7☑ w957 2635 HART AND THE CHINESE CUSTOMS by Stanley F.Wright,M.A.,LL.D. Formerly Commissioner Chinese Customs Service. published for THE QUEEN'S UNIVERSITY, BELFAST. 中开院史下 2 MHE00026359 WM.MULLAN SON (Publishers)LTD SIR ROBERT HART IN 1908 Belfast From the portrait by Mr.Frank McKelvey,R.H.A.,in the Great Hall of the Queen's Universily. 950
SIR ROBERT HART IN 1908 From the portrait by AIr. Frank i\IcKelveV,R.H.A., ill the Great Hall of the' Queen's University. 2635 HART AND THE CHINESE CUSTOMS by Stanley F. )YJ'ight, M.A., LL.D. Formerly Commissioner Chinese Customs Service. published for THE QUEEN'S UNIVERSITY, BELFAST . . -.~wt9~t t:p lDJf ~jtJft~irfRm 1J: ~E 111111111111111111111111111111111111111111111111111111111111 *MHE0002635* ~~'-C., rr-rrCTJ WM. MULLAN & SON (Publishers) LTD Belfast 1950
This work is copyright.It may not be reproduced in whole or in part by any method without written permission. Application should be made to the publishers, Wm.Mullan Son (Publishers)Ltd., ··1 Donegall Place,.Belfast. Universitati Reginali Belfastiensi Northern Ireland. cujus alumni complures magna cum sua almaeque matris gloria in civitate Serica ordinanda et stabilienda ingenio fide consiliis enituerunt conspicui hoc caritatis testimonium filii praeclarissimi D.D.D. Composed in 10 point Baskerville type and printed at Belfast,Northern Ireland, by Nicholson Bass Ltd. Bound by Leighton-Straker Bookbinding Co.Ltd. Standard Road,London,N.W.10. iv
This work is copyright. It may not be reproduced in whole or in part by any method without written permission~ Application should be made to the publishers, Wm. Mullan & Son (Publishers) Ltd., . 12 DonegallPlace, Belfast. Northern Ireland. Composed in 10 point Baskerville type. and printed at Belfast, Northern Ireland. by Nicholson & Bass Ltd. Bound by Leighton-Straker Bookbinding Co. Ltd_ Standard Road, London, N.W.IO. iv Universitati Reginali Belfastieri~i" cujus alumni complures magna cum sua almaeque matris gloria in civitale Serica ordinanda et stabilienda ingenio fide consiliis enituerunt conspicui hoc caritatis testimonium . filii praeclarissimi D.D.D. ·V
vii CONTENTS page Preface ” XII Acknowledgments XV Introduction:The unique character of the Chinese Customs Service ABBREVIATIONS Am. American. Chapter I. Art. =Article. The Coming of the Traders of the West:Trading under B.&F.S.P.British and Foreign State Papers. monopoly at Canton in pre-treaty days .. 9 B.P.P.British Parliamentary Paper. Chapter II. .Br. =British. Opium and the first trade war:The settlement under the early C.A. =Customs Archives. treaties 04 4 38 C.P. sCustoms Publication. Ch.Rep.=Chinese Repository. Chapter III. Circ. =Circular. The breakdown of the early treaty system 65 Desp. =Despatch. Chapter IV. F.O. =British Foreign Office Archives. For.Rels.=U.S.A.Foreign Relations. The Origin of the Inspectorate of Customs:Part I.From the capture of Shanghai by the rebels to the Arrow incident, Fr. =French. 1853-1856 … 88 I.G. Inspector-General. N.C.D.N.North China Daily News. ， Chapter V. N.C.H.North'China Herald. The Origin of the Inspectorate of Customs:Part II.From the S.0. =Semi-Official Letter. Arrow incident to the creation of the Tsungli Yamen, Tr. 1856-1861… Treaty. 123 Chapter VI. Hart's ancestry,early years,and education .. 159 Chapter VII. Lay's Memorandum on the Customs Service:The legal powers and status of its members 179 Chapter VIII. Hart's first visit to Peking:Opening of the Yangtse:Coasting trade:Transit passes:Smuggling 44 196 Chapter IX. The Sherard Osborn Fleet and the downfall of H.N.Lay 225
" Am. ABBREVIATIONS = American. Art. = Article.' B. & F.S.P. = British and Foreign State Papers. B.P.P. . Br. C.A. = British Parliamentary Paper. = British . Customs Archives. C.P. Customs Publication. Ch. Rep. Circ. Chines~ Repository. Circular. Desp, = Despatch. F.O. British Foreign Office Archives. For. Rels. = D.S.A. Foreign Relations. Fr. = French. I.G. = Inspector-General. N.C.D.N. = North China Daily News. N.C.H. = North' China Herald. S.O. = Semi-Official Letter. Tr. = Treaty. vi vii CONTENTS Preface . Acknowledgments Introduction: The unique character of the Chinese Customs Service Chapter I. The Coming-of the Traders of the West: Trading under monopoly at Canton in pre-treaty days Chapter II. Opium and the first trade war: The settlement under the early treaties Chapter Ill. The breakdown of the early treaty system Chapter IV. The Origin of the Inspectorate of Customs: Part I. From the capture of Shanghai by the rebels to the Arrow incident, 1853-1856 Chapter V. The Origin of the Inspectorate of Customs: Part II. From the Arrow incident to the creation of the Tsungli Yamen, 1856-1861 Chapter VI. Hart's ancestry, early years, and education Chapter VII. Lay's Memorandum on the Customs Service: The legal powers page XII XV I 9 88 12 3 159 and status of its members 1 i9 Chapter VIII. Hart's first visit to Peking: Opening of the Yangtse: Coasting trade: Transit passes: Smuggling 196 Chapter IX. The Sherard Osborn Fleet and the downfall of H. N. Lay
