerns the port where he is located. This statistical information 
 of exports and imports is prepared at the various ports of entry and 
 forwarded to the capital, where eventually it is published in some 
 periodical issued officially by the Government, but by the time it has 
 been so published and reaches the consular officer, it is too old to be 
 of interest to the enterprising American merchant and exporter. A 
 diplomatic officer would find it easy to obtain such reliable infor- 
 mation, and it could be used as a supplement to the report of the 
 consular officer regarding matters of importance and interest in his 
 local district. 
 
 Dean E. Wood, Consul. 
 
 Ceiba, October i, 1904. 
 
 ITIULA. 
 
 In compliance with circular of August 4, I have to report that, in 
 my judgment, the plan proposed is both desirable and feasible, and, 
 from my experience here and in Mexico, the only plan which gives 
 any clear promise of searching out and reporting all the facts. There 
 should be no temptation on the part of consuls, either overambitious 
 or from a mistaken sense of duty, to cover one another's territory or 
 report on maters coming more naturally under the authority of the 
 minister or consul-general. 
 
 It is manifestly absurd for me. in my insular position, to report 
 upon things continental that can with greater ease and authority 
 be reported upon by the consul at Tegucigalpa or the consul at 
 Puerto Cortes. It is clear to my mind that the diplomatic officer can 
 unlock some doors that the consul can not reach. 
 
 If there be any lack of cooperation between diplomatic and consu- 
 lar officers, a step in the direction might be taken by investing the 
 consul-general or the consul at the capital of a country or in some 
 prescribed district with authority for gathering data and reporting 
 upon matters pertaining to the promotion of trade and commerce, 
 all consuls in his district to report through him, this making him 
 

 PKOMOTTON OF TRADE INTERESTS. 177 
 
 responsible for the adequate reporting of his district. Such consul- 
 general or consul could be selected and appointed under instructions 
 officially emphasized. Let the appointee have the equivalent of a 
 newspaper training, or at least the instinct for commercial news, 
 and let all the consuls in his district be encouraged to keep in personal 
 as well as official touch with him. 
 
 More effective service might possibly be secured by allowing the 
 minister at the capital to attend to his diplomatic functions without 
 being loaded with this extra work, and fixing clearly this proposed 
 responsibility upon some consular officer at the capital who shall be 
 in touch with the minister. At any rate, the consular service might 
 be thus strengthened and made more efficient. 
 
 Either course would be preferable to the present method, or lack of 
 method. 
 
 John B. Richardson, Consul. 
 
 Utilla, October 19, 190^ 
 
 NICARAGUA. 
 t 
 
 MANAGUA. 
 
 In reply to circular of August 4, I beg to state that, in my opinion, 
 the plan for the cooperation of diplomatic and consular officers for 
 the " Collection of commercial intelligence and the promotion of 
 American trade " is excellent for those countries where such courte- 
 sies are extended only to the diplomatic service, but I must confess 
 that I am unable to see what would be the advantage in Nicaragua, 
 for instance, where every courtes}- of that kind is extended to the 
 consul, and no limitation is put upon him owing to lack of diplo- 
 matic status. 
 
 I have always cultivated such relations with the officers of this 
 Government that I can go directly to any officer, high or low, and 
 have never been refused the information requested or a personal 
 interview with any official, from the President and his ministers 
 down to the collector of the port. Whenever any diplomatic officer 
 accredited to this country has desired any information on whatever 
 subject, it has been the custom here to obtain it through the consular 
 officer. For instance, Minister Merry has always obtained, through 
 me, what information he has required for his reports, and the only 
 difficulty encountered is the lack of a bureau of statistics, where such 
 information can be obtained, as the minister's reports and all other 
 statistics are old before they are published. 
 
 Chester Donaldson, Consul. 
 
 Managua, September 10, 1904- 
 
 SAN JUAN DEL NORTE. 
 
 Replying to the Department's circular, " Promotion of trade inter- 
 ests," I beg to say that the plan outlined for the cooperation of the 
 diplomatic and consular services would, in my opinion, add much to 
 the effectiveness of the consular service and make possible results 
 
 H. Doc. 245, 58-3 12 
 
178 PROMOTION OF TRADE INTERESTS. 
 
 which are not attainable under present conditions. Even in an unde- 
 veloped country like Nicaragua, a consul is constantly receiving letters 
 asking questions that can be properly answered only with data from 
 all the consular posts in the country. As it is now, lie would not feel 
 justified in often asking his colleagues for information, and if he 
 did, could only expect meager replies. 
 
 If the plan proposed by the Department were in operation, impor- 
 tant questions could be forwarded to the legation, where they could 
 be transmitted to the various consulates, and the combined replies, 
 together with such information as it would be possible for the lega- 
 tion to obtain, would make complete and reliable answers. On the 
 other hand, the legation would be constantly making requests for 
 information upon points which, although the data might be at hand, 
 a consul might not think of reporting upon, not knowing the informa- 
 tion was desired. 
 
 The system would give American merchants a feeling that the 
 replies could be relied on, and many foolish ventures would be pre- 
 vented and many good projects brought into being. Doubtless, such 
 an arrangement would eventually lead to a more systematic and 
 thorough collecting of trade-museum samples, and would be benefi- 
 cial in various other directions. 
 
 John Todd Hill, Consul. 
 
 San Juan del Norte, September 2, 190 J±. 
 
 SALVADOR. 
 
 Opinions of the C onsul- General. 
 
 In replying to circular " Promotion of trade interests," it seems 
 best to show the facilities of this office and the cooperation that may 
 be expected in the legation's efforts to collect accurate commercial 
 information. 
 
 In this connection, it may be stated that there exist locally two 
 sources of such information: The Government bureau of statistics 
 and the private business houses and industries. There exists no 
 chamber of commerce, mining bureau, or merchants' association. The 
 Government office of statistics confines itself to collecting and com- 
 piling statements more immediately concerning the public revenues, 
 and these consist principal^ of tables of imports and exports 
 through the different ports, values of merchandise and products thus 
 passing in and out, receipts and expenditures of the several fiscal 
 offices, and comparisons with fiscal business transacted during former 
 3^ears. Minutely detailed information is not obtainable. To illus- 
 trate, I would say that merchandise of a similar kind is always 
 brought under one general head. Thus we find that under 
 " Machinery " all metal or woodworking implements, coffee plants, 
 sawmills, windmills, engines, and boilers are classified under this one 
 head, and it is not possible to obtain the importations and values of 
 each group. To this is added the difficulty that these statistics are 
 first got out in the rough in March or April of each year, and so 
 first appear in the report of the minister of finance and public credit 
 presented annually to the National Congress. After revision, they 
 
PROMOTION OF TRADE INTERESTS. 
 
 179 
 
 are not published until November, so that they are always some nine 
 months old before reaching the general public. 
 
 Through the courtesy of the Government, this office is conceded 
 very free access to the bureau, and all information requested is 
 always promptly given, within the limitations above stated. Possi- 
 bly, more accurate squrces of information as to port operations are 
 the different forwarding houses there established. They, however, 
 publish no reports or statistics, and are also quite reticent as to the 
 business they transact, so that they can not be relied upon to furnish 
 figures of any kind. In other lines, the local business nouses must be 
 depended on. This is, for the same reason, necessarily a tedious and 
 unsatisfactory method of procuring what is, at best, only an approxi- 
 mate estimate, wherever figures are concerned. On the other hand, 
 it is the only way of getting at the merchants' requirements whenever 
 it is desired to indicate to manufacturers the measures best calculated 
 to attract this market. 
 
 I am not aware that Salvador maintains any commercial or indus- 
 trial attaches specially or exclusively charged with the duties of such 
 an office. Its consuls collect and forward, from time to time, such 
 data as they consider useful and advantageous to their country's 
 industrial interests, much in the same manner as obtains in this serv- 
 ice of other nations. This office receives inquiries, from to time, from 
 its legation, and every endeavor is made to forward the corresponding 
 report as fully and promptly as possible. 
 
 In conclusion, I may state that the local consular officer must be 
 solely depended on for commercial data. As shown, the local Gov- 
 ernment bureau of statistics is deficient; the private business houses 
 do not care to publish their transactions, and what tabulated state- 
 ments are given out come so late as to lose much of their usefulness. 
 As so little is given to the general public, and as this office has access 
 to whatever official information exists, it is difficult to indicate how 
 the consular officer, under local conditions and circumstances beyond 
 his control, could better cooperate in this matter with the legation or 
 Department of State. 
 
 John Jenkins, Consul- General. 
 
 San Salvador, November 17, 190Jf. 
 
 BRITISH WEST INDIES. 
 
 Opinion of Consular Officers. 
 
 ANTIGUA. 
 
 I have the honor to acknowledge the receipt of Department circular, 
 dated August 4, in regard to a plan for the cooperation of diplomatic 
 and consular officers for the increase of trade. 
 
 These islands are so far separated from the home government and 
 from the embassy that the plan would not be practicable here, but I 
 should think it very valuable near the seat of a central government. 
 The consul here has ready access to the colonial secretary's office and 
 to the governor of the colony, and while I have been here. I have 
 found both very ready to grant any reasonable request. 
 
180 PROMOTION OF TRADE INTERESTS. 
 
 In the islands away from the head of the colonial government. I 
 dare say the consuls do not find it so easy to get what they want. It. 
 might, therefore, be a benefit to the service to place the consul or 
 consul-general at the seat of a colonial government on a basis that 
 would always insure them such access to the head of the government 
 as would enable them to get what information §vas desired. I throw 
 out this suggestion for what it is worth, without knowing whether 
 this would either be possible or desirable. Certainly at the present 
 time, it would not be necessary. 
 
 W. K. Estes, Consul. 
 
 Antigua. August 23, 1904. 
 
 BAHAMAS. 
 
 In answer to circular. ; * Promotion of trade interests." I have to say 
 that, since there is no embassy or legislation in this country, my views 
 can have little value. As far as facilities for obtaining official infor- 
 mation are concerned. I should never have any trouble in obtaining 
 full and satisfactory answers to any questions I might ask. 
 
 Julian Potter. Consul. 
 
 Nassau, Xew Providence. September 6, 190 4. 
 
 BARBADOS. 
 
 In reply to the Department's circular, " Promotion of trade inter- 
 ests," I will state, after careful consideration, that while the circular 
 undoubtedly does not apply to this post, as I can always obtain easily 
 all information possible without any outside aid. I believe that in 
 some countries a commercial attache would be of great assistance in 
 procuring data and information desired at times by the Department, 
 which a consular officer might not be able to obtain without assistance 
 through diplomtic channels. 
 
 David F. TTilbee. Consul. 
 
 Barbados. TVest Indies, December 8. 1904- 
 
 WEST IXDIES. 
 
 Report from Minister Squiers. 
 
 CUBA. 
 
 American Legation, 
 
 Eabana, August 19, 1904. 
 Acknowledging receipt of Department circular instruction, dated 
 July 29, 1904, I have the honor to say that a definite plan of action 
 for the guidance of diplomatic officers in the preparation of syste- 
 matic, reliable, and carefully compiled commercial reports would, 
 without doubt, keep our manufacturers and exporters more closely 
 informed as to actual trade conditions, and there is no reason why 
 such reports, as well as the collection of trade statistics and data. 
 
PROMOTION OF TRADE INTERESTS. 181 
 
 should not be undertaken by officers in the diplomatic service. These 
 officers have opportunities for obtaining reliable information directly 
 from the departments of government specially charged with trade 
 matters. Consular officers, on the other hand, having no relations 
 with the government departments, depend for their information 
 either upon unreliable advance reports published in the newspapers, 
 on trade gossip, or on long-delayed official publications. Informa- 
 tion reported under such conditions is uncertain, possibly untrue, and 
 therefore unreliable, misleading, and worse than none. 
 
 A consular officer whose knowledge does not extend beyond the 
 limits of his particular jurisdiction is incompetent to make reports 
 on conditions which obtain outside of his district. His reports, 
 however, would be of great service to the official charged with making 
 a general report on the trade conditions of the whole country. Hav- 
 ing access to all the commercial information collected by the depart- 
 ments of government specially charged with compiling trade statis- 
 tics, this official is the one best equipped for making a report of 
 greatest service to manufacturers and exporters. The information 
 would be exact and reliable, being based on the information furnished 
 by the consul and verified by that obtained from Government sources. 
 
 Special reports made by consular officers from time to time ought 
 to be revised, since conditions prevailing in their consular districts 
 possibly do not exist elsewhere. In order to act intelligently and to 
 take advantage of trade conditions in a particular locality, a manu- 
 facturer or an exporter should be closely informed on the trade situa- 
 tion as a whole, and hence unrevised reports from a particular dis- 
 trict are often very misleading, and, if acted upon, costly. 
 
 Referring to the questions on the third page of the circular, I 
 have to say that I consider it entirely practicable for this legation 
 to assist the Department in obtaining information from United 
 States consular officers in Cuba, according to the suggestions contained 
 therein, and when such consular reports are received, to undertake to 
 revise, correct, or add to them, according to the best information 
 obtainable here; and to cooperate generally with the consular service 
 in the collection of trade data and information according to any line 
 of action laid down by the Department. 
 
 A well-equiped commercial attache would be of great assistance, 
 particularly in those countries where we have an undeveloped trade, 
 but with good prospects for increasing it, as in Cuba, South America, 
 and the Far East. 
 
 Generally speaking, a secretary of legation has no special qualifica- 
 tion, training, or inclination for such work, the traditions of the 
 service being opposed to it. 
 
 Unless the Department finds it advisable to add a commercial 
 attache to this legation, I consider the present staff quite equal to the 
 increased work proposed. 
 
 I am advised that the Cuban legations in Madrid, Paris, and Lon- 
 don have, attached to them, vice consuls, who report at fixed times on 
 the commercial situation of the countries to which they are accredited, 
 their reports being subject to the approval of the chief of mission. 
 Cuban diplomatic officers do not correspond with the Cuban consuls 
 in foreign countries except on matters of political interest. 
 
 H. G. Squiers. 
 
182 PROMOTION OF TRADE INTERESTS. 
 
 CIENFUEGOS. 
 
 Opinions of Consul Baehv. 
 
 Upon my recent return to my post. I found unanswered Department 
 circular, " Promotion of trade interests/' In the expression of my 
 views relative to the practicability of the suggestions contained 
 therein, I have the honor to state that, with reference to this consular 
 district, the local officials have thus far replied with promptness and 
 courtesy to my requests for commercial and industrial data, affording 
 me full and comprehensive reports upon all subjects under investiga- 
 tion. In consular districts where the local officials manifest unwill- 
 ingness to do this, I have no doubt that a commercial atache would be 
 an extremely useful official, charged, as you say, with the special 
 duty of collecting industrial and trade information, and concerning 
 whose status no serious question of propriety could arise. All the 
 Cuban customs officials and municipal officers with whom Lhave come 
 in contact have, instead of placing restrictions upon my endeavors 
 to obtain information, deemed it wise to allow the record of the 
 importation and exportation at the several ports, as well as the wants 
 and requirements of their countrymen, to be published for the perusal 
 of American exporters and importers. 
 
 Max J. Baehr, Consul. 
 
 DUTCH WEST IXDIES. 
 
 Opinions of Consul Cheney. 
 
 CURACAO. 
 
 I take the first opportunity of answering circular, c * Promotion of 
 trade interests," a copy of which was received in this office soon after 
 my departure for the United States. 
 
 Curacao is so situated that this consulate has had little to do with 
 diplomatic officers. A knowledge, however, of what is being done in 
 other countries where the consular and diplomatic officers are in close 
 touch with each other can not be otherwise than helpful and stimu- 
 lating to duty, and I welcome it as such. I thoroughly appreciate 
 and enter into the purpose to promote the interests of American 
 business abroad to the utmost, and desire to do all in my power to 
 that end. More than half the postage paid by this office is for 
 answers to inquiries from American citizens pertaining to business 
 and the possibility of extending it. The ascertaining of the facts 
 requires no little time; but there is abundant satisfaction in having 
 some part in a work which has already produced very substantial 
 results. That more than half the imports into this colony are from 
 the United States is undoubtedly due mainly to the efforts of my 
 predecessors. If that proportion decreases, I mean to know why, and 
 to inform the Department. My field is limited; but, as a rule, what 
 
PROMOTION OF TRADE INTERESTS. 183 
 
 finds its way here forces its way into Venezuela, whose people come 
 here so largely to trade, coming with empty and going home with 
 full trunks. 
 
 Elias H. Cheney, Consul. 
 Curaqao, West Indies, December 1, 190 Jf. 
 
 HAITI. 
 
 Report from Minister Powell. 
 
 American Legation, 
 Port au Prince, August 17, 190 J^. 
 
 I have the honor to comply with Department's instructions in its 
 circular, " Promotion of trade interests." 
 
 Before answering the points requested in the circular, permit me 
 to say that if our Government desires to enter into active competition 
 for a share in the commerce of the world, or to maintain the effective 
 position it has secured, the present action it is about to take is most 
 important in more ways than one. . 
 
 Though among the youngest in point of service in the diplomatic 
 field, I have felt that much more could be done in this direction than 
 has been or is being done, without encroaching upon the strictly con- 
 sular work, as laid down in the Department's instructions to its con- 
 sular officers. In the past, and even in the present, the diplomatic 
 work has been somewhat circumscribed in this particular. I do not 
 mention the fact as a reason for increasing the work of our embassies 
 or legations, but I fully believe much more could be clone effectively if 
 our .legations were intrusted with a portion of the work that in the 
 past has been considered as belonging strictly to the consular service. 
 
 The position of an embassy or a legation is such as to enable it to 
 secure for the Department much valuable information that is now 
 lost, or, rather, that does not reach the Department. The diplomatic 
 officers are so placed that they can secure information more minutely 
 and over a larger field than that occupied by the consuls; they can 
 not only supplement a consul's work but they can make it more effect- 
 ive, and at the same time open new channels of information that 
 would be closed to a consular officer. Such work need in no wise 
 interfere with the effective work of many in the consular service. If 
 the Department adopted this line of action, I am fully persuaded that 
 within a few years our commerce would feel the effects of it, and we 
 would occupy a most enviable position as a commercial power. It 
 would give an impetus to all our home industries and would carry the 
 handicraft of American mechanics into the most remote parts of the 
 world. It would do miore than this — it would open markets for 
 American goods that are now closed, and would enable us to cope with 
 the keenest competition. 
 
 xill that is needed is for the Department to formulate a definite 
 plan upon which all can work, providing, of course, Congress appro- 
 priates the means to make this work effective. 
 
 As I have stated, the consul's office is local, while the functions of 
 our embassies and legations cover a much wider field, and for this rea- 
 son thev could secure data that would be most useful to both our 
 
184 PROMOTION OF TRADE INTERESTS. 
 
 Government and our commercial interests. This information com- 
 ing from the embassies or legations and being accurate, the Depart- 
 ment could make immediate use of it, and our various commercial 
 interests would feel the benefit. While our consular service has 
 achieved wonderful results in the past few years, there remains much 
 to be accomplished in order to obtain the full measure of profit to all 
 interests. 
 
 I have the honor to reply to the Department's inquiries as follows : 
 
 1. It will be practicable for this legation, if consular officers are 
 instructed to forward their reports to it regarding any matter that 
 the Department desires information upon, to supplement such infor- 
 mation according to the lines laid down. 
 
 2. (a) At present, no. (b) I believe this cooperation could be 
 easily secured without friction between the two services, (c) This 
 Government has no commercial or industrial attaches, (d) I do not 
 think it advisable, at the inception of this service, that an attache be 
 named in connection with this legation. This work can be done by 
 the present representative; but this statement should not be con- 
 sidered as binding upon his successor, who might hold a different 
 view. Wheat I think might be required would be the addition of a 
 clerk to our present force, as, to make this work effective, we should 
 open a new set of books for recording data as we receive it, as well as 
 all reports that might emanate from this legation. If the Depart- 
 ment required someone to travel through the various sections of the 
 Republic to collect data upon a given subject, an attache would 
 possibly be needed, but, as I have stated, I think the work can be 
 accomplished without one. 
 
 3. None, except as stated in 2 (d). 
 
 W. F. Powell. 
 
 SA1STO DOMINGO. 
 
 Report from Minister Daicscm. 
 
 American Legation, 
 Santo Domingo, August W, 190 It . 
 