viii 中 Chapter X. Chapter XIX. Building up the Service:Defining its status and scope:Recruiting Rumoured resignation of Hart:Chinese officials as traders: its personnel:Relations between Commissioners and Chinese Abuses of outward transit trade:Steam navigation on the Superintendents :58 Upper Yangtse:The opening of Chungking:Proposed purchase of Macao:Sikkim:The Mason affair:Postal Chapter XI. Developments …·599 Building up the Service:The Marine Department:Tonnage Dues and Aids to Navigation:Pilots and Pilotage:The Chapter XX. Beginning of the Post Office .. g91 China-Japan war of 1894-1895:Payment of the indemnity: Franco-Russian loan of 1895,and Anglo-German loans of Chapter XII. 1896 and 1898:Hart and the Likin collectorates:Tariff revision,and Hart's Haikuan Tael gold unit proposal: The Tung Wen Kuan and the von Gumpach Case 399 Inauguration of the Chinese Imperial Post Office 639 Chapter XIII. Chapter XXI. Courts of Joint Investigation:Early Loans secured on the The battle for concessions:Territorial leases:Kiaochow, Customs Revenue:The Burlingame Mission: Treaty Dalny,Port Arthur,Kwangchowwan,Weihaiwei,Kowloon: Revision:The Alcock Convention:The Hongkong Railways:Russia claims the Inspectorship of Customs:Steam Blockade 车。 353 navigation inland:The opening of the West River:Revision of Yangtse regulations:Reform and Palace revolution: Chapter XIV. The Open Door 4 + 68g Coolie Emigration:The Vienna Exhibition:Chinese Steam Shipping:The Chefoo Convention:Hart's proposals for the Chapter XXII. better regulation of commercial relations:The Yamen circular of 1878:Staff questions Decorations 895 The Boxer outbreak:Hart and the Inspectorate during and after the siege of the Peking Legations:The Protocol of Chapter XV. settlement:Indemnity:Native Customs:Tariff revision: Mackay and other treaties:Indemnity,a gold debt:River Legal complications:The Cadiz hulk and the Taiwan false 5. conservancy:Grant in aid of Post Office:Unrest in Service manifest cases:The Page,Logan,and Roberts cases 434 and the succession question:China's foreign trade,1886-1905 730 Chapter XVI. Chapter XXIII. China's tributary States:Korea,Liu Chiu islands:Annam:The beginnings of China's modern navy:Russia and Ili:Gordon's Gold standard for China:Mint:Land Tax:Russo-Japanese war: visit to China in 1880... +40 46? Registration of Trade Marks:West River regulations: Customs Association:Amoy riot:Chang Yen-mao case: Chapter XVII. Appointment of Ministers to control Customs:Creation of 1万… Shui-wu Ch'u:Opening of Manchuria:Hart goes on leave... 790 China's'tributary States:Korea again:War with France: Protocol of Paris:Hart appointed British Minister and Plenipotentiary:China's foreign trade,1864-1885... 499 Chapter XXIV. Chapter XVIII. Appointment of Bredon in temporary charge:Establishment of Customs College:Control of Native opium:Aftermath of China's tributary States:Burmah:Opium once more:Additional the deaths of the Emperor and the Empress Dowager: article to the Chefoo Convention:Hongkong and Macao Appointment of Aglen as Hart's successor:Death of Hart: opium agreements:Bonding …554 His character 839
viii Chapter X. Building up the Service: De~ning its status a.n~ scope: Recru~ting its personnel: Relations between CommIssIOners and Chmese Superintenden,ts ' Chapter XI. Building up the Service: The Marine Department: Tonnage Dues and Aids to Navigation: Pilots and Pilotage: The Begiiming of the Post Office Chapter XII. The Tung Wen Kuan and the von Gumpach Case Chapter XIII. Courts of Joint Investigation: Early Loans secured on the , Customs Revenue: The Burlingame Mission: Treaty Revision: The Alcock Convention: The Hongkong Blockade' Chapter XIV. Coolie Emigration: The Vienna Exhibition: Chinese Steam Shipping: The Chefoo Convention: Hart's proposals for the better' regulation of commercial relations: The Yamen 3~~ 353 ,', circular of 1878: Staff· questions Decorations'; 395 Chapter XV. Legal coniplications: The Cadiz hulk and the Taiwan false manifest cases: The