 Replying to your circular of July 29, in regard to cooperation be- 
 tween the diplomatic and consular services in collecting commercial 
 information, I have to say that our minister here, being also consul- 
 general, the plan outlined could be easily put into practice in this 
 country. 
 
 Answering j^our several questions specifically, I would say that it 
 would be practicable and, I think, advantageous for this legation to 
 transmit the particular inquiries and instructions of the Department 
 in regard to commercial information to the consular officers, and to 
 annotate them in the mode indicated. At present, there is no such 
 cooperation. 
 
 No foreign government has any commercial or industrial attaches 
 in this Republic. I do not think a commercial attache at this legation 
 necessary at the present time. An ambitious and intelligent clerk 
 would be sufficient, under the direction of the minister, and he would 
 have time to aid in other matters. 
 
 Additional assistance to the extent of $600 a year would be needed 
 
PROMOTION OF TRADE INTERESTS. 185 
 
 to enable me to carry into effect the programme described and to give 
 proper attention to the preparation and revision of commercial 
 reports. I now have but one clerk for both legation and consulate- 
 general, and it will be difficult for the two of us to keep ahead of the 
 work already in hand. He receives $500 a year from the fund for 
 clerks at consulates and $400 from the legation contingent fund. 
 If the present consular allowance of $500 were increased to $900, one 
 clerk could be employed with it who would devote his whole time to 
 consular and commercial report work. Two hundred dollars added 
 to the contingent allowance for the legation would make $600 avail- 
 able for another clerk, who would attend exclusively to legation copy- 
 ing as well as the translations, which at present I make myself. A 
 man competent for such work could, I think, be obtained for $600 
 a year. 
 
 My experience in Santo Domingo has been too short to enable me to 
 base upon it any suggest ons which would be likely to further the 
 general object sought. However, during my seven years' service as 
 legation secretary in Brazil, where circumstances especially drew my 
 attention to tariff and commercial matters, I made observations which 
 may be of some value to the Department. 
 
 Most excellent work in the preparation of commercial reports was 
 done there b}^ energetic, intelligent, and careful consuls. An impor- 
 tant stimulus I believe to have been a desire to recommend them- 
 selves to. the Department. In my judgment, the intervention of a 
 legation should not be in a form calculated to weaken the conviction 
 that the preparation of good reports may advance the writer's stand- 
 ing and bring him into closer relations with his responsible chiefs at 
 / Washington, in whose hands lies, or should lie, his professional 
 future. Further, I am convinced that a system of efficiency reports, 
 like those in our Navy, made by both the immediate and indirect 
 superiors of every man employed in the consular and diplomatic 
 services, would be beneficial in many respects, and especially so in 
 securing a systematic and general preparation of commercial infor- 
 mation. 
 
 It sometimes happens that a consul sends in among his early reports 
 some which, on account of faults in form and substance, are not 
 printed. He becomes discouraged, and so, whatever real capacity 
 he has is never developed, and the knowledge he is constantly absorb- 
 ing is useless to American commerce. A minister, close at hand, with 
 opportunities to know the consul personally, and enabled by his 
 familiarity with local affairs to indicate specific lines of inquiry, 
 might be able to utilize his capacities. 
 
 The same consideration would apply in the case of an indifferent 
 consul. A careless consul sometimes makes erroneous and misleading 
 statements in his reports which, in the nature of things, can not be 
 detected except by a person expert in regard to that particular 
 country. For example, he may misunderstand tariff legislation, and 
 report an increase in customs duties incorrectly. Such mistakes 
 necessarily escape Department officials, and therefore, wrong infor- 
 mation is published which could easily have been detected had the 
 report passed through the hands of a competent minister on the 
 ground. 
 
 Translations of changes in tariff laws, customs regulations, negotia- 
 tions of national loans, and other actions of the central government 
 
186 PROMOTION OF TRADE INTERESTS. 
 
 affecting commerce, are sometimes never transmitted, or the labor of 
 preparing them is unnecessarily duplicated by ministers and consuls, 
 acting independently. The ministers or consuls-general should be 
 held directly responsible for such matters. 
 
 The German, Italian, and Austrian legations in Brazil took meas- 
 ures to be constantly informed about commercial matters affecting 
 their respective countries, and made frequent and exhaustive reports. 
 The latter two legations, at least, exercised an unremitting control 
 over rhe correspondence with their consulates about such matters. 
 
 T. C, Dawson. 
 
 SOUTH AMERICA. 
 ARGEXTIXE REPUBLIC. 
 
 Be port from Minister Bectupre. 
 
 American Legation, 
 Buenos Ay res, October 6. 1904. 
 
 Eeferring to the Department's circular instruction of July 29 last, 
 concerning the " Promotion of trade interests,'' I have the honor to 
 state as my frank and candid opinion, based upon experience in both 
 the consular and diplomatic services and upon mature deliberation, 
 that I do not believe the proposed plan of supervision and revision by 
 diplomatic officers of the reports of consular officers to be feasible or 
 likely to give satisfaction. 
 
 I am thoroughly of the opinion that revision and expurgation are" 
 essential and necessary in many of the consular reports, and super- 
 vision of some sort or other advisable in all, for I have had complaints 
 made to me by our merchants that our consular reports are often 
 untrustworthy, and I am aware that, in a great many instances, our 
 merchants and manufacturers have been induced by inaccurate and 
 misleading statements to send their agents at considerable expense to 
 foreign countries only to discover that the opportunities reported by 
 the consul did not exist or was wholly overestimated. Our manufac- 
 turers are every day looking for new and better markets abroad, our 
 home markets becoming every year more and more sated with our 
 products; in other words, we have become an exporting country. 
 Consequently every branch of trade is calling out for accurate and 
 reliable information. And what is more natural than that they 
 should look to the Government and to the Government's agents resi- 
 dent in the foreign centers of trade to supply their need ? Our home 
 Departments, as for instance the Department of Agriculture, are 
 doing a wonderful work in the gathering and dissemination of accu- 
 rate statistics and information in all the branches under their respect- 
 ive supervision. Their reports are eA r ery where sought abroad, and 
 their statements accepted with a flattering readiness and eagerness. 
 Our own citizens at home have every right, then, it seems to me, to 
 expect from our foreign trade representatives reports and statements 
 upon which they can rely with at least the same implicit faith that 
 foreigners are putting in the statements of our home bureaus. And I 
 sincerely believe that this thing can be accomplished and that, too, 
 
PROMOTION OF TRADE INTERESTS. 187 
 
 with the existing — though perhaps modified and improved — system, 
 without the multiplication of offices and the dividing and subdividing 
 of authority by the addition of commercial attaches or the confusion 
 of two properly distinct services. 
 
 My reasons for want of faith in the wisdom of the plan proposed 
 are two : First, to make the consular officer subordinate to the diplo- 
 matic officer in the matter of trade reports would tend, nay more, 
 would be sure to destroy the spirit of initiative and emulation in the 
 former — that spirit that is the secret of all the wonders of American 
 civilization and attainment that marks the wonderful contrast be- 
 tween the Old World and the New World civilizations; that all our 
 institutions foster and that makes our young men, w T hile still in the 
 prime of life, old in ingenuity and attainment. The need of the hour 
 is, then, to stimulate rather than to repress and destroy this spirit of 
 initiative in our consuls. 
 
 It is a known fact that our consuls are of very different caliber, 
 character, and qualifications for their offices, and I firmly believe that 
 the work of the individual takes its character from the character and 
 fitness of the man. The unreliability or insufficiency of some consular 
 report is due, in my opinion, to individual characteristics, rather 
 than to inability to obtain information, or to limitation by reason of 
 lack of diplomatic status. My experience is that all the bureaus of 
 government having to do with statistical or commercial affairs are 
 always open to consular officers on grounds of international and 
 personal courtesy, and that instances where diplomatic intervention 
 is necessary to secure first-hand information are very rare. On many 
 such rare occasion, when the consular officer can not reach the source 
 of official information, a diplomatic officer would always stand ready 
 to lend his assistance. 
 
 My second reason is that I so thoroughly believe that the sphere of 
 the diplomatic officer and that of the consular officer are two distinct 
 and different spheres and should be kept so. The consul has to do 
 with trade, the diplomat with statecraft; the consul is frequently 
 a merchant, the diplomat should be a statesman. The consul deals, 
 in the daily routine of his office, with the concrete facts and figures of 
 commerce; the diplomat with the various situations arising between 
 friendly or jealous and hostile peoples, with comity of nations and 
 international law, with equity and the theory of government. These 
 spheres are absolute and distinct; they should not be confused, nor 
 can fitness for the one imply in any sense fitness or capacity for the 
 other. 
 
 Not only are the two spheres distinct and the one officer unqualified 
 for the duties of the other, but the supervision by the one of the duties 
 that are alone within the province of the other is impracticable as 
 calculated to lead to friction and hard feelings. And in the case of 
 the diplomatic officer, he could not be given even supervisory power 
 over the trade reports of the consul, provided this were fixed by law 
 as, and publicly known to be, a part of his functions, without its de- 
 tracting somewhat from his status as the representative of his govern- 
 ment before a foreign government. To put it concretely, if it were a 
 part of my duties to go about among the people of the country in 
 which I am located for the purpose of collecting trade information. 
 with the object either of making or of supervising reports, my stand- 
 ing in this community would inevitably suffer. 
 
188 PROMOTION OF TRADE INTERESTS. 
 
 The place, then, in my opinion, to vest the needed supervisory 
 power is within the consular service itself. I beg leave to venture 
 the statement that if our consuls were all made subordinates to one 
 or other consul-general; were this consul-general — and his subordi- 
 nates as well — carefully selected with a view only to his fitness and 
 his uprightness and disinterestedness of character; were his duties 
 defined primarily as those of supervision and of study of and report 
 on trade conditions, the routine of office work being delegated to a 
 proper inferior — under these conditions our consular service would 
 take a still higher rank among those of other nations and our consular 
 reports assum a better and more reliable character. The considera- 
 tion extended to consuls-general in the capitals to which I have been 
 accredited is such that their personal status and consequent facility 
 for collecting industrial and trade information preclude the necessity 
 of sending commercial attaches, provided the same care is exercised 
 in selecting the consul-general as would be in selecting the commercial 
 attache. The responsibility being thus within the appropriate serv- 
 ice, the supervision could be exercised without the friction that would 
 necessarily arise in case of supervision by a diplomatic officer. The 
 consul-general, a consul's own proper superior, to whom he is answer- 
 able for all his acts, could criticise and revise the work of the consul 
 and outline future work for him with impunity; whereas if this 
 were done by a diplomatic officer it would lead to friction, and a con- 
 sular officer, nursing a grievance growing out of such relations, would 
 thereafter be less inclined to exertion in preparing reports, and being 
 answerable to no immediate superior, would lose all initiative and 
 content himself with his routine work. In the three different coun- 
 tries to which I have been accredited, the British consuls make all 
 their reports to or through the British legations. I am quite certain 
 that this system is not satisfactory to the consular officers, and am con- 
 vinced that the general results prove our present system to be better 
 than theirs. Such improvements as I have outlined above would 
 leave no room for question as to this superiority. 
 
 If, however, it is decided to utilize the diplomatic service in col- 
 lecting commercial information and in trade expansion, I believe it 
 should be along more independent lines than those outlined in the 
 Department's circular ; a cooperation, if you please, with the consular 
 service; but with a responsibility only for the work emanating from 
 its immediate instructions. 
 
 I would thoroughly approve of giving the first secretaries of 
 legation or embassy, in the countries where extra effort is deemed 
 advisable, something of the status of commercial attaches, doubling 
 for this purpose their salaries — for they are most pitiably underpaid 
 at present, and nothing less than the doubling of their salaries would 
 be a competent remuneration — and giving them the necessary allow- 
 ances for extra clerk hire and other expenses. Then, I believe it 
 would be practicable for the Department to send all instructions for 
 particular information or special inquiries directly to them, and to 
 authorize them to prepare or have prepared the desired reports. In 
 this case it should be part of the consuls' duties, and they should be 
 especially instructed to hold themselves in readiness and to exert 
 themselves to put at the disposal of the legations and embassies all 
 the information at their command, and to prepare answers to all the 
 questions that might be submitted to them by the diplomatic officers 
 
PROMOTION OF TRADE INTERESTS. 189 
 
 concerning matters in their respective jurisdictions; these answers 
 not to be treated as independent reports, but to be used as informa- 
 tion only. In case this plan were adopted. I would say that the 
 remuneration of the secretary of legation at this place, inclusive of 
 all allowances for extra clerk hire and additional expenses, should be 
 $5,000 per annum, and not less. 
 
 In answer to the specific numbered questions of the last part of the 
 DeparmemVs circular, I have the honor to state that, in my opinion, 
 for the reasons given above, it would not be practicable, although 
 entirely possible, or advisable for me to transmit the Department's 
 instructions for particular inquiries to the consular officers in this 
 country. Likewise, revision and annotation by me of tjieir reports 
 would, for reasons adduced above, seem to me ill advised. I do not 
 think any precautions of the Department or this legation could pre- 
 vent the inevitable friction that would arise, or preserve the spirit of 
 initiative of the consular officers, under such circumstances. 
 
 There is no such cooperation between the diplomatic and consular 
 services of this country. The Argentine Kepublic has one commer- 
 ciarattache, at Rome. He is connected with the legation, making all 
 his reports through the minister, and ranks below first secretary. 
 He receives $3,000 gold per annum. I do not believe, after conver- 
 sation with the British and German ministers and with officials of 
 the Argentine Government, that the system of commercial attaches is 
 considered a success. 
 
 To carry the programme described under question 1 of the circular 
 into effect, about $1,200 should be appropriated for extra clerk hire 
 and other expenses. And, as the burden of the additional work 
 would fall upon the secretary of legation, and he is already inade- 
 quately paid, I think his salary should be doubled. 
 
 In expressing the above opinion, that the diplomatic and consular 
 services are and should remain two distinct services, so far as the 
 distinctive work of each is concerned, I do not mean to say that the 
 general supervision of the latter by the former, which has always 
 existed, should cease. On the contrary, I consider the consular service 
 subordinate to the diplomatic service, and a general accountability to 
 it necessary. And I feel it my duty to avail myself of this opportu- 
 nity to say that I believe that our consuls should not be allowed to 
 report directly to the Department in matters that are solely and 
 alone within the province of the embassies and legations, such as 
 relations of one country to another, general political relations within 
 a country, etc. ; in short, in any matters other than those of commerce 
 and trade relations. Here, I sincerely believe, the province of the 
 consul ceases. All matters, other than commercial and industrial, 
 should be reported by the consul to the diplomatic agent in the coun- 
 try to which he is accredited, and by him to the home government: 
 otherwise the diplomatic officers might be seriously embarrassed by 
 the consuls reporting directly matters that are wholly and alone 
 within the province of the minister. 
 
 This legation is thoroughly interested in the extension of American 
 trade, and to that end has, on its own initiative, been reporting to the 
 Department all matters that seemed to it to deserve its attention or 
 calculated to interest the American merchant and manufacturer. 
 Whatever action the Department may see fit to take in regard to the 
 matter discussed in its circular and in this answer, this legation will 
 
190 PROMOTION OF TRADE INTERESTS. 
 
 continue to show its interest by such voluntary contributions, and will 
 always hold itself ready to serve, to the best of its ability and so far 
 as other duties admit, all the interests commercial of the American 
 people. With their best interests at heart and my duty to my Gov- 
 ernment clearly in view. I have the honor to submit this frank 
 response to the Department's circular inquiries. 
 
 A. M. Beaupre. 
 
 Opinions of Consular Officers. 
 
 BUENOS AIRES. 
 
 I have the honor to acknowledge receipt of circular, wC Promotion of 
 trade interests." in which I am requested for an expression of my 
 views. I do not hesitate to say that I do not think it practicable 
 that instructions from the Department of State to the consular 
 department should go through the ministers : neither 'do I think it 
 practicable for consular reports to go through the hands of the minis- 
 ters for correction on subjects upon which the ministers know little 
 or nothing. I think that, in most cases, the ministers and consuls have 
 very little to do with each other, and should the Department of State 
 decide that these consular reports should be transmitted through the 
 ministers, there will be friction which will be damaging to 4rade, 
 instead of promoting it. 
 
 D. Mayer, Cons id- General. 
 
 Buenos Ayres, October 21, 190 Jf. 
 
 ROSARIO. 
 
 I have the honor to acknowledge the receipt of circular, i; Promo- 
 tion of trade interests," and asking for my views. 
 
 In common with all Americans who hold their country's com- 
 mercial leadership to be of the greatest national importance I have 
 taken deep interest in this subject, and during my consular career 
 have, to the best of my ability, worked for the promotion of such 
 leadership. From my point of view, I have arrived at some decided 
 views and conclusions which, under this comprehensive instruction. 
 I shall undertake to express as briefly as possible. I shall not reply 
 to the questions in detail, as propounded to the diplomatic officers, 
 but treat the subject as it applies to my district. 
 
 My consular district embraces eight provinces (States) and four 
 gobernaciones (territories) of the north and northeast of the Repub- 
 lic, having a population almost exactly half of the entire Republic 
 and a productiveness more than equal to the balance. My consular 
 office at Rosario is in the southeast corner of this vast territory, and 
 there is railway communication with but a limited portion of my 
 district, so that intercourse with the remoter portions is slow and 
 uncertain. Every portion of my district teems with wealth, much 
 of it. especially in the mining and timber regions, as yet undevel- 
 oped; but when the developing power is brought to bear the result 
 will be the enrichment of the persons who engage practically and 
 energetically in that work. The people who inhabit this region, both 
 
PROMOTION OF TRADE INTERESTS. 191 
 
 the near and the remote parts, are not, generally speaking, producers, 
 except through the agricultural and pastoral industries, which are 
 followed as yet in anything but a thoroughly productive manner. 
 
 The people must, therefore, be fed and clothed and housed from 
 the products imported from foreign lands; their fields must be tilled, 
 and their crops harvested and carried to market with appliances 
 from somewhere abroad. With their little labor and their inefficient 
 management, so rich is their soil that they still have for market 
 enough and to spare to bring to their coffers gold for all their wants, 
 and this wealth goes to that nation's representatives who can supply 
 their wants to suit their peculiar tastes and will take the trouble to 
 furnish them as required. 
 
 Of the nations whose representatives make special effort to do this, 
 Germany stands clearly in the front rank, with England, France, and 
 Italy following more or less closely, while, I regret to say, our coun- 
 try, as yet, occupies an inconspicuous place. There are numerous 
 reasons for this. First of all, the most successful of these caterers to 
 the Argentine wants send personal representatives, who go to all the 
 principal towns and villages, speaking the language of the country, 
 and never failing to book extensive orders with the most reliable 
 wholesale dealers in these places, taking care to take orders only 
 from merchants of undoubted financial reliability, to whom they 
 freely give long credits of six, twelve, and eighteen months. One of 
 these agents told me that in ten years their house had not lost a dollar 
 in bad debts in the Argentine. This is in one line, and the same holds 
 good in all other lines: and this success follows such persistent per- 
 sonal effort, even when the goods are of an inferior quality and the 
 prices are but little less than those of much better grades from other 
 sources. 
 
 There is one line alone in which America leads all the rest, in qual- 
 ity, effectiveness, and sales, and that is in agricultural implements. 
 They are universally recognized as the best, and the large importers 
 and dealers are compelled to buy them in great and increasing quan- 
 tities, because they are the best, and notwithstanding the discrimina- 
 tion against them in the matter of terms of payment. One dealer 
 told me that it was not uncommon for him to pay a draft for thou- 
 sands of dollars for American machinery before he had seen a piece 
 of it. While this shows a confidence in our manufacturers by the 
 dealers, it shows, in reverse, a lack of it in the dealer by the manufac- 
 turers, and, therefore, the dealer is tempted to substitute another 
 machine when he can, regardless of quality, and, I submit, this is 
 subversive of our trade interests. 
 
 Now there should be some way to smooth out, to a very considerable 
 degree, these rough places. There should, if possible, be some closer 
 bond between our American merchants and manufacturers and the 
 consumers and their representative middlemen in this country, and 
 to thereby increase and strengthen our trade here. I presume this is 
 the problem to be solved. How can it be done ? 
 