Page, Logan, and Roberts cases.". " ',' 434 Chapter XVI. China's tributary States: Korea, Liu Chiu islands: Annam: The ~.:: Qeginnings of China's 'modern navy: Russia and Ili: Gordon's visit to China in 1880 ... Chapter XVII. China's' tributary' States: Korea' again: War with France: Protocol of Paris: Hart appointed British Minister and Plenipotentiary: China's foreign trade, 1864-1885 ... Chapter XVIII. China's tributary States: Burmah: Opium once more: Additional article to the Chefoo Convention: Hongkong and Macao 499 opium agreements:. Bonding . ; 554 ix Chapter XIX. Rumoured resignation of Hart: Chinese officials as traders: Abuses of outward transit trade: Steam navigation on the Upper Yangtse: The. opening of Chungking: Proposed purchase of Macao: Sikkim: The Mason affair: .Postal Developments Chapter XX. China-Japan war. of 1894-1895: Payment of the indemnity: Franco-Russian loan of 1895, and. Anglo-German loans of 1896 and 1898: Hart and the Likin collectorates: Tariff revision, and Hart's Haikuan Tael gold unit proposal: Inauguration of the Chinese Imperial Post Office Chapter XXI. The battle for concessions: Territorial leases: Kiaochow, Dalny, Port Arthur, Kwangchowwan, Weihaiwei, Kowloon: Railways: Russia claims the Inspectorship of Customs: Steam 'navigation inland: The opening of the West River: Revision of Yangtse regulations: Reform and Palace revolution: The Open Door Chapter XXII. The Boxer outbreak: Hart and the Inspectorate during and after the siege of the Peking Legations: The Protocol of settlement: Indemnity: Native Customs: Tariff revision: Mackay and other treaties: Indemnity, a gold debt: River conservancy: Grant in aid of Post Office: Unrest in Service and the succession question: China's foreign trade, 1886"1905 Chapter XXIII. Gold standard for China: Mint: Land Tax: RU'sso-Japanese war: Registration of Trade Marks:' West River regulations: Customs Association: Amoy riot: Chang Yen-mao case: Appointment of Ministers to control Customs: Creation of Shui-wu Ch'u: Opening of Manchuria: Hart goes on leave ... Chapter XXIV. Appointment of Bredon in temporary charge: Establishment of Customs College: Control of Native opium: Aftermath of the deaths of the Emperor and the Empress Dowager: Appointment of Aglen as Hart's successor: Death of Hart: His character 599 790
xi ILLUSTRATIONS Page Sir Robert Hart in 19o8 (after McKelvey's FRONTISPIECE BIBLIOGRAPHY 868 portrait in the Great Hall of Queen's University） The Burning of the Factories at Canton ..Facing page 35 Appendices 8g1 The Opium Fleet at Lintin;with a "fast (1)China's sea-borne Foreign Trade:Import and Export,1863-1910: dragon"opium-smuggling boat in the Values and Revenue. foreground … 39 ()National percentages in China's sea-borne Foreign Trade. The Canton Custom House in the early ()List of Treaty Ports in chronological order. days of last century... 66 (4)Personnel of Chinese Customs Service,1875,1885,185,1905,1915. The Factories at Canton early in the Nineteenth Century... ” 66 (5)Chinese characters of romanised names and terms used in text. Shanghai Bund in the early fifties of last century 89 INDEX 9o9 Horatio Nelson Lay,C.B. 1g6 ERRATA 949 Robert Hart in 1866... 136 Prince Kung:First President of the Tsungli Yamen 149 Queen's College,Belfast,in Hart's time .. 165 An Encounter with Chinese Pirates 237 A.E.Hippisley 368 Sir John McLeavy Brown 368 H.E.the Viceroy Li Hung-chang 465 The Gunboat "Delta" 474 Hart in his“den,”Peking,.r8gr 6g8 H.E.Tong Shao-yi … 628 H.E.the Viceroy Chang Chih-tung 71g Francis A.Aglen .. 850 Hart's Statue on the Shanghai Bund 865 Panels on pedestal of Hart's statue … 866
x BIBLIOGRAPHY Appendices Page 868 (1) China's sea-borne Foreign Trade: Import and Export, ,1863-1910: Values and Revenue. (2) National percentages in China's sea-borne Foreign Trade. (3) List of Treaty Ports in chronological order. (4) Personnel of Chinese Customs Service, 1875, 1885, 1895, 1905, 1915. (5) Chinese characters of romanised names and terms used in text. INDEX 90 9 ERRATA. 949 Xl ILLUSTRA TIONS Sir Robert Hart in I90B (afte'!' McKelvey's FRONTISPIECE portrait iri the Great Hall of Queen's· University) The Burning of the Fa~tories at Canton ... Facing page 35 The Opium Fleet at Lintin; with a "fast dmgon" opium-smuggling boat zn the foreground The Canton Custom House in the early days of last cent1J,ry ... The Fact01'ies at Canton early zn the Nineteenth CentU1Y ... Shanghai Bund in the early fifties of last centU1Y Homtio Nelson Lay, C.B. Robert Hart in IB66 Prince Kung: First President of the Tsungli Yamen '" ... ... . .. . Queen's College, Belfast, in Hart's time An Encounter with Chinese Pirates A. E. Hippisley Sir ]ohnMcLeavy BTOwn H.E. the ViceTOY Li Hung-chang The Guhboat "Delta" Hart in his" den," Peking, IB9I H.E. Tong Shao-yi H.E. the ViceTOY Chang Chih-tung Fmncis A. Aglen Hart's Statue on the Shanghai Bund Panels on pedestal of Hart's statue ...... , 39 66 66 89 474 712 865 866