 Primarily. I should say, by those people in each line in the United 
 States forming a " combine ? ' and securing, at a liberal salary and a 
 liberal allowance for daily expenses, a man who will travel, step by 
 step, from city to city (or- town) all up and down the land — a serious 
 man (to use a native idiom) — speaking the language, with practical 
 
192 PROMOTION OF TRADE INTERESTS. 
 
 familiarity with the line of goods he represents, and with ability to 
 engage to make for the purchasers such goods as they want and put 
 them on their counters in such shapes as they are accustomed to, and 
 to sell them good, fresh articles and not put off in the South American 
 market any old shopworn remnants, and to be shrewd enough to 
 ascertain the financial standing of those to whom they sell, and to be 
 liberal in their tiine as well as prices. With such continued and per- 
 sistent effort, Argentine trade, in any line, in -ay be won for America, 
 for back of all sentiment American goods, other things being equal, 
 are liked better than any others. A corporal's guard of such men, 
 representing the leading lines of goods, meats, dry goods, canned 
 goods, and fancy groceries, boots and shoes, hats and caps, underwear, 
 rubber goods, etc., would undoubtedly work a revolution in American 
 trade here, and a revelation to our European competitors. A great 
 reason for the large consumption and adoption of American farm 
 machinery in this district is that those manufacturers are entering 
 systematically on their sales, and work much on the lines I suggest, 
 with results that are doubtless in the highest degree satisfactory. So 
 much for strictly mercantile work in the development of trade. 
 
 As to how such work might best be furthered by official agency of 
 diplomatic officers and consuls, permit me first to point out the dif- 
 ficulties under which a consular officer, situated as I am, labors in 
 endeavoring to discharge such duties : As I have indicated, my office 
 is in one corner of a large district, and I am compelled to be there 
 during the business hours of each business day in the year, and I am 
 not able to absent myself for even twenty-four hours to visit any out- 
 lying towns or villages or any of the splendid farms, of which I only 
 learn indirectly, but my time is exclusively given to work that could 
 well be done by a competent clerk. If one were allowed me I could 
 have some time in which to gather the facts that I am constantly 
 expected to furnish, by the multitudinous correspondents, regarding 
 addresses of firms engaged in their several lines, the prospects of 
 trade, and a thousand and one particulars that could only be gathered, 
 if at all, from the proprietor, whose hours at the office are the same as 
 mine in this. There is no city directors 7 for Eosario, else this part of 
 my correspondence would be facilitated. When, however, I am 
 requested to name the principal firms in my consular district in a 
 special line, which is a quite usual request, you may imagine with 
 what a task I am confronted. 
 
 A way. and a feasible way, in my opinion, to ascertain many of the 
 facts requested of consuls, is, as suggested by your circular, to have at 
 our legation a " commercial attache," a part of whose business it 
 would be to gather commercial data of all sorts and in all lines, and 
 on application by the consuls, furnish them with the bare figures, on 
 which they could base a courteous and satisfactory reply. This 
 attache, armed with his diplomatic commission, and with the indorse- 
 ment of the Argentine Government, could, going from place to place 
 throughout the Republic, satisfy himself of the commercial condi- 
 tions at each place, which he could hold for the information of not 
 only the consuls of the respective districts, but of the representatives 
 of American houses taking orders throughout the country. He would 
 also have direct and easy access to all statistical information in the 
 different departments of this Government, which avouIcI, on request, 
 
PROMOTION OF TRADE INTERESTS. 193 
 
 be transmitted by him to such consuls as desired to avail themselves 
 of it for their reports. Certainty this position, ably and properly 
 filled, would be no sinecure, for, in addition to the above line of work, 
 he could, and should, ascertain throughout the Republic possible or 
 prospective developments of the natural resources of the country, 
 keep himself abreast of all new enterprises in process of development, 
 in order that interested firms in the States could be in early with 
 bids for supplies of machinery, equipments, etc. ; ' note specifically all 
 improvements of lines of commerce, and be the trusted officer of 
 our Government, fully equipped with information, to whom possible 
 investors might confidently look for reliable data. 
 
 This is, in my opinion, the practical plan to promote that which we 
 all desire — our trade interests in Argentina. 
 
 With regard to the cooperation of the consular with the diplomatic 
 officers, I will answer for this office that, as long as it is under my 
 control, I shall work willingly and to the best of my ability for the 
 furtherance of this object. I will do so with the brightest hopes of 
 the success of the effort which the Department seems to have in mind. 
 
 James M. Ayers, Consul. 
 
 Rosario, September 17, 190 1^. 
 
 BOLIVIA, 
 
 Report from Minister Sorsby. 
 
 Legation or the United States, 
 La Paz, Bolivia, September 15, 1901f. 
 
 Referring to the Department's circular of July 29, with respect to 
 the " Promotion of trade interests," I have the honor to report : 
 
 First. In my opinion it would be entirely practicable, as well as 
 highly desirable, to transmit to consular officers instructions from the 
 Department of State from time to time for particular inquiries; to 
 make in the dispatches of transmission such suggestions as may be 
 pertinent to facilitate the inquiry, or to make it more comprehensive ; 
 to revise their reports, and to furnish supplementary information 
 when a report or series of reports appeared to be defective or mis- 
 leading. 
 
 Second. There is no such cooperation as that outlined in the circu- 
 lar between the diplomatic and consular officers of Bolivia, nor does 
 the Bolivian diplomatic and consular service provide for commercial 
 or industrial attaches. 
 
 In my judgment, such attaches would be of material advantage to 
 American commerce. 
 
 Third. No special additional increase in the personnel of this lega- 
 tion would be required to intelligently and effectively carry out the 
 programme indicated by the Department's circular. An addition of 
 $500 per annum to the present contingent expense allowance for the 
 item of clerk hire and the designation of the clerk as " attache " 
 is all that would be required. 
 
 William B. Sorsby. 
 H. Doc. 245, 58-3 13 
 
194 PROMOTION OF TRADE INTERESTS. 
 
 BRAZIL. 
 
 Report from Minister Thompson. 
 
 A copy of your circular letter to diplomatic officers, under date of 
 Jury 29, has been sent to me here. In answering your questions I 
 respectfully submit : 
 
 1. All that is suggested could be done bv the minister in Brazil, 
 without embarrassment to the minister or his position. 
 
 2. There is, at this time, no cooperation between the legation in 
 Brazil and the consular service, except occasional necessary letters. 
 
 3. No additional assistance would be necessary if the legation has 
 an efficient and willing secretary. 
 
 I think my only suggestion in entering upon this new plan of car- 
 ing for important commercial matters, if it is finally decided to 
 make a change, is great care in selecting consuls, especially consuls- 
 general — care that the}^ should be worthy and efficient. All that 
 your letter suggests as desirable could be clone efficiently, satisfac- 
 torily, and without added expense I would think, not only in Brazil, 
 but in all countries, unless a commercial agent is thought best, in 
 which event, the added expense of this one man would be ali that is 
 necessary. 
 
 It might be desirable to make the consul-general to a greater degree 
 than now responsible to the minister. It would seem desirable also 
 that a commercial agent, when one is assigned to any country, should 
 have an office with the consul-general and report to him. 
 
 D. E. Thompson. 
 
 Opinions of Vice Consul-General. 
 
 Replying to the Department's circular of August 4, requesting an 
 expression of views on the circular " Promotion of trade interests," 
 under date of July 29, addressed to the diplomatic officers of the 
 United States, I have the honor to make the following observations : 
 
 The greatest obstacle to the satisfactory collection of trade infor- 
 mation is not secretiveness on the part of the authorities who, in 
 Brazil, are, with rare exception, ready to extend their courtesies to 
 ministers and consuls without distinction, but the lack of a uniform 
 system of official published statistics. Although the Brazilian statis- 
 tical department has made rapid strides in the last four years, large 
 gaps still exist in the system, which put consuls who are called upon 
 to report on some one branch of industry to a severe test. In such 
 cases the consul must fall back upon primary sources, and his success 
 depends upon the extent of his friendly relations with some promi- 
 nent merchant, manufacturer, or local head of a government tribu- 
 tary branch. In gathering information of a still more detailed 
 character, such as is demanded for replying to the very numerous 
 letters from American manufacturers who are interested in but one 
 line, the ability of the consul is limited by his office force. If he is 
 without some person whom he can send during business hours to 
 
 a Forwarded from Lincoln, Nebr., November 11, 1904, Minister Thompson 
 being absent from his post, on leave. 
 
PROMOTION OF TRADE INTERESTS. 195 
 
 interview personally a large number of representative importers or 
 exporters, he is helpless. 
 
 It will be seen that, for the above classes of information, nothing 
 
 is to be gained by making the legation the channel of inquiries, nor 
 do I think the Department's circular presupposes such a change. 
 
 On the other hand, information as to the economic conditions in- 
 the larger sense, such as might be applied for through the legation, is 
 being published as fast and as exhaustively as the Government can 
 collect and organize data. Furthermore, consuls are, in general, sub- 
 scribers to the official daily which gives verbatim the discussion of 
 almost ever}' project in Congress, through every stage, until it 
 becomes law. Consequently such information as would be obtained 
 through application by the legation can usually be found in some 
 printed form. 
 
 The legation depends upon its legitimate prestige for obtaining 
 information, and its inquiries are carried on with a necessary for- 
 mality which, in many cases, makes dispatch impossible. In Brazil, 
 friendship will invariably do more than authority, and a call on an 
 acquaintance in a government office will often get information in an 
 hour which it would take a month to get through correspondence 
 which follows the rounds of red tape. 
 
 The submitting of commercial reports from consulates to the lega- 
 tion offers a doubtful advantage at best. In a country of such vast 
 distances as Brazil, the minister is dependent on the consuls for his 
 knowledge of their several districts. Xo tours of inspection can qual- 
 ify him to rectify the impressions of a resident on local conditions 
 and issues, and in the many cases where the Department calls for 
 simultaneous reports from the different districts, reference to or 
 through the legation, owing to the sporadic and dilatory mail service 
 and the intervals of thousands of miles, would cost a delay of from 
 one to two months, in itself a disadvantage which would eliminate 
 probable gains. 
 
 Leaving negative considerations, the elements which seem most 
 susceptible to development in securing for the United States an un- 
 rivalled instrument of trade expansion in its foreign service are — 
 the employment of officers capable of winning personal recognition 
 and the enlargement of the consular subforce. 
 
 A consul who will take the trouble to make friends with the Brazil- 
 ians will soon find that the antagonism so constantly fed in little ways 
 by a portion of the press is eliminated in personal contact. As noted 
 above, this relation is far more effective in gathering information 
 than authority, and for two reasons: First, it avoids official formal- 
 ity ; second, it allows of dispatch, thoroughness, and a real knowledge 
 of the condition of things as opposed to the officially announced or 
 nominal state of any given matter. The line drawn between diplo- 
 matic and consular prerogatives in this country is so indistinct that a 
 consul is rarely, if ever, hampered by a question as to his right to 
 make inquiries. 
 
 The inadequacy of the consular subforce in Brazil has been brought 
 to the attention of the Department with an insistency which should 
 go far to prove the weakness of this point in the service. In the last 
 few years, the constant appeals have met with a response, but a 
 response so badly proportioned to the growing needs of the several 
 districts that the American consular officers, who meet or try to meet 
 
196 PROMOTION OF TRADE INTERESTS. 
 
 their obligations, have gained the reputation of being the hardest 
 worked and poorest paid members of a large consular corps. The 
 usual allowance for clerk hire in our consulates is barely enough to 
 secure the services of some American temporarily out of a job, who is 
 sure to have an offer often at double the wages as soon as he proves 
 efficient, or of some second mate left by an American ship. Yet this 
 clerk is called upon to speak, read, and write two languages, keep 
 books, fill out invoices, bills of health, etc., typewrite reports, and 
 interview merchants, or represent the consulate to visitors while the 
 consul goes out to gather information. If the clerk can not fill these 
 requirements, the consul is forced to spend many hours hammering 
 out his reports on the typewriter or balancing up the daily cash. As 
 a result, many important letters from American manufacturers go 
 unanswered, and if the facts were known, many sins of omission 
 would be forgiven the consul whom such circumstances have forced 
 to write : " August 10. Eeplying to your favor of March 6, I am 
 sorry to say that the proposed factory to which you refer is already 
 built and turning out shoes." 
 
 The Americans are the only consuls who subject themselves to 
 arduous clerical work, and, if the results have merited the Depart- 
 ment's approval, they only go to show that were the several consulates 
 equipped with a subforce able to cope with the daily volume of work, 
 the misplaced energy of the consular officers, turned to its proper 
 channel, could effectively prevent the occurrence of the serious omis- 
 sions in reports noted by the Department. 
 
 Salaries paid to the American consuls and the sums allowed them 
 for securing clerical aid are a constant surprise to those acquainted 
 with the compensation and working force of our colleagues. No 
 better example can be offered than a statement of the conditions in 
 this port. The British consular force here is composed of a consul- 
 general, a vice-consul-general, a j)ro-consul-general, a first clerk, and 
 a second clerk. This does not take into account the messenger or 
 office porter. Opposed to this force is that of the American office, 
 composed of a consul-general and a vice and deputy consul-general, 
 who is also clerk. There being no regular remuneration in the offices 
 of vice-consul-general and deputy consul-general in our service, as 
 there is in the British, it is very hard to get anyone to assume these 
 responsibilities, even when it is understood that no work is required 
 of him but the signing of his name. It is a well-known fact that the 
 commercial relations of Rio de Janeiro with the United States are 
 greater than those of any other port in the whole of South America, 
 yet the equipment that our Government offers this office is such 
 that, during the temporary absence of one officer through sickness or 
 leave, the other is called upon to fill out invoices at the rate of over a 
 thousand a year, keep strict and complicated accounts, compile such 
 reports as do not require absence from the consulate during office 
 hours, do his own typewriting, hear and act on constant complaints 
 of sailors, answer local communications written in three or four lan- 
 guages, legalize signatures, make out powers of attorney, furnish 
 information to frequent callers, and snatch a few moments, when pos- 
 sible, to reply to a voluminous, and sometimes urgent, correspondence. 
 Even if funds allowed, he could not employ for a short period a 
 helper capable of aiding him in duties so varied and requiring some 
 experience. 
 
PROMOTION OF TRADE INTERESTS. 197 
 
 The part of the work which suffers most is the heavy correspond- 
 ence from American firms, lawyers, etc., which, according to Consular 
 Regulations, is left for such time as is not allotted to other duties. 
 Yet these correspondents would be willing to pay, and pay well, out 
 of their own pockets if only they could be assured prompt attention. 
 Many of these letters seeking agents, referring to estates in liquida- 
 tion, inquiring as to property claimed by Americans, determining 
 decease of heirs, etc., are of vital importance to the senders: but 
 although this may be realized by the consul, he is often helpless, as 
 such letters require investigation that can not be carried on from 
 the office chair. 
 
 To the vast number of Americans whose interests are constantly 
 growing in foreign countries, a general strengthening of the consular 
 force, such as would enable it to take up these numerous threads of 
 private enterprise and make them the forerunners of a general com- 
 mercial expansion would be a legitimate and praiseworthy object of 
 official expenditure. There is no country which at present has greater 
 need of or could better afford efficient foreign representation than 
 ours, and the importance of the vast, semideveloped field of South 
 America, especially of Brazil, whose needs cry out for American man- 
 ufactures of every description, well deserve generous and immediate 
 attention. 
 
 George E. Chamberlain, 
 Vice and Deputy Consul- General. 
 
 Rio de Janeiro, September 16, 1904. 
 
 
 Opinions of Consular Officers. 
 
 BAHIA. 
 
 The ideas expressed by the Department in circular " Promotion 
 of trade interests," contains many good points. 
 
 In discussing the matter in so far as Brazil is concerned, I can 
 see that a system as outlined and with a proper commercial, or 
 rather statistical man in charge, would be a benefit, in that statisti- 
 cal information could be arranged so as to be up to date instead of 
 being from two to three years behind, as is now the case. 
 
 The plans as proposed present two phases. On the one hand, in a 
 country as large as this and differing so materially in each consular 
 district, and even in each section of a district, it would be next to 
 impossible for anyone stationed at the capital to be thoroughly cogni- 
 zant of the conditions of the different districts and to be able to indi- 
 cate or correct errors of fact or judgment any better than could be 
 done at the Department had the information been sent direct. Reli- 
 ance would still have to be placed on the different consuls to furnish 
 the detailed information as to their respective districts, while the 
 roundabout way suggested would cause much time to be lost because 
 of the irregular mail and transportation service. It is a fact that 
 from some places in Brazil the information could reach the United 
 States more quickly than it could get to Rio de Janeiro, from which it 
 would require another long journey to reach the Department. 
 
 On the other hand, if our reports were first submitted to our diplo- 
 
198 PROMOTION OF TRADE INTERESTS. 
 
 matic representative at the capital, it would give him a more compre- 
 hensive idea as to the different districts, and, as stated by the Depart- 
 ment, would enable him to call attention to such things as, in his judg- 
 ment, might cause offense or embarrass him in his diplomatic capac- 
 ity. If after all the full reports of the consuls are to be finally sub- 
 mitted to the Department and there passed on in the light of the 
 annotations, with the facts of the prior paragraph in mind, and leav- 
 ing aside the loss of time, it would seem that some good might come 
 of such a system. 
 
 I take it that the conditions in Brazil, at least in so far as this dis- 
 trict is concerned, are different from those existing in most foreign 
 countries. I am aided by city, state, and federal representatives in 
 gathering such information as T may wish, and it is within their 
 power to furnish, whether requested officially by letter or obtained in 
 person. Our minister at Bio de Janeiro could procure no informa- 
 tion here which would not be given as freely to me, upon request; in 
 fact, I am frequently allowed to see official information which most 
 likely he could not obtain. How much of the personal equation 
 enters into this fact I do not know. What I do know is that I am 
 able to get more information than any other consul here located, 
 doubtless because I have studied the matter sufficiently to know where 
 and how to get it and go to the proper source. 
 
 I should think that collection of trade information at the legation 
 would necessitate unnecessary work which could better be performed 
 by the consul-general and his staff, who should be more in touch with 
 commercial matters. The fact that the minister is on the ground to 
 request such official information as may be desired would seem zo me 
 to be sufficient to overcome such difficulties as might arise. My solu- 
 tion of the problem would be the appointment of salaried vice-consuls 
 at the more important centers, thus relieving the consuls of the purely 
 routine work which now takes up the greater part of their time. 
 This would give time for the study of trade and trade relations. 
 
 Another solution would be the assigning of the commercial expert 
 to the consulate, unless his attachment to the diplomatic branch of the 
 service would give him diplomatic privileges; that is, power to 
 request such information as he may desire without the aid or assist- 
 ance of the minister or ambassador, and even then it would seem that 
 he, should, in reality, work with the consulate. 
 
 H. W. Furniss, 'Consul. 
 
 Bahia, November 12. 1904. 
 
 PAKA. 
 
 I have the honor to acknowledge receipt of circular, " Promotion of 
 trade interests." 
 
 This circular evidently has in contemplation conditions obtaining 
 in the older European countries. That a modification of the plan 
 outlined would prove valuable and effective in the Latin- American 
 republics of Central and South America is highly probable, but modi- 
 fication would be necessary. The value of statistical and other trade 
 information diminishes in proportion to the delay incurred in making 
 it public. It would seem likely, therefore, that a strict adherence to 
 the proposed plan that consular officers should send their reports 
 
PROMOTION OF TRADE INTERESTS. 199 
 
 through the legation in order to permit of revision, annotation, etc., 
 would cause such great delay as to lower the value of the final report. 
 I doubt whether the supposed greater accuracy of the report would 
 compensate for the waste of time. Take, for example, this consul- 
 ate : It takes longer for a letter to reach the legation in Rio de Jan- 
 eiro than it does to reach the Department of State. The average time 
 may be taken at three weeks, at least one week for revision and a 
 month more for the revised report to reach the Department; as 
 against about eighteen days if the report should be sent direct. 
 
 In these countries, too, I vary much doubt if the diplomatic officer 
 would really be able to " indicate errors, of fact or judgment," par- 
 ticularly the former. Take this country for example, although I 
 believe the argument is as applicable to Uruguay or Honduras : The 
 trade, the products, the social and business conditions of Amazonas 
 and Para are as distinct from those in. Minas Geraes, and both from 
 those in the southern coffee-producing States, as are similar condi- 
 tions in France, Italy, and India. My own consular jurisdiction 
 covers a territory that extends for thousands of miles, nearly to the 
 foot of the Andes. With a verj^ good working command of the lan- 
 guage of the country, with many years of life and experience in the 
 Tropics, I find it exceedingly difficult to obtain " facts " concerning 
 this vast region. If I can not do it, having nothing else to do, how 
 shall a diplomatic officer many thousands of miles away, and with a 
 multiplicity of interests, be able in a necessarily hasty revision to 
 "indicate errors of fact?" 
 
 I believe that the same objection lies as to the necessity for elimina- 
 tion of "portions — likely to give offense or cause embarrassment" — to 
 the diplomatic officer as such. Granting that the valuable and im- 
 portant aim of the proposed plan should be largely attained, it seems 
 probable that, in the countries to which I refer, the diplomatic officer 
 would be almost compelled to examine consular reports submitted 
 for his revision, etc., with a distinct bias toward his diplomatic status 
 rather than as being in the position of editor of a trade journal 
 which, indeed, is the nearest analogy to the position the plan contem- 
 plates his assuming. While provision is made to preserve the " spirit 
 of initiative " by a final revision and decision by the Department, it 
 would seem to be unavoidable that in practice the revisions, annota- 
 tions, eliminations, etc., of the diplomatic officer would be adopted by 
 the Department, for several reasons, viz, the dignity of the officer, the 
 assumption that he possesses the knowledge and ability to make these 
 corrections, the lack of time and of data for the Department to make 
 due investigation and decision. 
 
 Otherwise, such comments would cease to have value, and the diplo- 
 matic officer would either simply forward reports or perform the 
 revision in a necessarily perfunctory manner. In either case, the only 
 result attained would be useless delay in the publication of the 
 reports. 
 
 At the same time, I believe that, if provision can be made for corre- 
 spondence on such subjects directly with the legation, without giving 
 offense to the consul-general, most valuable results can be attained. 
 Again, taking this consulate as an example, it is absolutely impossi- 
 ble to procure statistics of imports into this consular district. Such 
 statistics are prepared, it is true, in the custom-house, but they are 
 forwarded to some central office at Eio de Janeiro, where similar sta- 
 
200 PROMOTION OF TRADE INTERESTS. 
 
 tistics are received from all the States and only general tables of im- 
 ports for the whole Republic are published. These statistics, thus 
 unattainable by me, could, no doubt, be readily obtained by the lega- 
 tion at Eio. In my opinion, the legation should, therefore, invite from 
 consuls statements of what matters are not obtainable by them, and 
 should supply such deficiencies directly to the Department. On pub- 
 lication of the reports received from the legations, copies should be 
 sent to all the consuls of that country for their information. How 
 can I answer queries regarding the best way of selling American 
 manufactures, e. g., of cotton prints in Para, when I can not get any 
 idea, at all accurate, of the actual gross imports of cotton goods into 
 this district, to say nothing of detail by countries ? 
 
 The modification that I would respectfully suggest would be this: 
 That the consuls should be both empowered and instructed to commu- 
 nicate with the legation, whenever they should find themselves unable 
 to obtain facts, data, or information which it was possible the lega- 
 tion could obtain. According to the importance of the matter asked 
 for, the legation might either inform the consul, or report in extenso 
 to the Department, copies of these reports being afterwards sent to all 
 the consuls of that country. The " spirit of initiative " would thus 
 remain with and be fostered in the consular corps, and the " friction," 
 which the circular evidently foresees, would be entirely avoided. 
 There is a vast difference between the mandatory request sent out by 
 a diplomatic officer to a consul and the respectful request of a consul 
 to a diplomatic officer for information which the consul knows he 
 needs. The mere possibility of criticism by an officer, whom the con- 
 sul can not believe to be possessed of as much knowledge on the spe- 
 cial subject as himself, would act rather as a deterrent than as an 
 encouragement to make difficult and laborious investigations and then 
 reduce these to writing. But it would be a very decided encourage- 
 ment if the consul knew that he could apply to the diplomatic officer 
 for such information as he, the consul, could not get and the diplo- 
 matic officer could. Each would then be concentrating his energy on 
 the facts and phenomena under his control, and their joint work 
 would be of real value. Under the proposed plan, either the diplo- 
 matic officer must, theoretically, possess full and final knowledge, or 
 the resultant, revised report will have merely a doubtful and contro- 
 versial value. 
 
 Since the Department has honored me by requesting an expression 
 of my views on this subject, I desire to most heartily and thoroughly 
 give my adherence to the suggestion of the creation of " commercial 
 or industrial attaches " to our Central and South American legations. 
 I shall speak for Brazil only, although I am convinced that the argu- 
 ment holds good for every Latin -American country. Brazil is natur- 
 ally our market, but we are not in possession of it. I am inclined to 
 believe that the excellence of our manufactures is causing a small, 
 slow, increase in our trade. This increase, thus made, is most valuable 
 because, from its nature, it is permanent. But it is small. Germany 
 and England hold this market. For years and years, German mer- 
 chants have been gathering commercial information here. They 
 know every tiniest detail of law, regulation, custom, local and indi- 
 vidual, affecting trade. They conform to these. Before we can 
 capture this market, Ave must know it as thoroughly. We must study 
 its conditions, enviromnent, phenomena ; treat it as a scientific prob- 
 
PROMOTION OF TRADE INTEREST . 201 
 
 lem to be resolved on purely scientific lines and by scientific methods. 
 Then consuls will not receive, as I here, under the equator, have 
 received, letters with expensive catalogues accompanying them adver- 
 tising heating stoves and asking " when do you have cold weather in 
 your country?'' A commercial attache, speaking the language of the 
 country to which he is sent, acquainting himself thoroughly with the 
 commercial legislation of the country, traveling all over it, and learn- 
 ing the various State commercial codes and procedures, personally 
 interviewing and working with consuls in their districts, pointing 
 out to them fields of inquiry and methods of study; such an officer 
 would be of simply incalculable benefit to our country. He should 
 be given diplomatic status, if possible, in order that he might readily 
 obtain from State governors immediate attention and respect. 
 
 In general, I believe the plan outlined in the circular to be one of 
 the most important in its effect upon the efficiency of the consular 
 corps in the history of that corps. There is a modern tendency to 
 consider consular officers as mere " commercial agents." Undoubt- 
 edly they are such, for the most part. But such a close alliance 
 between the diplomatic and consular bodies of the United States, in 
 the interests of commerce, would go far to elevate the " commercial 
 agent " to a position of such dignity as anciently attached to the 
 title " consul." This in itself would be a renewed incentive to all 
 consuls to do the best work that was in them in this direction. The 
 knowledge that the high diplomatic officer was a coworker in this 
 field with him would spur him on to greater efforts. Consuls are, 
 however, very jealous of any other control than that of the Depart- 
 ment itself. Consuls-general and their supervision are a part of the 
 Department, but any sort of control by officers even of the rank and 
 dignity of ambassadors might be irksome to and misunderstood by 
 consuls. If it can be arranged and understood that consuls can apply 
 to the officers of the diplomatic corps when they find their own per- 
 sonal efforts insufficient, with the certainty that their needs will be 
 understood and' appreciated, that the diplomatic officer is himself, in 
 his field, working to the same end, and that there is no question of 
 new superiors to be consulted and obeyed, I believe every hard-work- 
 ing and patriotic consul in our service will heartily welcome the plan. 
 
 Louis H. Ayme, Consul. 
 
 Para, October 4, 1904. 
 
 SANTOS. 
 
 In reply to the request to give my views in regard to a plan for the 
 cooperation and improvement of existing facilities for the collection 
 of commercial intelligence and the promotion of American trade 
 interests abroad, I have to say that I am of the opinion that the exist- 
 ing facilities for collecting information would be greatly benefited 
 if the diplomatic officers and the principal consuls could work in con- 
 junction. It is often very difficult to furnish a satisfactory report 
 on the commerce and industries of a country, and certainly every 
 avenue should be open to consuls. A majority of the consuls are 
 poor men and can not afford to employ some one to travel over the 
 district in search of information, and they can not neglect their offi- 
 cial duties and go themselves. Consuls, in my judgment, should be 
 
202 PROMOTION OF TRADE INTERESTS. 
 
 better paid. Our country gets more information for less money than 
 any other country. If consuls could confer with the legations "freely, 
 results would be more satisfactory. 
 
 J. H. Johnson, Consul. 
 Santos, October 16, 1904. 
 
 CHELE. 
 
 Report from the Legation. 
 
 Legation or the United States of America, 
 
 Santiago, Chile, October 15, 190 If. 
 
 I have the honor to acknowledge the receipt of Department's cir- 
 cular of instruction of July 29 last, entitled " Promotion of trade 
 interests," and to report as follows : 
 
 I entirely agree with the general idea of the circular, viz, that our 
 diplomatic service could and should be brought into closer and more 
 active cooperation with our consular body in the collection of com- 
 mercial and industrial information. Here in Chile, however, the 
 cooperation suggested by question 1 would not be altogether prac- 
 ticable. Our consulates are strung along the coast at various ports 
 between which there is no railroad communication. All mail from 
 the United States comes by steamer from Panama. An instruction 
 intended for our consul at Arica would reach him three weeks sooner 
 if sent to him direct — i. e., if put off there on the steamer's southward 
 trip, than if directed to the legation and then sent north again. 
 The same would be true, to only a slightly less extent, of instructions 
 intended for our consuls at Iquique and Antofagasta. TTere the con- 
 sular officers at these three posts to transmit their reports to this 
 legation for revision, a second serious delay would be occasioned. 
 
 Yet in this country, the cooperation of the legation is especially 
 desirable, not to say- necesary, for the reason that the Government is 
 highly centralized. All provincial officials are Federal appointees and 
 directly subordinate to the various administrative departments at the 
 capital. The whole industrial and commercial life of the country 
 really centers here in Santiago. The semiofficial organizations, such 
 as the Xational Agricultural Societ} 7 ', the National Miners' Associa- 
 tion, the Commercial Association (Fomento Fabril), etc., are located 
 here. Here many of the great business houses have their head offices, 
 and all are represented. It is obvious, therefore, that the bulk of the 
 work of collecting commercial and industrial information in Chile 
 would fall on the legation, whether it were supposed to act in an 
 advisory or revisory capacity, or to report independently of the con- 
 sulates. I should, therefore, advise that, whenever the Department 
 desires trade information of a general character, it should rely pri- 
 marily on the legation, instructing the consulates, at the same time, to 
 prepare independent reports from such sources of information as 
 they respectively have at hand. This method would not preclude the 
 legation's asking information of or giving it to any or all of the con- 
 sular officers should it seem expedient. 
 
 As regards question 2. There is at present no such systematic 
 cooperation as that under discussion between the consular and diplo- 
 
PROMOTION OF TRADE INTERESTS. 203 
 
 matic services of Chile. Nor has Chile any commercial or industrial 
 attaches. A project will be presented at the extra session of Con- 
 gress, just beginning, for the establishment of a consular section in 
 the department of foreign affairs, and this project, I am informed 
 by the minister of that department, aims also at a systematized coor- 
 dination and cooperation between the various consulates and between 
 the consulates and the legations. 
 
 Commercial attaches would, in my opinion, especially in capitals 
 where we have no consul or consul-general, be useful for the United 
 States. Even in capitals where we have a consular officer, they would 
 be desirable, in view of the limitation upon the consular service in 
 obtaining official information at first hands, pointed out in paragraph 
 3 of the Department's circular — viz, its lack of diplomatic status. 
 
 I would answer question 3 by advising the addition of a commercial 
 attache to the personnel of this legation. Were both the minister 
 and the secretary of legation always here, they could satisfactorily 
 attend to the collection of such general commercial information os 
 might, Avith likelihood, be desired, but in the absence of the secretary, 
 the minister, and, in the absence of the minister, the secretary, as 
 charge d'affaires, would have little opportunity for the preparation 
 of thorough and authoritative reports. An attache, who could devote 
 his time to commercial and industrial matters only, could keep well 
 occupied. There are many activities here, reports on which would 
 be interesting and profitable. 
 
 Moreover, the attitude of Chileans toward our country and people 
 is every day more cordial ; they look forward with sanguine expecta- 
 tion to the closer relationship, commercial and otherwise, that the 
 Panama Canal will bring about. One hears much talk and reads 
 much in the newspapers of the great benefits Chile will derive from 
 direct steamship connection with the United States and a shortened 
 voyage to Europe. To us, also, the opening of the Panama Canal 
 should mean a distinct commercial gain in Chile, as in all South 
 America. But to compete successfully with European nations in this 
 market then, we must make an effort to secure the market now. We 
 should study it carefully, giving attention rather to its demand 
 than to our supply. In a commercial report, which I had the honor 
 to send to the Department from Buenos Ayres, last December, I called 
 attention to the difference between German and American methods 
 of securing trade there. I can not too strongly recommend our adop- 
 tion of German methods here, and I believe the appointment of a 
 capable commercial attache would be a long step in the right direction. 
 
 Edward Winslow Ames, Charge. 
 
 Opinions of Consul Green. 
 
 ANTOFAGASTA. 
 
 I beg to say that, in my opinion, joint action of diplomatic and 
 consular officials will certainly favor commercial interests, as the 
 diplomatic officers, being near the Government, will be able to often 
 secure earlier statistics. The great difficulty is found in the long 
 delay of statistical offices in publishing the yearly reports. For 
 example, at present, we have the Estadistica Commercial for 1902, 
 
204 PROMOTION OF TRADE INTERESTS. 
 
 and a copy was duly supplied to the Department. We have no infor- 
 mation as to when we can expect that for 1903 ; and the only reliable 
 statistics are those found in the official publications. To obtain even 
 a regular monthly statement from the statistical employees would 
 involve a large expense not provided for. 
 
 For my own part, I lose no opportunity to do all in my power to 
 help trade. 
 
 A-ntofagasta, Chile, September 28. 1904. 
 
 C. C. Green, Consul. 
 
 COLOMBIA. 
 
 Report from the Legation. 
 
 American Legation, Bogota, October 5, 1904- 
 
 Eef erring to Department's instruction of July 29, relative to the 
 promotion of trade interests, I have the honor to say that I believe 
 some arrangement along the lines indicated in this circular highly 
 practicable, and that it would prove a powerful aid in the work of 
 furnishing our manufacturers and exporters with valuable informa- 
 tion, at times impossible, almost, for our consular officers to obtain 
 without great trouble and delay. I can recall several instances here 
 when, answering Department circulars, I was greatly aided in my 
 search for information by the diplomatic character I enjoy, and have 
 often thought that some such arangement as the one under discussion 
 would fill a long-felt want. 
 
 As to the questions asked in this circular, I think it not only prac- 
 ticable but beneficial to carry out question 1 in every particular. 
 
 As to question 2. there is no such cooperation as that outlined in 
 question 1 between the diplomatic and consular services of this coun- 
 try, nor does the Government have any commercial or industrial 
 attaches. I do not think conditions or business are such as to justify 
 the presence of commercial attaches in Colombia at present. The 
 system of commercial and industrial attaches is an excellent system 
 and certainly ought to be adopted by our Government, but on the 
 order of the English method — viz, the presence of those attaches 
 at the seats of the most important governments, commercially and 
 otherwise. The time may come when their presence here will be 
 beneficial. 
 
 Under normal conditions, no additional assistance would be needed 
 to enable this legation to carry into effect the programme described 
 in question 1. 
 
 Alb an G. Snyder, Charge. 
 
 ECUADOR. 
 
 Opinions of the Consul- General. 
 
 In compliance with Department's circular, requesting an expres- 
 sion of opinion as to the advisibility of the cooperation of the diplo- 
 matic officer accredited to Ecuador in the supervising and gathering 
 
PROMOTION OF TRADE INTERESTS. 205 
 
 of commercial and industrial data, etc., I will say that such officer, 
 being located at Quito, in the interior of this Republic, and away from 
 the commercial center of activity, and with very poor facilities for cor- 
 responding with consular officers, who- are all located along the coast, 
 at the principal commercial cities, the only places where commercial 
 intelligence can be gathered, is not in a position to add much to the 
 machinery for collecting information as to business conditions in this 
 Republic. 
 
 This particular condition, however, does not exist in all countries, 
 and it is certain that, in a great many localities, the diplomatic officer 
 could render valuable service by aiding consular officers in gathering 
 information of importance 
 
 In Ecuador, the principal port, Guayaquil, is the commercial center 
 having a large import and export trade, the custom-house, chamber of 
 commerce, banks (4), revenue collect orships, etc. It is, therefore, 
 the place where commercial and industrial information has to be 
 gathered, and the only place in this Republic where such records are 
 kept. It is apparent that the consular officer stationed at Guayaquil, 
 is the proper official to supervise the gathering of such information as 
 is required, or may become necessary for the advancement or exten- 
 sion of our commercial interests. 
 
 Should the consular officers, after gathering the desired informa- 
 tion, transmit the same to the diplomatic officer, who, of course, would 
 be stationed at Quito (the capital), 240 miles in the interior, for the 
 purpose of having such report revised or corrected, it would be 
 impossible for that officer to do so, as no bureaus of commerce and 
 industry exist at the capital. The said diplomatic officer would be 
 dependent on Guayaquil, in order to obtain such data as do exist. < 
 
 For the reasons thus given, I would consider it of very little 
 importance, if any at all, for the Department to first transmit instruc- 
 tions to the diplomatic officer accredited to Ecuador, for the collect- 
 ing of commercial intelligence, and for that officer to then retransmit 
 the same instructions to the consular officers. Such a procedure, 
 under the existing conditions here, would only tend to delay. 
 
 If a commercial or industrial attache were stationed in this country, 
 he would be of much more service and could do more good here in 
 Guayaquil than if he were in Quito. 
 
 Herman R. Dietrich, Consul-General. 
 
 Guayaquil, September 15, 190If. 
 
 GUIANA. 
 
 Opinions of Consul Moult on. 
 
 Regarding the promotion of American trade interests in foreign 
 countries, I have the honor to state that, in view of the remoteness of 
 the American embassies to the countries governing the colonies com- 
 prising this consular district (British, French, and Dutch Guiana), 
 it is presumed that, as a matter of expediency, official business of this 
 consulate will continue to be transacted directly with the Department 
 of State, and that my views concerning the improvement of existing 
 
206 PKOMOTION OF TRADE INTERESTS. 
 
 facilities, as suggested in the circular, would be immaterial. It is per- 
 tinent for me to state that this office, during the experience of the 
 present incumbent, has had no difficulty in obtaining, through the 
 courtesy of the local customs officials, such commercial and industrial 
 data as are required by consular regulations or Department circulars. 
 It has seldom been necessary, in order to obtain information of that 
 character, to correspond with the Government's secretary's office. 
 
 Geo. H. Moulton, Consul. 
 Georgetown, Guiana, August 30, 1904> 
 
 PARAGUAY AND URUGUAY. 
 
 Report from Minister Finch. 
 
 Montevideo, September 16, 1904- 
 I acknowledge the receipt of your circular letter dated July 29 last 
 
 in relation to cooperation of the American diplomatic and consular 
 
 corps as to commercial matters. 
 You ask : 
 
 1. Would it be practicable for you to transmit to consular officers in tbe 
 country to which you are accredited instructions from tbe Department of 
 State from time to time, for particular inquiries ; nothing in your dispatch of 
 transmission any suggestions that may occur to you, from your sources of infor- 
 mation at the capital, which would facilitate the inquiry or help to make it 
 more comprehensive or more exhaustive? 
 
 Yes. 
 
 If the consular officers should be directed to transmit their answers to such 
 instrucions through you, could you undertake to have their reports revised, 
 with annotations indicating errors of fact or judgment, or portions to be elimi- 
 nated as likely to give offense or to cause you embarrassment in your diplo- 
 matic capacity? 
 
 Yes. 
 
 2. Is there such cooperation as that outlined above between the diplomatic 
 and consular services of the country to which you are accredited? If so, 
 describe it as fully as you can. Has the Government any commercial or indus- 
 trial attaches? Would such attaches, in your judgment, be useful for the United 
 States? 
 
 The German consuls in Paraguay and Uruguay send copies of all 
 reports deemed important to the German ambassador at Buenos 
 Ayres. The reports are subject to his revision, and the consuls follow 
 his suggestions and instructions. 
 