xiii PREFACE It may obviate misunderstanding and forestall criticism if the bald title of this book serves to indicate that the task essayed is not to foist upon the public yet another retelling of China's foreign relations, although for a clear understanding of the theme,these relations cannot be ignored.Neither is the book an attempt to present a biography in the usual sense of the term seeing that Hart's private and family affairs have been but lightly touched upon;nor yet does it claim to be a complete and detailed history of the Chinese Customs Service,in the development and activities of which Hart was for so long the moving spirit. .The book,in fact,is a blend of all three elements.Chinese Customs existed for centuries before Hart ever appeared in China,but it was the impact of his personality on the early treaty-engendered Foreign Inspectorate of Customs that made the Chinese Customs Service one of the administrative marvels of the world.Out of the seventy-six years of his allotted span of life he devoted fifty-two to the advancement of China's welfare in and through the Customs Service.That Service for half a century from 1861 was essentially Hart,Others,many of them men of unusual ability and force of character,gave their lives to it, to China's lasting gain;but Hart was the moving and controlling genius, the glowing central core from which life and energy radiated throughout the whole body. To that Service Hart dedicated himself,toiling for it as devotedly as any pioneer missionary,forgoing holidays and furloughsonly twice in fifty-four years did he revisit his homeland-defending its interests even at the cost of friendships,declining for the sake of those interests the glittering prize of appointment as British Minister at Peking,taking risks on behalf of China and the Service which would have appalled any mere safety-playing bureaucrat,loyally preferring to remain in Peking after the Boxer cataclysm in order to stand by China in disgrace, and in the end holding on to his post in spite of ill health and of heavy outside pressure because he was convinced that yielding to that pressure would have impaired China's sovereignty.From 1861 to 1911 the Service so absorbed all his energies,so dominated his waking and his sleeping thoughts,that he came to be not simply its Inspector General ("I.G.")but its very personification.The story of the Chinese Customs Service during his working lifetime is essentially the biography of Hart. Today,we British have good reason to congratulate ourselves that during those fateful years when China was being bullied and exploited, the foreigner chosen by the Chinese to be the head of their Foreign Inspectorate of Customs was a far-seeing warm-hearted Ulsterman who exemplified the best in British character and traditions.He was not blind to China's faults and weaknesses,to the shortsightedness of her isolationism to the canker of corruption in high places,to her vacillation. to her shirking of responsibility,and to the woeful lack of widespread
xiii PREFACE It may obviate misunderstanding and forestall criticism if the bald title of this book serves to indicate that the task essayed is not to foist upon the public yet another retelling of China's foreign relations, although for a clear understanding of the theme, these relations cannot be ignored. Neither is the book an attempt to present a biography in the usual sense of the term seeing that Hart's private and family affairs have been but lightly touched upon; nor yet does it claim to be a complete and detailed history of the Chinese Customs Service, in the development and activities of which Hart was for so long the moving spirit. The book, in fact, is a blend of all three elements. Chinese Customs existed for centuries before Hart ever appeared in China, but it was the impact of his personality on the early treaty-engendered Foreign Inspectorate of Customs that made the Chinese Customs Service one of the administrative marvels of the world. Out of the seventy-six years of his allotted span of life he d~voted fifty-two to the advancement of