 As to the utility of an attache, that would depend chiefly on the 
 individual. He could be very useful. 
 
 3. What additional assistance, if any, would be needed to enable you to carry 
 into effect the programme described" under question 1 ? 
 
 If the consular force could be made available, no additional assist- 
 ance would be necessary ; but if not, then some person who is compe- 
 tent to gather and compile statistical and other information, examine 
 records, and utilize suggestions would be needed, as this legation has 
 no staff. 
 
 William E. Finch, 
 Minister to Paraguay and Uruguay. 
 
PBOMOTION OF TKADE INTEKESTS. 207 
 
 Opinions of Consul Ruffin, Paraguay. 
 
 With regard to circular, " Promotion of trade interests," I beg to 
 say that instructions from the Department of State could be trans- 
 mitted from time to time to consular officers through the legation for 
 this country, bat it would occasion some delay in sending the reports 
 to the Department, owing to the nonresidence of the minister at this 
 capital. However, the facilitating of information could be advanced 
 considerably should the diplomatic officer transmit a letter through 
 the consul to the foreign office requesting information to be handed 
 (o said consular officer on the particular subject that is under inquiry 
 by the Department. This letter could be presented to said office and 
 information would be accorded fully through this official channel of 
 the Government. This Government, however, has not been exacting 
 of diplomatic ceremonies in acceding to the request of a consul since I 
 have been here, which is about seven years. 
 
 There is no cooperation here between the diplomatic and consular 
 officers accredited to this country, as far as I know, otherwise than 
 responding to the request of a diplomatic officer on the consul for 
 information on some topic of special interest. 
 
 Respecting the possible result of legislation by Congress to make the 
 facilities of a consul for obtaining information more efficient, the 
 French Republic has accredited to this Government a charge d'affaires, 
 in whom is lodged all the functions of a consular officer. This enables 
 him to gather all the information necessary without any difficulty 
 whatever. France has no minister plenipotentiary accredited here. 
 For this place, where there is no resident minister, and to avoid delays 
 in the transmission of information, this method of the French Repub- 
 lic would, perhaps, be advantageous if adopted by the United States. 
 
 John N. Ruffin, Consul. 
 
 Asuncion, Paraguay, September 30^ 1904. 
 
 PERU. 
 
 Report from Minister Dudley. 
 
 Legation of the United States, 
 
 Lima, August 31, 1904. 
 
 I have the honor, in compliance with the Department's circular of 
 instruction of the 29th ultimo, to submit my views concerning the 
 coordination and improvement of the facilities afforded by our diplo- 
 matic and consular services in Peru for the collection of commercial 
 intelligence. Improvement will result all along the line, I do not 
 doubt, in consequence of the interest so strikingly manifested by the 
 Department through its circular. Coordination of effort between the 
 two branches of our foreign service in this country, however, is prob- 
 ably of less importance than in countries divided into several districts 
 for the purposes of our consular administration. 
 
 In Peru, there is but one principal consular officer of the United 
 States, viz, the American consul at Callao. Under the description in 
 his commission, so long as he remains the only principal consular 
 
208 PROMOTION OF TRADE INTERESTS. 
 
 officer of the United States in Peru, his jurisdiction extends through- 
 out the Republic. Now, the tentative proposals of the circular are 
 subject to the following condition: " It is to be understood that the 
 Department would continue to communicate directly with consular 
 officers as to matters pertaining exclusively to their districts." If so, 
 all communications from the Department to the consul at Callao 
 would be made directly, his district, or territorial jurisdiction, being 
 the whole of Peru. 
 
 The only American consular officers elsewhere in Peru are consular 
 agents — subordinate officers not authorized to correspond with the 
 Department. 
 
 Lima and Callao are but 9 miles apart, and one effect of their prox- 
 imity is that practically all general sources of information at the capi- 
 tal and the port are equally available to the legation and the consulate. 
 It is also to be remarked that the present incumbent of the consulate 
 resides at Lima, as did his immediate predecessor. For these reasons, 
 in the writer's opinion, it would not be advisable, even^if otherwise 
 unobjectionable, to have this legation transmit to the consulate at 
 Callao the Department's instructions, from time to time, for particu- 
 lar inquiries, because, generally speaking. " the sources of information 
 at the capital " are entirely at the command of the consul at Callao, 
 through newspapers and other publications, and his daily personal 
 intercourse. 
 
 To meet the limitation upon the consulate, resulting from its lack 
 of diplomatic status and possible inability to reach the proper minis- 
 terial department of government for desired information, it is rec- 
 ommended that the answers to special instructions for reports 
 (together with a copy in each case of the instruction) be transmitted 
 by the consul to the legation, to be forwarded after revision to the 
 Department. Defects, if any that the consul might be unable to 
 supply, might be made good by the legation with the assistance of the 
 central Government, annotations of the character suggested in the 
 circular added, and the consul's report supplemented at times with 
 cognate information of interest. Of course, no additional assistance 
 would be needed to enable the legation to carry this suggestion into 
 effect. 
 
 It is learned at the Peruvian foreign office that there is no such coop- 
 eration as that outlined in the circular between the diplomatic and con- 
 sular services of Peru, and that this Government has no commercial 
 or industrial attaches. Such an attache in the writer's judgment 
 would be of little use to the United States in Peru in view of the 
 limited field for his activities and what should be, and it is believed 
 is, the adequacy of existing official channels of information. 
 
 Irving B. Dudley. 
 
 Opinions of Consul Gottschalk. 
 
 In reply to circular, " Promotion of trade interests," permit me to 
 say after careful consideration that, while I am entirely in sympathy 
 with the general idea of systematizing our foreign service, I believe 
 nothing but harm can accrue from investing our legations with func- 
 tions which by right would seem to be those of a consul-general. The 
 plan proposed will to my mind considerably lessen the prestige and 
 
PROMOTION OF TRADE INTERESTS. 209 
 
 the working- usefulness on diplomatic lines of our legations. It may, 
 besides, give rise to friction between legations and consulates situated 
 anywhere in the immediate vicinity. I should also like to place upon 
 record the fact that I have invariably found it detrimental to the 
 consular service whenever a legation entered into correspondence with 
 the consular agencies otherwise than through the consulate. In short, 
 I have the honor to suggest that competent consuls-general are the 
 persons to whom, for reasons of policy, of practicability, and of the 
 general discipline of the service, the work in question should be 
 intrusted. 
 
 Alfred L. M. Gottschalk. 
 Callao, Peru, October 8, 1904. 
 
 VENEZUELA. 
 
 Report from Minister Bowen. 
 
 Caracas, Venezuela, August 20, 1904., 
 In answer to your circular of July 29 last, in regard to the promo- 
 tion of our trade interests, I have the honor to make the following 
 suggestions : 
 
 I. That the secretaries of our legations in Central and South 
 America be made consuls-general. 
 
 II. That they be charged with the special duty of securing infor- 
 mation of a commercial kind, and of inducing the Governments to 
 which they are respectively accredited to publish statistics and 
 reports on trade and commerce. 
 
 III. That the secretaries (consuls-general) communicate to the 
 consuls under their supervision the information the}^ receive in order 
 that the consuls may be better informed about the trade of the 
 country and may become more efficient. 
 
 IV. That the secretaries (consuls-general) be provided by the con- 
 suls with copies of all commercial reports they make to the Depart- 
 ment and with all other necessary data to enable the secretaries 
 (consuls-general) to make general and special reports to the Depart- 
 ment. 
 
 V. That the salaries of the first secretaries of legation (consuls- 
 general) be raised to $5,000 and of the second secretary to $2,500. 
 The secretaries are underpaid. They can not live respectably on the 
 salaries they are now receiving. Every legation should have a second 
 secretary. 
 
 VI. Any plan to make a minister plenipotentiary an expert consul 
 would prove harmful to both the diplomatic service and the consular 
 service. 
 
 Herbert W. Bowen. 
 
 Opinion of Consul Peterson. 
 
 I beg to acknowledge receipt of Department circular, " Promotion 
 of trade interests." 
 
 The concentration of the compilation of reports or statistics relat- 
 ing to a foreign country in the hands of a central authority, to be 
 H. Doc. 245, 58-3 14 
 
210 PROMOTION OF TRADE INTERESTS. 
 
 found only in the diplomatic representative, should undoubtedly 
 lead to a fuller and more comprehensive knowledge of the subject, 
 and avoid or harmonize the conflicting views due to partial investi- 
 gations on various sides, without proper collation or systematization. 
 As suggested, the centers of official information could more readily be 
 reached through the diplomatic representative, a difficult undertaking 
 at best for the consular officer, as I gather from the correspondence of 
 my predecessors. 
 
 The plan proposed seems to promise increased efficiency in the col- 
 lection of commercial intelligence and the promotion of American 
 trade interests abroad, and should commend itself to both branches of 
 the service as a means of further developing their importance and 
 usefulness. As a consequence, the consular officer would realize more 
 fully his responsibility as a factor in a systematized service, whose 
 usefulness was not bounded by the limits of his consular district, and 
 should thereby be stimulated to put forth his best efforts and pre- 
 vented from taking narrow and contracted views as to the nature and 
 results of his labors. 
 
 Jerome B. Petersox. 
 
 Puerto Cabello, Venezuela. August 23, 190J/.. 
 
 ASIA. 
 CHINA. 
 
 Report from Minister Conger. 
 
 Legation of 'the United States of America, 
 
 Peking, China, September 23, 1904> 
 
 Replying to Department circular of July 29, " Promotion of trade 
 interests," I believe that much can, undoubtedly, be accomplished by 
 the systematic cooperation of the diplomatic and consular services 
 in gathering information relative to trade interests in China. 
 
 Many inquiries are now addressed to the legation. More accurate 
 and comprehensive replies could be made to these if some one were 
 deputed to make inquiries by circular of all the consuls, and to digest 
 and summarize the answers received. Consuls now make most inter- 
 esting and valuable reports on many subjects, but many of them 
 could be made more valuable by complementary reports from other 
 districts on the same subjects. A more comprehensive view of any 
 particular trade as conducted throughout the Empire could thus be 
 obtained. Regular reports could also be arranged on special sub- 
 jects, to be made at stated periods by each consul, and then could be 
 edited at the legation. 
 
 Peking is far to one side, and not being a port of international 
 trade, the legation is very much out of touch with commercial inter- 
 ests. This defect could be remedied by the method proposed. Com- 
 munication is slow and difficult between the various provinces of 
 China, and it might be best to have important 'inquiries from the 
 Department addressed as now, directly to each consul, with instruc- 
 tions to report to Peking, sending a copy, at the same time, to the 
 Department, at least from the more distant consulates. 
 
PROMOTION OF TRADE INTERESTS. 211 
 
 Replying to your inquiries in their order : 
 
 No. 1. With the assistance of a commercial attache, ves. 
 
 No. 2. No. 
 
 No. 3. The appointment of a commercial attache. 
 
 Such attache should be a man of experience in commercial affairs, 
 with special aptitude for the work. He should be familiar with 
 China, its resources and customs, and, |)referably, able to speak 
 Chinese. If not able to do so, he ought to be supplied with an inter- 
 preter especially detailed for such work. 
 
 Other Governments, notably Great Britain, France, and Germany, 
 have such attaches. Those of Great Britain are men detailed from 
 the consular service, and have had long experience in China, are able 
 to speak Chinese, and give special attention to such investigations. 
 
 The appointment of an untried man would be worse than useless; 
 it would probably lead to unnecessary and annoying delays and 
 confusion. 
 
 Chinese industrial and commercial institutions are so unlike those 
 of the West, and the conditions of trade so peculiar here, that one 
 unfamiliar with them is apt to be misled and to make rash and 
 untrustworthy generalizations. 
 
 E. H. Conger. 
 
 Opinions of Consular Officers. 
 
 AMOY. 
 
 I have the honor to report as follows in answer to your circular of 
 August 4 : 
 
 The plan of having a commercial attache would certainly be a good 
 one. The usefulness of such a man would be in visiting the various 
 ports and the interior tributary to those ports. Practically all of the 
 information which can be had regarding foreign and domestic trade 
 is available in any port where there is an American consul or a 
 custom-house. Trade conditions differ greatly in north, central, and 
 south China. It might be profitable to have three or more men to 
 investigate trade possibilities in these districts. Attaches who work 
 only in the ports open to foreign trade would but skim the surface. 
 
 This province is one of the richest in China, with a population of 
 22,000,000. It is estimated that 10,000,000 of this population is 
 tributary to Amoy. There are about 2,500,000 Amoy Chinese abroad. 
 If each remits only $10 a year to his clansmen, it makes $25,000,000 
 part of which may be used in buying foreign luxuries and necessities. 
 
 A commercial attache should investigate the interior, as he could 
 thereby reach millions and ascertain their wants as against thousands 
 only in the treaty ports. Valuable services could be rendered in the 
 cotton-goods trade, for instance, by learning the length and width of 
 the pieces in use in the district described. Also the mark or brand 
 in general use. If the Chinese are accustomed to a bolt of cloth 
 wrapped in gold-colored paper with a blue eagle on it, they want that, 
 and anything else is considered an imitation and a fraud. These 
 points may seem trivial, but they are of importance in dealing with 
 Chinese. 
 
 It might be suggested that the chamber of commerce in the vari- 
 
212 PROMOTION OF TRADE INTERESTS. 
 
 ous American cities interested in the export trade could assist in the 
 work of pushing American goods in the interior of China by sending 
 a representative to work with the commercial attache. 
 
 The country tributary to Amoy alone offers a field rich enough to 
 employ a man for a considerable time. The ordinary duties of a 
 consul at this port prevent him from giving the work the time and 
 attention it deserves. 
 
 Johx H. Fesler, Consul. 
 Amoy, October 4, 190 k* 
 
 FUCHAU 
 
 I have the honor to acknowledge receipt of the circular of August 
 4, 1904, relating to the " Promotion of trade interests." 
 
 In complying with your instruction to give my views on the sub- 
 ject presented therein, I may say that, with the 'understanding that 
 consular officers should still make their full reports personally and 
 directly to the Department of State, I see no objection to the scheme; 
 but I should strongly object to have my reports go merely to the 
 minister, to be swallowed up in a general report to be made by him, 
 whoever he might be. I believe every consul should have full credit 
 for all the effort put forth by him in obtaining information and 
 transmitting the same to the Department. I believe, however, it 
 would be for the good of the service that a copy of each report thus 
 prepared should be sent to the diplomatic officer, and that he could, 
 by the information thus given him, prepare a better report than is 
 dow possible. I think this is especially true of China, where each 
 consular district differs from all others in the Empire in some impor- 
 tant particulars. No general report made by the legation could con- 
 vey the local color of the several districts. What may be true of 
 Canton may not hold at all in Amoy or Fuchau. All ports and con- 
 ditions of trade, etc., in the south differ from those of the Yangtze 
 valley and the north, and yet a general report for all China should 
 be made from Peking, and the legation should have the reports from 
 local districts to enable that office to make its more complete and 
 general report. 
 
 I have long been of the opinion that something similar to what is 
 suggested in your circular should exist, and have taken occasion fre- 
 quently to send copies of my reports to the minister at the same time 
 that I mailed my report to the Department. I often feel like writing 
 to the Department of matters of general character relating to trade 
 in the country, political conditions, etc., as they appear to me, but 
 have refrained because they refer more particularly to other districts, 
 and I have supposed the legation would send such information, but 
 in many instances have failed entirely to find any reference thereto 
 in any published reports from the Department covering these things. 
 My colleague, Consul Fowler, has frequently made such general 
 reports, which I thought very excellent, but they appeared to me to 
 belong rather to the duties of the legation or consul-general, and I 
 have refrained from doing the same, though often tempted, because 
 I did not like to assume the duties of these higher Government officers. 
 
 I am of the opinion that an expert commercial attache, giving his 
 
PROMOTION OF TRADE INTERESTS. 213 
 
 whole time to investigations, in all parts of the Empire, visiting the 
 several consuls and consulting with them and through them brought 
 into personal contact Avith American merchants in all parts of China, 
 would be a most desirable adjunct to the present system. He could 
 compare methods of business as pursued in different places, and be 
 able to make suggestions to the Department of Commerce concerning 
 all trade conditions, which would be immensely valuable. Being 
 located, as I am, at a provincial capital, I can avail myself of all 
 the authority of the Viceroy and Tartar General, and other provin- 
 cial officials, and secure through them advantages not obtainable by 
 strangers. I can not therefore see that the minister could aid me 
 much, except that, as he gathers information from other sources, he 
 might transmit to us what might be very valuable. I have just 
 recently received from our minister official information, rules and reg- 
 ulations relating to mining, railroad construction, etc., for which I 
 returned my thanks, and said, further, that I would be grateful if 
 he would transmit to me promptly all regulations established by the 
 central government relating to such things. Hitherto, no official 
 information (or at least very rarely) has been sent to me from the 
 legation, and I have only learned of them through the papers, or by 
 applying to some of my colleagues, British, French, or Japanese, 
 who always receive from their diplomatic representatives official 
 copies of such regulations. Will the Department direct the legation 
 to furnish the consuls with all such things promptly ? 
 
 I am doing my utmost to promote trade in American goods in this 
 district, but I am not able to obtain statistics showing what amount 
 of American goods, machinery, etc., come to this district, owing to the 
 fact that all such goods are first entered at Shanghai or Hongkong, 
 and are only reported as coining from one or the other of those places, 
 and not from America, England, Germany, etc. There are doubtless 
 great opportunities for increase of trade just ahead of us in China. 
 
 Samuel L. Gracey, Consul. 
 
 FucHAu, September 17. 190. If. 
 
 HANGCHAU. 
 
 While I do not feel that my experience in Chinese matters has been 
 sufficient to enable me to speak authoritatively upon the subject, it is 
 plain to me that the slowness of communication in China demands 
 heroic measures if trade reports from this country are to be what they 
 ought to be. My newspaper experience and our way of collecting 
 news from a great field incline me to the belief that there ought to be 
 some sort of clearing house for consular news, some central point to 
 which either the originals or copies of consular trade reports may be 
 sent for correction or comparison and for the immediate information 
 of other consuls in the same country. Such a central agency could 
 naturally be of the utmost service in suggesting topics for considera- 
 tion and investigation, and for directing, in some measure, the general 
 course of trade reports. Probably a commercial attache at Peking 
 could do this work better than an officer located at any other point, 
 Much of his work, however, would have to be done in Shanghai. 
 
 I believe that the connection between consular officers and the 
 
214 PROMOTION OF TRADE INTERESTS. 
 
 legation in China in trade report matters is not as close as it ought to 
 be because of the fact that the consuls do not understand that they 
 can get information for their reports from or through that source. 
 With a commercial attache at Peking, this would certainly not longer 
 be the case. Having a Government representative, with diplomatic 
 status or connections to serve them and direct them in this line, the 
 work of consuls ought to be more intelligent, more thorough, and 
 more effective. 
 
 George E. Anderson, Consul. 
 Haxgchan, Xovember 3. 1904- 
 
 NEWCHTTAXG. 
 
 I have to acknowledge receipt of your circular of August 4, " Pro- 
 motion of trade interests,'* and in reply thereto beg to say: 
 
 So far as China is concerned, there is no question in my mind of 
 the importance, value, and necessity of having a commercial head to 
 the consular work in that line. As the work is now done, it is lack- 
 ing in systematic method and effectiveness. Bequests are continually 
 coming to me for information that could be answered by other con- 
 suls, but not by me. People are compelled to work blindly, hunting 
 for knowledge of Chinese industries, productions, and markets that 
 could be provided promptly and well by a special industrial agent. 
 
 This commercial or industrial agent should visit often each con- 
 sular district, and become an authority on Chinese products, indus- 
 tries, and trade. He should be familiar with each district and its 
 special characteristics, and should have in his office complete infor- 
 mation, well arranged and compiled, concerning everything of im- 
 portance produced, exported, and imported. He should be provided 
 with a good library suited to his work, and his office should be an 
 industrial and commercial bureau of information on China. He 
 should know where coal and all other minerals are to be found; he 
 should know the silk districts, the varied agricultural and horti- 
 cultural productions of each consular district ; and should be able to 
 use the consuls in gathering this information, and through his work, 
 it could be concentrated, compiled, and put into form to be utilized. 
 The same work pertaining to commercial affairs could be organized 
 under his direction. His office should also be the center of informa- 
 tion concerning manufactures and dealers in the United States in 
 things used in China. All industrial and trade reports should pass 
 through his hands. 
 