China's welfare in and through the Customs Service. That Service for half a century from 1861 was essentially Hart, Others, many of them men of unusual ability and force of character, gave their lives to it, to China's lasting gain; but Hart W<:iS the moving and controlling genius, the glowing central core from which life and energy radiated throughout the whole body. To that Service Hart dedicated himself, toiling for it as devotedly a~ any pioneer missionary, forgoing holidays and furloughs-,only twice in fifty-four years did he revisit his homeland-defending its interests even at the cost of friendships, declining for the sake of those interests the glittering prize of appointment as British Minister at Peking, taking risks on behalf of China and the Service which would have appalled any mere safety-playing bureaucrat, loyally preferring to remain in Peking after the Boxer cataclysm in order to stand by China in disgrace, and in the end holding on to his post in spite of ill health and of hea\"y outside pressure because he was convinced that yielding to that pressure would have impaired China's sovereignty. From 1861 to 1911 the Service so absorbed all his energies, so dominated his waking and his sleeping thoughts, that he came to be not simply its Inspector General ("I.G.") but its very personification. The story 6f the Chinese Customs Service during his working lifetime is essentially the biography of Hart. - Today, we British have good reason to congratulate ourselves that during those fateful years when China was being bullied and exploited, the foreigner chosen by the Chinese to be the head of their Foreign Inspectorate of Customs was a far-seeing warm-hearted Ulsterman who exemplified the best in British character and traditions. He was not blind to China's faults and weaknesses, to the shortsightedness of her isolationism to the canker of corruption in high places, to her vacillation, to her shirking of responsibility, and to the woeful lack of widespread
xiv XV patriotism,but he was firmly convinced that she was more sinned has spread to the four quarters of the globe,and whose romantic and against than sinning,and that it ill became foreigners to adopt towards illustrious career in the Far East is without a parallel.* her an attitude of impatient fault-finding or of arrogant superiority. He chose a more excellent way.His approach was that of one who had Our 'fate is to live between two ages,"One dead,the other a genuine admiration of Chinese character and culture,and who powerless to be born."Dominance based on racial or national cherished a warm sympathy for the Chinese people. sovereignty is-except for misguided megalomaniacs-an outworn ideal;,but the new age-towards which we grope-an age of a At,the very outset of his career as Inspector-General,he recorded wholesome community life on a world-wide scale-each for all and his conviction that-"without any philanthropic cant the broad all for each-is as yet in the birth throes.It means a new alignment of principle of the good of China is the right one to go by," When international relations,and international civil services will be needed declining the post of British Minister at Peking he wrote to Lord to aid in shaping a future world policy.If so,the study of Hart's Salisbury-"The Service which I direct is called the Customs Service, character,experience,and methods may help in the solution'of some but its scope is wide and its aim is to do good work for China in every fundamental problems. possible direction."This principle he called his "touchstone",applying S.F.W. it impartially to every scheme and measure affecting China's interests, no matter who the advocates of such schemes.or measures might be. Oslo;31st December,1949. In that clear-cut principle he struck the bedrock of reality,namely,the recognition that foreign Powers seeking merely trade or their own North China Daily News;Shanghai:aist February,1928. aggrandisement,and "greedy for quick returns of profit"would in the end benefit neither themselves nor anyone else.He realised that the peace and welfare of the Far East,and of the world,are not served by the dominance of Western Powers in the affairs of Asia,a realisation which even today may serve as a signpost of danger.Time and again he sounded the warning that the Chinese will not for long submit to be run by any outside Power:they will control their own destiny,and work out their own salvation.It is not the cynic but the idealist who often has the finer perception of reality. Knowing China and the Chinese better perhaps than any other foreigner of his time he looked to the future with confidence,convinced that in the end China would win through."In the far off future",he wrote at a moment when China was in danger of partition,"it will all come right'again,for foreign domination will only end in making a greater China than ever."Today,in spite of civil war-evidence of a deep-rooted political split-in spite of the social,financial,and economic disorders which now rack'the country after nine years of bitter struggle against a powerful foe;and in spite of the colossal problem of remoulding the organisation of a vast continental area with its teeming millions from an outworn to a more modern and serviceable form,in spite of all this,Hart's prophecy is being fulfilled before our eyes.Slowly but surely the Chinese people are coming into their own; and towards that fulfilment,to the abiding honour of Great Britain, Hart's lifework made no small contribution. Nor is Great Britain the only gainer.Posterity will endorse the judgment that during the nineteenth century,and stretching into the twentieth,no single foreigner of any nationality made so favourable an impression on the Chinese as did Hart,and that no one contributed so much to the promotion of understanding and goodwill not only between Great Britain and China,but also between China and every State with which she came into contact.The great "I.G."still stands "the most interesting personality that ever figured in China,whose fame
xiv patrIotIsm, but he was firmly convinced that she was more sinned against than sinniI).g, and that it ill became foreigners to adopt towards 'her an a~t.itude of impatient fault-finding or of arrogant superiority. He chose a more excellent way. His approach was that of one who had a genuine admiration of Chinese character and culture, and who cherished a warm sympathy for the Chinese people. At ,the very outset of his career as Inspector-General, he :(ecorded his conviction that-"without any philanthropic' cant the broad principle of the good of China is the right one to go by," yvhen declining the post of British Minister at Peking he wrote to Lord Salisbury-"The Service which I direct is called the Customs Service, but its scope is wide and its aim is to do good work for China in every possible direction." This. principle he called his "touchstone", applying it impartially to every scheme and measure affecting China's interests, no matter who the advocates of such schemes. or measures might be. In that clear-cut principle he struck the bedrock of reality, namely, the recognition that foreign Powers seeking. merely trade or their own aggrandisement, and "greedy for quick returns of profit" would in the end benefit neither themselves nor anyone else. He realised that the peace and welfare of the'Far East, and of the world, are not served by, the dominance of Western Powers in the affairs of Asia, a realisation, which even today may serve as a signpost of danger. Time and again he ' sounded the warning that the Chinese will not for long submit to be run by any outside Power: they will control their own destiny, and work out their own salvation. It is not the cynic but the idealist who often has the finer perception of reality. Knowing China and the Chinese better perhaps than any other foreigner of his time he looked to the future with confidence, convinced that in the end China would win through. "In the 'far off future", he wrote at a moment when China was in daI?-ger of partition, "it will all come right' again, for foreign domination will only end in making a greater China than ever." Today, in spite of civil war--evidence of a deep-rooted political split-in' spite of the social, financial, and economic disorders which now rack' the country after nine years of bitter struggle against a powerful foe; and in spite of the colossal problem of remoulding the organisation of a vast continental area with its teeming millions from an outworn to a more modern and serviceable form, in spite of all this, Hart's prophecy is being fulfilled before our eyes. Slowly but surely the Chinese people are coming into their own; and towards that fulfilment, to the abiding honour of Great Britain, Hart's lifework made no small contribution. Nor is Great Britain the only gainer. Posterity will endorse the judgment that during the nineteenth century, and stretching into the twentieth, no single foreigner of any nationality made so favourable an impression on the Chinese as did Hart, and that no one contributed so much to the promotion of understanding and goodwill not only between Great Britain and China, but also between China and every State with which she came into contact. The great "I.G." still stands "the most interesting personality that ever figured in China, whose fame xv has spread to the four quarters of the globe, and whose romantic and illustrious career in the Far East is without a parallel.