 The manufacturers in the United States are not familiar with the 
 localities into which their goods in China finally go. They know 
 little of the competition they must meet in these various districts, the 
 taxes imposed upon these goods in various forms (usually differing 
 in different localities ) . and a consul can only tell of these things in his 
 own district. A general agent could provide the entire information 
 for all and formulate it in practical shape. 
 
 Y\ natever may be the plan designed for other countries, some 
 scheme of this nature is especially required for China, because of the 
 fact that China herself has practically no effective machinery for 
 gathering industrial or commercial statistics and information, except 
 
PROMOTION OF TRADE INTERESTS. 215 
 
 the Imperial maritime customs service, and for such purposes as our 
 industrial and commercial interests demand this is of no great value, 
 and generally misleading. 
 
 A general agent could well be a commercial attache and under the 
 general direction of the minister, but his main office should be at 
 Shanghai. Through the high officials in Peking, he could secure let- 
 ters to the officials of the Empire that would give him access to the 
 information he would require. It would also be of special value to 
 his work to provide him with as high a rank as possible. 
 
 In connection with this subject I beg to repeat a part of my trade 
 report for Manchuria for 1901, forwarded you March 5, 1902, as 
 follows : 
 
 In closing this report, I desire to call the attention of the Department to the 
 fact that the trade and production and diversity of extensive industries of 
 China are little known to the world in general. Some man discovers something 
 in one section, another in some other province ; a consul makes a hasty report on 
 one subject, another on something else; but there seems to be no organized 
 method for compiling in systematic form the mass of information that is dug 
 out of the hidden and secret mystery of Chinese life. 
 
 One of the dominating characteristics of the mercantile as well as the official 
 and political life of China, is secrecy ; and when to this is added the feature of 
 localities each having their own independent type of production, manufacturing, 
 and trade, there is some explanation of the general ignorance concerning Chinese 
 industries and their possibilities. Temporary commissions to investigate and 
 report throw little or no light upon the internal life and trade as it is, or what 
 it may be. 
 
 The interest of the United States in China has grown to such proportions, and 
 our future relations are sure to be so important, that we require a more perfect 
 method of securing and compiling industrial and commercial knowledge of the 
 Empire. The consular service is not accomplishing one-quarter of what it is 
 capable if provided with some improvement in the system. A permanent and 
 exclusively commercial and industrial head should be provided for the service, 
 and located in Shanghai, and all the consular service work in these lines should 
 be done under the direction of this chief. China differs very materially from 
 other countries in these lines, as there are no national reports, methods, or 
 organization for providing information of this nature. The revelations made 
 at this port in the publication of native customs report are only an insignificant 
 matter, as compared with the great industrial production and trade, of which 
 the world knows so little. 
 
 A permanent and capable officer of the consular service, with duties that 
 give him exclusive direction over industries and commerce, and limit the 
 functions of his authority to these lines, with headquarters in Shanghai, is to 
 my mind quite essential for the proper expansion and protection of the indus- 
 trial interests of the United States in China. 
 
 Great Britain has a commercial attache, Consul Jameson, whose duties are of 
 this character, and his office is located at Shanghai. Germany has a special 
 consul detailed for the same work. Russia has a commercial attache, who 
 divides his time between Peking and Shanghai. Norway and Sweden have a 
 special commercial agent located at Shanghai. 
 
 There can be no question as to the importance of such an official and the value 
 of the work that can be done. 
 
 Henry B. Miller, C onsul- General. 
 
 Niuchwang, September 19, 190Jf. 
 
 TIENTSIN. 
 
 I have the honor to acknowledge receipt of Department circular 
 <t Promotion of trade interests,'' and in reply have to say that I would 
 be pleased to do my part should the plan suggested be followed out, 
 
216 PKOMOTION OF TKADE INTERESTS. 
 
 though I fear that the ministers, especially in China, have more to 
 do than their limited staff can accomplish. I am inclined to the 
 belief that the present methods of preparing commercial reports are 
 more practical, but to make the reports successful requires a more 
 effective corps of interpreters. At this consulate, the interpreter's 
 salary has been cut from $1,500 per annum to $1,000, and I find it 
 impossible to get a competent interpreter for that amount. With- 
 out a good man in that position, my efforts to procure the best infor- 
 mation are hampered. If the former allowance was restored, I could 
 accomplish far more in procuring information and make my reports 
 interesting and effective. The German Government has added to 
 its consular service a commercial agent, whose sole duty it is to study 
 and report on trade relations, but with a competent interpreter I 
 feel confident that I could accomplish the same results. 
 
 James TV. Bagsdale, Consul- General. 
 Tiextsix. October 7, 1904. 
 
 XXDIA. 
 
 Reports from Consular Officers. 
 
 BOMBAY. 
 
 In response to the circular " Promotion of trade interests," I have 
 to say: 
 
 In my opinion, there is no office in the diplomatic or consular service 
 which has such advantages as an embassy for gathering information 
 of whatever character — official or otherwise — first hand from the 
 country or countries to which it may be accredited. It is also an 
 acknowledged fact that the capabilities of a consul to obtain such 
 information are limited by his lack of diplomatic status. 
 
 With reference, however, to this consulate, the relations with the 
 Indian government have always been of the most friendly and cooper- 
 ative character, and when it has been at all possible, information of 
 an official or other kind has been fully given, upon request. As 
 regards India, I do not think it would be advisable to have a commer- 
 cial attache for the purpose of gathering information, inasmuch as the 
 cooperation of the Indian government with the American consular 
 service in India is of the best, and any information desired could be 
 as readily obtained by the consul as by a commercial attache. 
 
 With respect to information affecting the general administration 
 and other international questions of India, though this office is of the 
 opinion that a request from the Department of State, sent through 
 the consular service, would certainly be granted, yet, perhaps, an 
 attache at London, through the secretary of state for India, might be 
 able to get the desired data where the consular service in this country 
 would fail. During the tenure of the present consul, no refusals have 
 been met with from the Indian government, direct or otherwise, of 
 proper requests for data concerning trade or commercial, industrial, 
 or political questions. 
 
 This office would prefer not to be put under the " blue pencil " of 
 another office, except the Department of State, and were it done it is 
 my opinion that it would considerably lessen the initiative of the 
 
PROMOTION OF TRADE INTERESTS. 217 
 
 consular officer in seeking data for reports. Other consulates may 
 not be so situated, but the above statements are the opinions per- 
 taining to this particular office. 
 
 Henry J. Dody, Vice and Acting Consul. 
 Bombay. September 8, 1904. 
 
 CALCUTTA. 
 
 Referring to Department of State circular of July 29, addressed to 
 the diplomatic service, I have the honor to say that the published 
 reports of all the departments of the government of India are sent 
 to this office. Besides, the heads of the departments are most cour- 
 teous in giving any and all information asked for to enable me to 
 make such reports as may be called for, so that I can not see how our 
 embassy at London could be of service to this office in procuring infor- 
 mation in India. 
 
 I now correspond directly with the Department of State, and were 
 it necessary for me to receive instructions from, and to send my 
 reports to, the embassy at London for revision, it would not only cause 
 delay, but I am sure confusion would grow out of such a course. 
 
 In countries where the consular officers are more intimately con- 
 nected with and dependent upon our embassy for the information 
 furnished by the Government to which they are accredited, such a 
 scheme of supervision and cooperation might prove advantageous in 
 procuring the information desired, but here, where all such informa- 
 tion is freely furnished by the Government officials, supervision on 
 the part of our embassy in London would be a detriment rather than 
 a benefit. 
 
 R. F. Patterson, Consul- General. 
 
 Calcutta. September 8, 1904. 
 
 JAPAN. 
 
 Report from Minister Griscom. 
 
 Legation or the United States, 
 
 Tokyo, Japan, October 12, 1904,. 
 
 In reply to the Department's circular of July 29, 190-1, directing 
 the preparation of a memorandum upon the capabilities of the dip- 
 lomatic service for the promotion of American trade interests abroad, 
 I have the honor to state that my observations lead me to the convic- 
 tion that, being provided with a definite plan of action and proper 
 instruments, this legation could become a very useful auxiliary in 
 equipping our manufacturers and exporters for effective competition 
 in this market without detracting from the exceedingly valuable in- 
 dependent work of our consular service. 
 
 It is unquestionably true that the consular service is, in many cases, 
 limited in its capacity to give prompt and full reports, owing to its 
 lack of diplomatic status and consequent inability to obtain official 
 information at first hand. This legation is constantly in receipt of 
 
218 PROMOTION OF TRADE INTERESTS. 
 
 requests from consular officers for data which can only be obtained 
 from government departments in Tokyo, and it is obvious that much 
 valuable time is lost in correspondence in connection therewith. 
 
 In reply to your numbered questions, I may make the following 
 observations : 
 
 No. 1. It would be quite practicable for this legation to transmit 
 to consular officers in Japan and Formosa instructions from the De- 
 partment, from time to time, for particular inquiries, noting, in the 
 dispatch of transmission, suggestions from the source of information 
 accessible here which would facilitate such inquiries and increase the 
 comprehensiveness of the resulting reports. 
 
 No. 2. In reply to my application for information, his excellency 
 the minister for foreign affairs of Japan, under date of October 4, 
 1904 (copy herewith inclosed), advises me that the Japanese Gov- 
 ernment has no commercial attaches in its diplomatic service and 
 that the preparation of reports upon commercial matters is one of the 
 duties of the consular service. Japanese diplomatic officers, however, 
 under certain circumstances are required to furnish such reports. 
 
 Xo. 3. With the assistance of an experienced commercial attache, 
 this legation could undertake to have reports of consular, officers 
 revised, with annotations indicating errors of fact or judgment, or 
 portions to be eliminated as likely to give offense or cause embarrass- 
 ment to our diplomatic relations. 
 
 To accomplish the ends outlined above, I am of opinion that the 
 appointment of an additional attache to this legation would be neces- 
 sary. Such an officer should be qualified by experience in our foreign 
 service; should be familiar with commercial and political condi- 
 tions in Japan ; should be required to devote his whole time to his 
 special duties ; should hold such official rank as would insure to him 
 speedy audience with higher officers in the various departments of the 
 Japanese Government, and should receive a generous salary and an 
 allowance for necessary expenses in procuring information. The effi- 
 ciency of such an officer would be materially increased if it should be 
 clearly established that his official character was diplomatic rather 
 than consular. 
 
 In general, I would suggest that the annual commercial reports of 
 the consular service be made in harmom^ with a regular plan or sys- 
 tem. A consular officer should confine his annual report to his par- 
 ticular district, and the commerce of the locality should be studied 
 and reported upon with much minuteness and thoroughness. These 
 reports should be transmitted through the legation, and it should be 
 the duty of the commercial attache to examine them all, draw the 
 general conclusions, and make the principal annual report, dealing 
 with the national trade as a whole. In this manner the various con- 
 sular reports should fit together and cover the entire commerce of 
 each nation, and the general conclusions could be drawn by one who 
 has at his disposal the results of the work of the entire consular 
 body. It is obviously inadvisable to publish two or more reports as 
 to national trade containing conflicting figures and inconsistent con- 
 clusions. Everything possible should be done to encourage consular 
 officers to continue to make such admirable special reports on com- 
 mercial subjects as are now being made. 
 
 Lloyd C. Griscom. 
 
PROMOTION OF TRADE INTERESTS. 219 
 
 [Inclosure with Mr. Griscom's dispatch of October 12, 1904.] 
 [Translation.] 
 
 No. 63.] Department of ^Foreign Affairs, 
 
 Tokio, October J,, 190J f . 
 His Excellency Lloyd 0. Griscom, 
 
 Envoy Extraordinary and Minister Plenipotentiary, 
 
 of the United States of America. 
 
 Monsieur le Ministre : I have the honor to acknowledge the receipt of your 
 excellency's note No. 90, dated the 12th ultimo, asking for information required 
 by your Government, concerning the extent of cooperation between the diplo- 
 matic and consular services of Japan in reporting upon commercial matters and 
 advancement of trade interests and whether the Imperial Government appoint 
 industrial or commercial attaches to any of its legations. 
 
 In reply I beg to state that the service of making reports upon commercial 
 matters, etc., properly belongs to the duties of the consular officers, but there are 
 cases of the diplomatic officers being required to furnish reports on these mat- 
 ters when it is found inconvenient for the consular officers to do so, owing to 
 their residence being situated too far from the place. Likewise, at the places 
 where consulates are still unestablished, the diplomatic officers, for convenience 
 sake, are desired to make reports, etc., upon commercial as well as other mat- 
 ters properly belonging to the consular service. 
 
 Besides, it is customary with the Imperial Government to cause the diplo- 
 matic and consular services to cooperate in furnishing information upon matters 
 for the furtherance of commercial and industrial interests. But neither the 
 extent of such cooperation is clearly defined nor has any commercial attache 
 ever been appointed to any of our legations. 
 
 I avail myself of this occasion to renew to your excellency the assurance of 
 my highest consideration. 
 
 Baron Komura Jtjtaro, 
 
 Minister for Foreign Affairs. 
 
 Opinions of Consular Officers. 
 
 NAGASAKI. 
 
 In reply to circular, " Promotion of trade interests," I have to say 
 that the diplomatic service can in my opinion be of great service to 
 American trade in securing reports and information, advance sheets 
 of customs returns, etc., from heads of departments much earlier than 
 it is possible for consular officers to do so, considerably facilitating 
 the answering of commercial and industrial inquiries from the 
 Department. From the further fact of their being located at the 
 capital, diplomatic officers would be enabled to learn and notify the 
 Department of other important business wants, such as large con- 
 tracts, demands for machinery, merchandise, etc., at a much earlier 
 date than can be expected of the consular officers who are scattered 
 throughout the country, often at long distances from the capital. 
 
 Seemingly to me the best and most thorough and expeditious man- 
 ner in which our exporters can be additionally benefited is for our 
 Government to appoint commercial attaches to the embassies and 
 principal legations, selecting wide-awake men, of thorough business 
 ability and experience, speaking and writing the language of the 
 country to which they are sent, except those in Asia, to whom good 
 salaries and their traveling and other expenses in securing informa- 
 tion should be paid, they having no other duties than that of attend- 
 ing to American trade interests. In their capacity as such commer- 
 cial agents, they would soon be known to the authorities and trade of 
 the country to which they were accredited, and in the great majority 
 
220 ' PROMOTION OF trade interests. 
 
 of cases, would be able to secure the information desired from the 
 departments without calling to their aid the ambassador or minister. 
 
 I shall be very glad to cooperate with the legation at any time to the 
 end that American trade or other interests may be benefited. 
 
 Charles B. Harris, Consul, 
 
 Nagasaki, September 13, 1904. 
 
 TAMSUI. 
 
 In reply to circular of August 4, 1 have to say that my views on the 
 subject are in full accord with what seems to be the impression of the 
 Department, viz, that our diplomatic officers Avith a definite plan of 
 action could materially assist and advance American trade interests 
 abroad in furnishing our manufacturers and exporters with reliable 
 and valuable information on many subjects that can not be accurately 
 obtained by consuls, or, if obtained, only with difficulty, and often in 
 defective and misleading form. However, in the plan suggested in 
 the circular inclosed I understand that when the diplomatic officer 
 considered it necessary to annotate a report for correction, it would be 
 forwarded to the Department and might be given to those interested 
 without the knowledge of such correction reaching the consul who 
 had prepared it. In the practical working of this plan, it appears to 
 me there might be instances where the diplomatic officer would deem 
 alterations necessary when, if the report were referred back to the 
 consul he would be able to support his line of reasoning or statements 
 of fact by an explanation which he had deemed it unnecessary to in- 
 corporate in the report, or had possibly failed to -do so by oversight 
 when preparing it. It is my opinion that, on matters concerning 
 commercial conditions or peculiarities of trade in his own district, the 
 consul should be the better judge, and the questions present them- 
 selves to me : 
 
 First. Would not the practice of altering his reports, without his 
 knowledge, or without his having an opportunity to explain or eluci- 
 date the statements so altered reflect upon the spirit of initiative on 
 the part of the consul, and at times convey to the Department and 
 our trade interests information that might be misleading? And, 
 
 Second. Would not better results be obtained if, when the Depart- 
 ment is of the opinion that the consular service will have difficulty 
 in making certain reports, by reason of the subjects being on matters 
 of general interest or of a diplomatic nature, or for other reasons, 
 that it instruct the embassy or legation to prepare such reports and 
 to call upon the consuls for such information as may be required in 
 their preparation ? 
 
 Fred D. Fisher, Consul. 
 
 Tamsui, Formosa, September &£, 190L 
 
 YOKOHAMA. 
 
 
 Referring to circular of August 4, I have the honor to state that 
 I am of opinion that such a step as therein suggested would benefit 
 the Government and the people of the United States, provided a 
 

 PROMOTION OF TRADE INTERESTS. 221 
 
 suitable person were selected for the position of commercial attache 
 to the legation ; a person, in other words, who understands trade con- 
 ditions in this country and has a knowledge of the language and peo- 
 ple, and would devote his whole time to the procuring of information 
 that would benefit the American exporter. Our legation in Tokyo 
 has easy access to the central Japanese Government offices, and a com- 
 mercial attache would be able to obtain official information much 
 earlier than this office could, as all information of this character has 
 to be applied for through the legation. 
 
 Johx McLean, 
 V ice- C onsul- General in Charge. 
 Yokohama, October 1.^ 1904. 
 
 I have the honor to say that the Department circular " Promotion 
 of trade interests," was received at this office and ansAvered by the 
 vice-consul-general then in charge during my absence on leave in 
 America, but it seems to me proper to express my views in a second 
 reply on my return. The opinions herein stated are based on my 
 experience and observation of the conditions in Japan, and I assume 
 that the Department does not expect consular officers to make categor- 
 ical replies to the questions proposed, but desires a statement of their 
 judgment as to the general feasibility of the plan as outlined. In 
 my experience, I do not recall a single instance in which information 
 on any commercial or industrial subject could not be obtained without 
 diplomatic assistance, if procurable at all. If consular officers should 
 be directed to transmit their reports to the legation for revision and 
 annotation, one of three results would ensue : First, the reports might 
 be perfunctorily examined and invariably approved, in which case no 
 good would be accomplished and the reports would be delayed; sec- 
 ond, the reports might be carefully and conscientiously examined, but 
 since the subject of these reports is not usually matter of common 
 knowledge but they must be compiled from statistical returns, public 
 reports, interviews with business men, and other research, an intelli- 
 gent revision would demand nothing less than an independent inves- 
 tigation, covering the entire field of the consul's work in this connec- 
 tion. In other words, the plan would entail a duplication of work, 
 resulting in little or no benefit. 
 
 I would respectfully suggest that if the consular offices are filled 
 by capable men, such duplication is unnecessary and valueless. If 
 not, would it not be better to supplant the incapables, instead of 
 requesting the legations to perform the disagreeable task of revising 
 their reports? The third possible result of the adoption of the plan 
 would be a revision and annotations without a full investigation of all 
 the data on which the report was based, a course which would be cer- 
 tain to give rise to discord and ill-feeling where perfect harmony and 
 hearty cooperation are essential. 
 
 It seems to me, therefore, that the change suggested would make 
 the work of consular reports more cumbrous without adding percep- 
 tibly to their efficiency, and that the ends sought can be better attained 
 by other means. Personally, I should dislike very much to submit 
 my reports, which I prepare with the greatest care, to a censor who 
 
222 PROMOTION OF TRADE INTERESTS. 
 
 might change or add to my statements, without giving me any oppor- 
 tunity to know what was to be published over my signature until I 
 should see the printed report. 
 
 E. C. Bellows, Consul- General. 
 Yokohama, December 12, 1904. 
 
 KOREA. 
 
 Report from Minister Allen. 
 
 Legation of the United States or America, 
 Seoul, Korea, September IS, 1904- 
 
 In reply to circular of July 29, relative to " Promotion of Trade 
 Interests," I have the honor to call your attention to the fact that con- 
 ditions here are such that the circular does not apply with much force 
 to Korea. The only consular officer we have in this country is the 
 secretary of legation, who is also consul-general. It has been my 
 privilege and duty as secretary of legation, consul-general, and min- 
 ister to secure the establishment of the large American interests now 
 operating in Korea, which serve as centers for the introduction of 
 American products, and without which centers our trade with Korea 
 would not have grown as it has done. Our representative here, under 
 whatever title he may serve, would probably continue this course 
 without any special instructions or provisions. 
 
 As to the points you mention : 
 
 1. It would be entirely practicable, after the establishment of con- 
 sulates in Korea, for the minister to transmit them instructions 
 from the Department of State, and to elaborate the replies received 
 from the consulates. I think this would be eminently proper and 
 advantageous, and it could be done without causing friction. 
 
 2. The Korean Government, having practically no consular service, 
 does not attempt any such cooperation. 
 
 3. No especial assistance would be required in Korea for carrying 
 out the programme described in question 1. 
 
 Horace N. Allen. 
 
 PERSIA. 
 
 Report from the Legation. 
 
 American Legation, 
 Teheran, Persia, September 10, 1904- 
 
 The plan propounded in the circular of July 29 seems scarcely to 
 apply to Persia, inasmuch as there is no consulate outside the lega- 
 tion. If, however, general principles be admitted, especially with 
 reference to Eastern countries, the following suggestions may possi- 
 bly not be out of place. 
 
 The legislative and administrative appliances of absolute govern- 
 ments are very similar in method and operation. While in name the 
 system is greatly centralized, it is widely diffused in actual working, 
 so much so that the unit of a provincial organization has more power, 
 in its own sphere, over the regulations of trade and the facilitating or 
 
PROMOTION OF TRADE INTERESTS. 223 
 
 restricting of foreign or local enterprise, than the central Govern- 
 ment. Governors of provinces, invested with plenary powers, are not 
 only considered the best judges of what is necessary, but are left to 
 carry out their own views of what they consider more advisable. 
 
 Legislative acts, treaties, edicts, and decrees, while in their tenor 
 and intention covering the whole State and country, are often modi- 
 fied, if not ignored, by the authorities entrusted with their execution. 
 This is largely due to lack of active inspection and control of the sub- 
 ordinate machinery of government and the ignorance of the popula- 
 tions governed, Under such circumstances, the ability of diplomatic 
 agents to give efficient help to consular officers is largely curtailed. 
 This is more particularly the case where the latter have a semi judi- 
 cial character and the right, as in Persia, to attend the courts to 
 assist and adjudicate when questions affecting life, property, or inter- 
 ests of their citizens are concerned. 
 
 A serious hindrance to the proper comprehension of commercial 
 problems in Persia is the want of any literature or reliable statistics 
 on the subject. A consular agent in Persia should himself be a cyclo- 
 pedia of trading and legal knowledge, as there are so few aids to 
 direct him in studying the needs of the country and the methods to 
 supply them. 
 
 It may be well to know that in the Persian Government and admin-. 
 istration it is often possible to facilitate business and conciliate local 
 officials by appealing to their sense of duty, rather than by calling 
 into action the forces of the central authority, which there are gener- 
 ally some means of evading. 
 
 A consular officer may do much, and a minister may assist him in 
 different ways, to extend the commerce of America, but without the 
 support and enterprise of the commercial community of the United 
 States, his exertions and knowledge will be of little avail. American 
 merchants seem as yet to be lacking in initiative for obtaining foreign 
 trade where new ground is to be broken or old fields to be cultivated. 
 The minister or the consul may indicate mines and quarries, but 
 until there are volunteers to take up the pick and shovel they might 
 as well appeal to the winds. The legation in Teheran replies with 
 all necessary advice to every inquiry and proposal addressed to it by 
 American manufacturers, agents, or merchants; but in hardly any 
 instance has there been a response accompanied by the smallest 
 sample, which is the first necessity to the introduction of new varie- 
 ties of goods, or a change in patterns or make in the old. Catalogues, 
 of which we receive an abundance, are hardly sufficient to indicate 
 shapes, colors, and quality. 
 
 Your first inquiry does not appear to contain any proposal of service 
 that the head of a mission could not give or a consul frankly accept. 
 It might, doubtless, in some respects, be modified by circumstances, 
 where both officers were new to their posts, or the conditions affecting 
 trade were different in one place from those in another. Official 
 regulation and supervision, if they led to improvement, need not, 
 within proper limits, cause friction; and a minister, whose position 
 gives him access to the views and susceptibilities of the highest 
 authorities, would be able, if necessary, to suggest modifications in 
 consular reports that might be judicious. 
 
 The Persian Government has no commercial or industrial attaches. 
 
 John Tyler, In Charge. 
 
224 PROMOTION OF TRADE INTERESTS. 
 
 SIAM. 
 
 Report from Minister King. 
 
 American Legation, 
 Bangkok, Siam, November 5, 190^. 
 
 Replying to diplomatic circular July 29, 1904, " Promotion of trade 
 interests :" 
 
 Question No. 1. This would be practicable at this legation, and we 
 have found it quite advisable. The right to make annotations and 
 suggestions on the part of the diplomatic representative would be 
 necessary, unless, as in our case at present, the most cordial coopera- 
 tion is observed in such cases. 
 
 Up to the last year, the diplomatic representative and chief con- 
 sular officer at this post were combined in the minister resident and 
 consul-general. Under those circumstances, the custom was naturally 
 established of embodying in consular reports all information on any 
 subjects that could be obtained through both consular and diplo- 
 matic efforts. Since the separation of the ministerial from the con- 
 sular office, the consul-general has been made the secretary of legation, 
 thus, as you see, continuing between the diplomatic and the consular 
 .duties to a large degree the same relations. The very natural result 
 is, therefore, that scarcely any report goes from the legation that does 
 not represent the result of the closest cooperation in the office and the 
 combined effort of both departments in the field of inquiry. 
 
 Question No. 2. Siam, yet a young country, has established no such 
 advanced relations between its diplomatic and consular services, nor 
 has she any commercial or industrial attaches. 
 
 Question No. 3. See reply to question No. 1. 
 
 Hamilton King. 
 
 AUSTRALASIA. 
 AUSTRALIA. 
 
 Reports of Consular Officers. 
 
 MELBOURNE. 
 
 Replying to circular as to promotion of trade interests, I have the 
 honor to say that, since the organization of the Commonwealth of 
 Australia, the government thereof has recognized this consulate- 
 general as the official head of the American consular service in 
 Australia, making it the channel of all communications pertaining to 
 America, and the relations established between the two offices are of a 
 most cordial nature. 
 
 America, at present, furnishes one-fifth of the Australian imports, 
 with a wide field for further expansion if properly exploited by the 
 manufacturers and producers of the United States. Unqestionably, 
 the addition to the staff of the consulate-general of a thoroughly com- 
 petent commercial attache would be of the utmost benefit to our manu- 
 facturers and exporters. Such an attache could receive instructions 
 
PROMOTION OF TRADE INTERESTS. 225 
 
 from the State Department and transmit the same to the consular 
 offices in Australia on all matters pertaining to trade, receiving their 
 answers thereto, revising the reports, and making them much more 
 comprehensive and uniform than at present possible. 
 
 Germany, which is making strenuous efforts to capture Australian 
 trade, has both a commercial and an agricultural attache connected 
 with the consulate-general here. These officers deal solely with com- 
 mercial and agricultural matters; all trade inquiries received at the 
 various consulates in Australia, and reports requested b} 7 the govern- 
 ment are referred to and dealt with by them. Canada has two com- 
 mercial representatives in Australia, whose duty it is to extend the 
 trade with the Dominion. They are authorized to take such steps as 
 they deem advisable, and expend such sums of money as will properly 
 keep the manufacturing interests of Canada before the merchants of 
 Australia. A commercial representative for America would neces- 
 sarily have to be a versatile person, having a general knowledge of 
 the methods of manufacture, and the channels and manner of trade. 
 
 John P. Bray, Consul- General. 
 
 Melbourne, October 8. 190k. 
 
 NEWCASTLE. 
 
 Replying to circular, " Promotion of trade interests," I have the 
 honor to say that I can not see how the influence of our diplomatic 
 representative in London would be of any use to us here, for the 
 reason that, with the exception of a sympathetic bond to Great 
 Britain, this commonwealth is practically an independent nation. 
 Consular officers here are regarded by the authorities with all the 
 consideration that members of the diplomatic service receive from 
 the officials of strictly independent states, and no courtesy or aid is 
 refused that it is in their power to grant. 
 
 In my judgment, our service here is doing all that it can do, as it 
 now stands; but, if still better results are desired, they could be 
 brought about only by the appointment of a commercial agent for 
 Australasia, who had been well trained for his duties, and would 
 devote his time and efforts, with the advice of the various consular 
 officers, to ascertaining the wants of this people and the products to 
 be obtained here that are desired by Americans. By spending a 
 few weeks or even days in each consular district several times a year, 
 such an official would not only keep in touch with the commercial 
 affairs of the country, but through liberal use of the cables would be 
 able to promptly inform our business men of profitable openings. 
 
 As is well known, the trade of Australasia is very large, and a por- 
 tion of it is now controlled by Americans ; but if the idea I have sug- 
 gested were carried out — and it has proved successful in the case of 
 commercial agents of this state in the Far East, South Africa, and 
 London — a much larger part might be directed to our shores. In my 
 labors here, I have often felt the want of such an official, and while I 
 have been able to direct the attention of the business men here to 
 many of our products, resulting in business, I am certain that much 
 more might have been done by such an officer as I mention. 
 
 H. Doc. 245, 58-3 15 
 
226 PROMOTION OF TRADE INTERESTS. 
 
 Since I prepared the above, the following has appeared in the local 
 newspaper, showing the activity here of the German Government : 
 
 " Herr W. de Hass. commercial attache to the German consulate 
 in Sydney, has left Brisbane for the north. He is to spend two 
 months in Queensland, during which period he will tour the northern 
 and central districts on behalf of the German Government, to make 
 inquiries concerning a supply of raw produce for export. Among 
 other commodities which will receive the attention of the attache is 
 wolfram, which the German firm of Krupp are purchasing in large 
 quantities for use in the manufacture of implements of war. Herr 
 de Hass proposes to secure data as to the possible supply." 
 
 F. W. Godixg, Consul. 
 
 Newcastle. September I4, 190 J^. 
 
 Your circular letter of August 4 has been received and carefully 
 considered. 
 
 It will be noted by you that the American consuls in Australia are 
 located in states which, until quite recently, were independent gov- 
 ernments in all but the name, and that the consolidation into the 
 " Commonwealth of Australia " still leaves the separate states with 
 nearly all the government functions they were accustomed to exercise 
 before federation. Diplomatic questions arising here come first 
 before the consul, which fact, owing to the great distance from Lon- 
 don and the necessity of some immediate settlement, renders a consul's 
 duties at the seat of a state government more or less diplomatic. This 
 gives him access readily to all Government officials and to all possible 
 or proper sources of information, and renders the services of the 
 ambassador at London in the matter of obtaining statistics or com- 
 mercial information unnecessary, and together with the great dis- 
 tance of London from Sydney, impracticable. 
 
 There are two methods, either of which, I would suggest, might 
 greatly aid the consul in serving the interests of trade within the 
 sphere of this consulate : 
 
 1. An allowance might be made for research and investigation as 
 to matter for report — the supply, sources of supply, prices, and 
 demand for certain lines of goods. A local man, familiar with the 
 trade in the city, might be employed and paid for only what he does, 
 not being a fixed attache to the consulate. 
 
 2. Or, allow the vice-consul a fixed salary and make his duties that 
 of a commercial agent, with such allowance as business men in 
 America allow their " drummers " to facilitate their business. Manu- 
 facturers would be able, through him, to place their goods in the 
 hands of dealers who would push them in the market and exhibit 
 them in the fairs held in the larger cities. The vice-consul, as agent, 
 would have time to see that dealers accepting the agency of Ameri- 
 can goods were acting in good faith, and were not holding the sam- 
 ples more to prevent their merits bling known than to effect sales. 
 
 The prejudice in favor of English goods is strong, and so many 
 
. 
 
 PROMOTION OF TRADE INTERESTS. 227 
 
 interests combine to hold the Australian market, that competing 
 goods must exhibit superior qualities to secure the attention of the 
 people, and ought to be persistently advertised, one way or another. 
 
 The best thing, of course, would be for the manufacturers to have 
 branch houses located in Sydney, as is the case with some American 
 manufacturers of typewriters, sewing machines, cash registers, and 
 farming implements, with salesmen, local and traveling. But there 
 are hundreds of articles made in the United States that, in my opin- 
 ion, might find a market were their merits known, which the manu- 
 facturers can not afford to advertise by special agents. 
 
 The varied and numerous duties of the consul at this port render 
 it impossible for him to be much more than a medium through whom 
 communication between seller and dealer can be established or adver- 
 tisements be circulated. 
 
 To illustrate : A manufacturer writes us for a list of dealers han- 
 dling a certain line of goods. 'We send him a list. He selects one to 
 whom he sends samples. It has happened here that such samples are 
 thrown into a corner and no effort at all made to introduce the goods, 
 although a promise may have been given that effort would be made to 
 effect sales. Or a general agent comes from the United States and 
 agrees with a firm who promise to handle the goods. All arrange- 
 ments are made, samples are forwarded, and the agent goes away to 
 Japan or China rejoicing in the idea that he has accomplished a great 
 work in placing his goods in the Australian market. It has often 
 proved, however, that he has merely tied up the manufacturer from 
 selling his goods in this market for a year or more, as no sales are 
 made and there is no attempt made to sell. The agency seems to have 
 been accepted simply to prevent competition with manufacturers in 
 England or some other country. 
 
 The vice-consul, as general agent, could follow up all 
 accepted and see that the acceptance was carried out in good faith. 
 
 I have already, on two occasions, written the Department what 
 other nations are attempting through their consulates in Sydney, 
 especially Germany. The German, French, and Japanese consuls are 
 u consuls-general," and retain under pay a large staff of officials. 
 Germany spends annually as salaries of consular officials, $13,696, and 
 besides maintains a commercial agent — salary $5,000 — making a total 
 expenditure at Sydney of $18,696, not counting incidental expenses of 
 office and agent. 
 
 In a country governed vice-regally, like this, the title "consul- 
 general " gives a dignity and secures a consideration greater than 
 attach to the narrower title L ' consul." 
 
 Sydney is, unquestionably, so far the greatest commercial empo- 
 rium and distributing center for Australia and the Pacific Islands in 
 Australasia. It is over 500 miles from its only rival, Melbourne, 
 where you have, properly, a consul-general, as Melbourne is a very 
 important city and deserves the distinction given it; but Sydney 
 deserves it none the less. The American consul here should rank as 
 high, at least, as consuls of the nations mentioned above. 
 
 Orlando H. Baker, Consul. 
 
 Sydney, N. S. W., October 21, 190/+. 
 
228 PROMOTION OF TRADE INTERESTS. 
 
 NEW ZEALAND. 
 
 Opinion of the Consul-general. 
 
 Replying to the Department's circular, ; ' Promotion of trade inter- 
 ests.'' I have the honor to answer interrogatories 1 and 2 as follows : 
 
 No. 1. Speaking for this office, it is practicable for me, as consul- 
 general, to transmit to the consular officers subordinate to me instruc- 
 tions from the Department, from time to time, for inquiries, and to 
 note, in my dispatch of transmission to the Department, any sug- 
 gestions that may occur to me from my sources of information, which 
 would facilitate the inquiry or help to make it more comprehensive 
 and more exhaustive. But if I were obliged to transmit my reports 
 to an embassy or legation for revision, either in the way of annota- 
 tion or elimination, which their lack of familiarity with commercial 
 matters would not warrant, clela}' and possibly friction would neces- 
 sarily arise, and it would be impossible to preserve the spirit of initi- 
 ative, which is, as you say, one of the most valuable features of the 
 consular service. 
 
 No. 2. There being no embassy or legation in New Zealand, I have 
 no difficulty, as consul-general, in obtaining official information as 
 promptly as if I were ambassador or minister. All reports forwarded 
 by me to the Department of State have been authentic, because 
 I have been enabled to reach the center of official information, i. e., 
 the ministerial department of this Government specially charged with 
 the matter. It is. however, possible, and I think probable, that 
 occasion might arise in consular districts in countries where there 
 are embassies or legations when accurate information could be more 
 easily and quickly gotten through the aid of the diplomatic corps; 
 yet, as before remarked, I do not think an ambassador or minister 
 would be as likely to personally possess as accurate commercial 
 information as would a consul who mixes with the commercial world. 
 Therefore, no report that was revised by either ambassador or envoy 
 would, or could, be so effective and accurate as when received from 
 the consul. 
 
 Frank Dillingham, Consul- General. 
 
 Auckland, New Zealand, October 18, 190 4. 
 
 SAMOA. 
 
 Opinions of the Consul-general. 
 
 In reply to circular of August 4, I have the honor to state that, 
 owing to the isolated location of Samoa, I depend for all commercial 
 intelligence upon the government officials and the merchants of this 
 island; but for the more important countries, where embassies or 
 legations are situated, a commercial bureau, as an auxiliary, would 
 in my opinion be productive of the most practical and efficient results 
 for the promotion of trade interests. Through this bureau, the 
 Department of State would be promptly advised of the resources of 
 the country, its industrial development, and its markets for the 
 products of our country, and this information would suggest instruc- 
 
PROMOTION OF TRADE INTERESTS. 229 
 
 tions to consular officers for detailed reports on important subjects. 
 The consuls, in turn, with the cooperation of the commercial bureau, 
 would be enabled to furnish more comprehensive and more reliable 
 reports than are possible at present. There is no doubt in my mind 
 that the adoption of this plan would provide a most effective instru- 
 ment for the expansion of our trade. 
 
 Geo. Heimrod, Consul- General. 
 Apia, September 15, 190 ^ t 
 
 AFRICA. 
 EGYPT. 
 
 Report from Agency and Consulate-general. 
 
 American Agency and Consulate- General, 
 
 Cairo, August 20, 1904. 
 In reply to the Department's instructions of July 29, I have the 
 honor to inform you that commercial cooperation between the United 
 States diplomatic and consular services is secured in Egypt by the 
 unique nature of this office, which combines the duties of diplomatic 
 agency and consulate-general. The position enables us, therefore, to 
 obtain official information at first hands, and to apply it to advantage 
 in our consular capacity. For the present, no commercial or indus- 
 trial attaches, in addition to our present consular staff, are needed, 
 but with the development of the Sudan new work and questions of 
 commercial importance will probably be continually brought to this 
 agency. 
 
 Frederick G. Morgan, 
 Vice C onsul-General in Charge. 
 
 LIBERIA. 
 
 Report from Legation. 
 
 American Legation, 
 Monrovia, Liberia, September 9, 190 If. 
 
 In reply to circular, " Promotion of trade interests," I have the 
 honor to say that the fact that this legation has a consular depart- 
 ment, together with the further fact that there are no consular officers 
 within its jurisdiction, eliminates some of the considerations raised. 
 However, the practical operation of the consular department in con- 
 nection with the legation might make a few observations appropriate. 
 
 1. The consular department here has all the advantages possible to 
 be given it, by sharing the diplomatic status of the legation, for the 
 officers are the same. In the past the legation has placed at the dis- 
 position of those engaged, in the consular work all local publications 
 of commercial data, and in other ways has rendered valuable services. 
 Through the newly established bureau of statistics of Liberia the 
 legation will probably be able to do more, but the consular depart- 
 ment will still labor under difficulties peculiar to the field. The com- 
 mercial data of this Republic and of regions along the coast, so neces- 
 
230 PROMOTION OF TRADE INTERESTS. 
 
 sary to an awakening of American interest and a proper presentation 
 of American trade opportunities in West Africa, are outside of the 
 information usually published, and must be gathered from personal 
 investigations and from isolated publications from widely divergent 
 sources. To bring the consular department up to the point of 
 efficiency which the trade and importance of West Africa demand 
 would necessitate a considerable increase in the working force of this 
 mission. 
 
 During the present incumbency, we have put forth special efforts 
 to collect and furnish the needed information for the expansion of 
 American trade in West Africa, outside of the regular work of this 
 post, and the increased labor which has followed requires a larger staff 
 for its proper performance. The correspondence has greatly increased, 
 American goods are reported entering new fields, and a steamship 
 company has been incorporated in New York City to communicate 
 directly between the manufacturers of the United States and the con- 
 sumers of West Africa. The further collection of trade and indus- 
 trial information in this field could be carried on profitably and to the 
 advantage of American export trade only by strengthening the force 
 of the mission. 
 
 2. There are no commercial or industrial attaches here, and my 
 opinion is that whatever service they might render could better be pro- 
 vided for in some other way. The consular department is a part of 
 the legation and had the full advantage of its functions ; for this 
 reason the service performed in other countries by commercial attaches 
 could just as well be performed here by the diplomatic officers, with 
 the assistance of clerks. 
 
 3. To give the consular department at this post the efficiency men- 
 tioned under paragraph No. 1, the services of at least two good clerks 
 are needed. As secretary of the legation, taking in shorthand the 
 dispatches and letters of the minister, and transcribing the same on 
 the record books of the mission, I am prepared to say that the work 
 is too much for any one man in this climate. In the necessary per- 
 sonal investigations, in the routine work of the legation, in the com- 
 mercial demands upon the mission, in the careful collection and 
 preparation of industrial data from varied sources, the consular 
 department here will long suffer from climatic and other difficulties 
 peculiar to West Africa. Whatever is to be done for the purpose of 
 arousing American interest to its opportunity in West Africa must 
 be done largely through the consular department of the legation at 
 Monrovia ; and to strengthen its force is, in my opinion, to contribute 
 most effectively to that end. 
 
 George W. Ellis, Jr., Charge. 
 
 IX)URENC;0 MARQUEZ. 
 
 Opinions of the Consul. 
 
 I have the honor to reply to the Department's circular instruction 
 of August 4, transmitting copy of a circular to the diplomatic officers, 
 in regard to a plan for the cooperation of the officers of the two serv- 
 ices in the promotion of American trade. 
 
PROMOTION OF TRADE INTERESTS. 231 
 
 I am asked for an expression of my views upon this subject. 
 
 In my humble opinion, the first of the considerations advanced in 
 the above-mentioned diplomatic circular will probably apply to the 
 Lisbon legation as well as to any other legation or embassy. But, in 
 regard to the second consideration, I am of the opinion that, under 
 existing conditions, the Lisbon legation can be of very little assistance 
 in the securing of commercial information relating to my consular 
 district — the province of Mozambique. 
 
 As you are probably aware, the Lisbon Government is quite out of 
 touch with the commercial life of this province; and there is very 
 little, intercourse between the Lisbon legation and this consulate. As 
 far as I know, all that the Lisbon legation has ever done for, or on 
 behalf of, this consulate, has been to request, from time to time, the 
 free entry of my official supplies and, on one occasion, to ask the 
 extradition of a prisoner from Beira. 
 
 Detailed statistical information relative to the trade of this country 
 is rarely published, and if it is published, it is published here first 
 instead of at Lisbon. I have seen in the local custom-house a great 
 mass of statistical information, admirably gotten up but faultily ar- 
 ranged, relating to the commerce of the year 1903. These statistics 
 have never been published, for the reason that the local government 
 hesitated to incur the expense of publication, fearing disapproval 
 from Lisbon. 
 
 If I can spare the time, and if I can arrange so as not to inconven- 
 ience the customs officials, I can always inspect the archives of the 
 customs. The same courtes}^ is also generally shown me in other de- 
 partments. If I had some clerical assistance, I could keep the De- 
 partment supplied with various items of statistical information by 
 almost every mail. 
 
 With conditions such as these prevailing, I fail to see how the Lis- 
 bon legation, even if the minister does his best, can be of any great 
 assistance in securing commercial information relative to my consular 
 district. 
 
 The most practical way to secure more frequent, more elaborate, 
 and more valuable reports from my district will be to give this con- 
 sulate an allowance for clerk hire, and to allow me to make annual 
 visits of inspection to the leading ports and commercial centers of 
 my district. 
 
 W. Stanley Hollis, Consul. 
 
 Lourenco Marquez, September 16, 1904. 
 
 MADAGASCAR. 
 
 Opinions of the Consul. 
 
 In compliance with circular of August 4, I have the honor to state 
 that the matter has received my careful attention and study, extend- 
 ing over the whole period of the existence of the diplomatic and con- 
 sular relations with the American Government that have never ceased 
 since 1866, when Madagascar possessed her autonomy and concluded 
 a treaty of peace, commerce, and friendship with the United States. 
 This condition of things, however, was changed in 1896 by the subju- 
 gation of the island b}^ France. 
 
232 PROMOTION OF TRADE INTERESTS. 
 
 The United States has never had a diplomatic representative, except 
 temporarily for the negotiation of treaties, in Madagascar, the devel- 
 opment of our commerce here having always been reported and 
 encouraged, to their utmost endeavors, by the consular officers. 
 
 In the constantly growing work of equipping our American manu- 
 facturers and exporters for effective competition in the world's com- 
 merce, it would be an exaggeration to attempt to represent that Mada- 
 gascar — at least for some years to come — is likely to advance by leaps 
 and bounds, for trade is considerably depressed just now; but there 
 is absolutely no reason why our trade could not be increased. At 
 the same time, there are conditions which must not be overlooked in 
 a careful examination of the situation. French restrictions, legiti- 
 mate in principle, but frequently abused by inferior officials, tend 
 almost continually to block the way for both us and all foreigners of 
 non-French origin. Then, again, the duties on non-French goods, in 
 themselves burdensome, if not, as in the case of American cottons, 
 very nearly prohibitive, are levied with so many formalities that it 
 all ends in completely discouraging foreign importers, so that the 
 English and German houses established at Tamatave for forty years 
 now import almost wholly French goods. 
 
 Notwithstanding this, there are numberless products of our country 
 constantly being inquired after and sought for both by natives and 
 foreigners of all nations, but their orders are immediately met by the 
 great obstacle of lack of direct communication between Madagascar 
 and America, even supposing they were indifferent to the heavy 
 customs dues. The result of this is that people have to accustom 
 themselves to goods solely of French origin and French manufacture, 
 although in a great many cases they would prefer ours. 
 
 As to the second consideration, alluding to the possible limitation 
 upon the consular service in Madagascar, owing to lack of diplomatic 
 status in obtaining official information at first hands, it is my duty 
 and pleasure to state that despite the absence of a diplomatic agent, 
 this consulate has been treated during my tenure of office with the 
 utmost courtesy by the French officials of the colony, but notwith- 
 standing their best intentions, it is not infrequently a source of great 
 trouble to procure, forward, and make known to our exporters the 
 peculiarities of the trade of every province of the island. To obtain 
 a group of comprehensive reports upon such varied and numerous 
 subjects is impossible except to a man of high attainments and long 
 experience in the country, remunerated in such a manner as to enable 
 him to devote his whole time and talents to the work : for the duties 
 of this consulate absorb the consul's time, and it can hardly be 
 expected that one consul could keep in touch with the changing con- 
 ditions in so large a country. 
 
 It is not always remembered that Madagascar has more than 2,000 
 miles of coast line, and at least 25 important ports which it is neces- 
 sary for the custom-houses to control. Sometimes a consignment of 
 American petroleum will be landed on the opposite side of the island, 
 and this consulate only hears of it by accident or courtesy months 
 after. The capital of Madagascar is Tananarivo, situated in the cen- 
 ter of the island, which, until very recently, required as long to reach 
 from this consulate, at Tamatave, as would suffice to cross from New 
 York to Liverpool. Its population consists of 60,363 natives, 1,345 
 
PROMOTION OF TRADE INTERESTS. 233 
 
 French, and 232 other foreigners. Tamatave, the seat of this consu- 
 late, numbers 2,455 French, 743 other foreigners, and 8,047 natives. 
 Taking only 8 other toAvns situated hundreds of miles apart, the 
 totals give 2,758 French, 966 other foreigners, and 23,980 natives. 
 These figures do not include officers and soldiers of the army of occu- 
 pation nor Asiatics and Africans. The whole population of Mada- 
 gascar does not exceed 3,000,000 natives; but Madagascar has her 
 dependencies, namely, St. Mary Island, the Comoro Islands, Nossi- 
 Be, and Bourbon, now called Reunion, a sister colony of 150,000 
 to 200,000 inhabitants, where America has no consular representative 
 at all, and where only last month a vessel direct from New York 
 landed 10,000 cases of petroleum. The population, then, although 
 sparse, covers a very large district, and I could not give the opinion 
 that, at least for the present, there is the probability of, in any great 
 measure, increasing our trade to profitable proportions. 
 
 I am able, however, to corroborate the Department's expression, 
 at least in my own case, that very many difficulties have been over- 
 come in obtaining information by the assistance and by the good 
 offices of the bureaus of the colonial government, with which this 
 consulate has always maintained the best relations, although I think 
 the Department will see that a single consul for so large an island 
 and its dependencies can scarcely furnish the information and further 
 our commercial development in the spirit and to the extent contem- 
 plated by the Department. England has three consular officers 
 here — two full consuls and a vice-consul — to each of whom is assigued 
 a section of the country, and one consul at Reunion. 
 
 Most decidedly, admitting the view that the extension of commerce 
 has become one of the chief aids of world diplomacy, I would merely 
 submit my opinion that were a capable man appointed to do nothing 
 else but collect industrial and trade information he could do valuable 
 and useful work, although, as I said above, I would not venture to 
 predict any great development immediately. 
 
 To answer, then, in conclusion the Department's questions on the 
 numbered points, I would say in answer to query No. 1 : That as there 
 are no diplomatic officers in Madagascar, if we had such consular 
 subordinates the idea therein suggested would be most certainly 
 practicable. 
 
 The means which the French Government uses to increase its busi- 
 ness interests in foreign countries are too well known to the Depart- 
 ment to call for explanation from this consulate. I can simply men- 
 tion that in this their newly acquired colony they have a numerous 
 staff of able and efficient men, whose only duty and sole occupation 
 is to study the economic resources of the island and its dependencies. 
 
 When I am asked whether, in my judgment, commercial attaches 
 would be useful for America, I leave to the Department to think of 
 the extent of this consular district at present, and I believe the 
 response will be affirmative. 
 
 Question No. 3. If Madagascar is to furnish more detailed infor- 
 mation in the future than in the past for the expansion of American 
 commerce, in what we call the Mascarene Islands the expression 
 of my views, which the Department calls for, points to the necessity 
 of the extension of the consular corps. 
 
 William H. Hunt, Consul. 
 
 Tamatave, October 5. 1904. 
 
234 PROMOTION OF TRADE INTERESTS. 
 
 MADEIRA ISLANDS. 
 
 Opinions of the Consul. 
 
 I think the Department's idea of connecting our legations with our 
 consulates for commercial work is a most feasible one. The more 
 closely the two services are brought together the better. Here in 
 Madeira, I am on good terms with all the officials, and needed infor- 
 mation only requires the asking. They are most courteous. But I 
 know little of transactions at the capital. As an instance, a German 
 syndicate has been granted a concession by the Portuguese Govern- 
 ment to erect a sanatorium in this island for the cure of consumptives. 
 Forty patients are to be looked after free of cost. All building mate- 
 rials, furniture, and appurtenances are to be brought in free of cus- 
 toms, and the concessionnaries are to be allowed, the privilege of 
 building hotels. The material for building and furnishing and the 
 appurtenances thereunto belonging are to be admitted free of dutj 7 . 
 No one not connected with the enterprise knows how far the conces- 
 sion goes or really what is conceded. It is supposed that a casino for 
 gambling is a main feature of the concession. Inquiries have been 
 made in the English Parliament concerning this concession, but as yet 
 no answer has been given. Many of the business people of Funchal 
 are opposed to the concession, and complaint is made that trade and 
 business have been worked up under a heavy duty sj^stem, and that it 
 is not fair now to have to compete against a duty-free undertaking. 
 The public officials here are silent, and one can not obtain definite 
 particulars. 
 
 A consul should have all the information from the capital that 
 concerns his district. In the foregoing instance, we have no direct 
 information, such as could be obtained by proper contact with sources 
 at the capital. 
 
 T. C. Jones, Consul. 
 
 Funchal, August 29. 190\. 
 
 MOROCCO. 
 
 Opinions of the Consul- General. 
 
 I beg to acknowledge the receipt of the Department's circular, 
 <; Promotion of trade interests." As the Department is aware, the 
 representative of our Government at Morocco, while holding the title 
 of a consular officer, is accredited directly to the Sultan of Morocco, 
 and through the courtesy of the Government of this country and of 
 his colleagues, is accorded the position of a diplomatic officer, though 
 of low grade, so that, in reality, he occupies a double position. With 
 regard to facilities for the collection of commercial intelligence in 
 Morocco, I might say that they do not exist. Xo statistics of any kind 
 are gathered, commercial or otherwise, by the Government, who are 
 therefore never able to furnish information. The only commercial 
 statistics collected are those furnished by me annually to the Depart- 
 ment, which are collected by the British representative and myself 
 through a special agent employed by ourselves. While a considerable 
 
PROMOTION OF TRADE INTERESTS. 235 
 
 amount of American products, such as petroleum, flour, and lard, are 
 consumed in Morocco, they are imported altogether from European 
 ports, the absence of direct communication between the countries 
 being a great handicap to development of trade. The trade of 
 Morocco is entirely in the hands of British, German, and French 
 houses at present. 
 
 S. R. Gum mere, Consul- General. 
 Tangier, September 8. 190 If. 
 
 ST. HELENA. 
 Opinions of the Consul. 
 
 With reference to circular, '' Promotion of trade interests," I would 
 state that the foreign trade of this small and remote island is so 
 extremely limited as to leave absolutely nothing for the exercise of 
 diplomatic aid or influence in furtherance of American commercial 
 interests, information under this head being at all times readily and 
 cordially placed at my disposal by the local officials, under sanction of 
 the governor, and transmitted to the Department in the annual and 
 other reports from this consulate. 
 
 The writer is of opinion, however, that a moderate amount of trade 
 might be done between St: Helena and the United States, if one or 
 more of our American merchants would initiate the business by send- 
 ing a small cargo or two every year of such goods as provisions, 
 keresene, lumber, hardware, tobacco, grain, oilcake, drugs, etc., which 
 now appear in official returns as imported from London, Cape Town, 
 etc., but really had their origin in America. 
 
 Eob. P. Poole y, Consul. 
 
 St. Helena, October 7, 1904. 
 
 SIERRA LEONE. 
 
 Opinions of the Consul. 
 
 I have the honor to submit the following remarks in regard to 
 British West Africa, in response to the circular entitled " Promotion 
 of trade interests." 
 
 British West Africa is a commercial empire in itself, with an area 
 of more than 556,000 square miles and an extensive seacoast, contain- 
 ing a diversity of peoples, of natural products, of trade opportunities 
 and advantages, the extent of which can hardly be realized. The 
 British possessions are our greatest customers in the world of com- 
 merce. Under our present service in this country, it is impossible 
 for our consular officer to come into practical touch with the interests 
 of so vast a country, embracing the separate colonies of Gambia, 
 Sierra Leone, Gold Coast, Lagos, and northern and southern Nigeria, 
 without the aid and cooperation of additional agencies. Much impor- 
 tant commercial information, which would no doubt greatly benefit 
 American trade, is lost for want of an adequate consular force. 
 
 I would suggest, therefore, that the purposes and aims of the De- 
 
236 PROMOTION OF TRADE INTERESTS. 
 
 partment, as outlined in the circular referred to, would be better 
 served by erecting, the colonies of British West Africa into a 
 consulate-general, with consular agencies at the more important sea- 
 ports. This arrangement would greatly increase the efficiency of 
 the service here by enabling the central office, through its agencies, to 
 come into closer relations with both local and general conditions 
 throughout West Africa. 
 
 Our diplomatic office in London, over 3,000 miles away, is too dis- 
 tant to be utilized as a commercial medium; but the embassj^ could 
 help a consul-general by making desirable trade information access- 
 ible to him. 
 
 With an active, intelligent staff of agents, this officer could system- 
 atize and centralize methods for collecting commercial intelligence 
 from this coast commensurate with the needs of our commerce. 
 
 The primary need of the West African service would be sufficient 
 salaries to support the officials to do the work. From six years' 
 experience and observation on this coast, I should say that $10,000 per 
 annum in salaries for the consular service in British West Africa 
 could not be expended with better prospective results for American 
 commerce anywhere. 
 
 John T. Williams, Consul. 
 
 Sierra Leone, October 19, 190 i. 
 
 SOUTH AFRICA. 
 
 Report from Consulate- general. 
 
 In reply to circular of August 4, I will state that, as there are no 
 diplomatic officers accredited to South Africa, this portion of the 
 circular would not apply to this consular district. The following 
 British colonies have commercial agents here: New South Wales, 
 New Zealand, and Tasmania. These agents are appointed by their 
 respective governments; their duties consist in collecting commercial 
 intelligence and data concerning imports and exports, prices, etc., 
 and reporting the same directly to the government, and in answering 
 letters of inquiry from exporters. While these commercial agents do 
 not have the same status as the consular officers, they receive the same 
 courtesy, and have the same facilities for acquiring information. I 
 am informed that one of these agents receives a salary of £600 
 ($2,919.90). 
 
 Canada is represented by a commissioner, whose duties are the same 
 as those of the agents. No foreign government is represented here as 
 outlined in your circular, the trade interests being looked after by the 
 consular officers. 
 
 This consulate is on friendly terms with the center of official infor- 
 mation, i. e., the ministerial departments of government; hence, it 
 experiences no difficulty in getting information at first hands, We 
 have always found the heads of departments both courteous and will- 
 ing to give all the assistance and information they could. 
 
 Clifford M. Knight, 
 Vice and Deputy C onsul- General. 
 
 Cape Town, September 2L 190 If. 
 
PROMOTION OF TRADE INTERESTS. 237 
 
 ZANZIBAR. _ 
 
 Opinion of the Consul. 
 
 In reply to circular, " Promotion of trade interests," I have to say 
 that Zanzibar and the East African coast from Delagoa Bay to Cape 
 Guardafui is an undeveloped country. Owing, however, to the 
 Uganda and Usumbara railroads, and the immediate building of the 
 one from Dar Salaam, German East Africa, to Lake Tanganyika, and 
 the one from the Cape to Cairo, the region is being rapidly opened up, 
 and white immigration is setting in. American merchants are alive to 
 the possibilities that exist for extending our trade in this country. 
 Every mail brings requests for the names of merchants and dealers in 
 their wares and for information as to how to place goods before them. 
 
 I am in thorough accord with the proposition discussed in the cir- 
 cular — i. e., the cooperation of the diplomatic and consular services 
 in promoting American trade interests, for in countries where we have 
 diplomatic representatives they are in a position to gather informa- 
 tion of importance that is unobtainable by the consul. Regarding the 
 questions asked in the circular to diplomatic officers, it would be 
 entirely practicable for me to transmit to consular officers who might 
 be in my district instructions from the Department of State, from 
 time to time, for particular inquiries, noting in my dispatch of trans- 
 mission any suggestions that might occur to me, from my sources of 
 information at the capital city, which would facilitate the inquiry 
 and help to make it more comprehensive and exhaustive. And if such 
 consular officers should direct their answers to said instructions 
 through me, I would undertake to revise their reports, with annota- 
 tions or eliminations if necessary. No such cooperation as outlined 
 above exists in Zanzibar, from the fact that the adjoining main shore 
 is British or German territory, with but small coast towns, the larger 
 part of the country being still undeveloped. 
 
 Mombasa, British East Africa, is the most important place as a 
 shipping port, and is growing, as it is the starting point of the 
 Uganda Railway, running to Lake Victoria Nyanza. The Germans 
 have a vice-consul there under the jurisdiction of the Zanzibar con- 
 sulate. Our need for a consular agent at Mombasa is daily increas- 
 ing. Not only are American citizens constantly arriving and passing 
 through there on their way up the Uganda Railroad, but its trade 
 with America is increasing. Mombasa, not Zanzibar, is now the 
 receiving and distributing, port for British East Africa. The estab- 
 lishment of an agency or vice- consulate at Mombasa would further 
 the object sought — the coordination and improvement of existing 
 facilities for the collecting of commercial intelligence — aside from the 
 advantage it would be to our trade and citizens. Zanzibar is 125 miles 
 from Mombasa, and it is often ten days before there is a ship between 
 the two ports. 
 
 Mason Mitchell, Consul. 
 
 Zanzibar, September 15, 190 If. 
 
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