* Our' fate is to live between two ages, "One dead the other powerless to be born." Dominance based on' racial ~r national ~overeignty is-except for misguided megalomaniacs-an outworn Ideal;, but the ne,~ ag~-towards which we grope-an age of a wholesome commullIty hfe on a world-wide scale-each for all and ~ll for e~ch-is as yet in the birth throes. It means a new alignment of mternatlOnal relatIOns, and international civil services will be needed to aid in shapi?g a future' world policy. If so, the lltudy of Hart's character, expenence, and methods may help in the solution' of som.e fundamental pro,blems. S.F.W. Oslo; 31st December, 1949. * North China Daily News; S!langhai: 21st February, 1928
xvi INTRODUCTION ACKNOWLEDGMENTS The Unique Character of the Chinese Customs Service. Grateful acknowledgments are due to the late Sir Francis A.Aglen, China's Customs Service-"one of the most striking monuments K.B.E.,G.C.M.G.,formerly Inspector-General of the Chinese Customs ever produced by the genius and labour of any individualstands Service,and to his successor,Sir Frederick W.Maze,K.B.E.,K.C.M.G., unique among the civil services of the world,unique in its origin,unique for permission to make use of the voluminous Service archives,both at in the political vicissitudes through which it has passed,unique in the the Inspectorate and at the Ports;to the authorities concerned in London composition of its staff-counting in 1940 twenty-three nationalities and in Washington,who have so courteously allowed me to consult and among its members,unique in the fact that the head of that staff, make use of the British and the United States official records bearing on although chosen and appointed by the Chinese Government,was a the subject;to Lady Aglen for access to,and permission to use several foreigner enjoying till recently extraterritorial status,an anomalous series of letters from Hart to Archdeacon Aglen,from Hart to her privilege shared also by all the foreigners appointed by that head,and husband,Sir Francis Aglen,and from Hart to Captain Charles Stuart unique in the varied duties it has been called on to perform.In Forbes,R.N.;to the late Mr.Cecil A.V.Bowra,formerly Chief Secretary Theobald's often misquoted line-"None but itself can be its parallel." of the Chinese Customs Service,and on several occasions Officiating Inspector-General,for generously lending me a copy of the diary kept by Joint Chinese and foreign action in 1854 brought this Service into his father,E.C.M.Bowra,during his early days in the Service in the being for the purpose of enforcing the impartial administration of the eighteen-sixties;to Miss Evelyn W.Hippisley for extracts from the letters Chinese treaty tariff at a time when civil strife,lawlessness on land and of her uncle,the late Mr.Alfred E.Hippisley,formerly Commissioner in sea,mercantile defiance of authority and corrupt practices of both the Chinese Customs;and to the late Mr.E.O.Reis,also a Commissioner traders and officials had made that tariff,and the customs pro- in the same Service,for much assistance in deciphering and copying cedure enjoined by the treaties,more honoured in the breach than the observance. From its modest beginning,some ninety years letters. I am under deep obligation also to the librarians and staffs of the ago,it became,during those years,not simply China's foremost Customs Reference Library,Shanghai;the Tsing-hua University Library, revenue-collecting agency,providing an ever-increasing supply of Peiping;the Library of the Chinese Social and Political Science funds for the Central Government,the guarantee for the secure service Association,Peiping;the library of the North China Branch of the Royal of many of the Government's foreign and domestic obligations,but also, Asiatic Society,Shanghai;the British Museum Library;the Royal and predominantly,the sign and symbol of the "Open Door,"the pledge Library,Stockholm;the University Library,Oslo;the Mitchell Library, for equality of tariff treatment towards all and discrimination against Glasgow;the Queen's University Library,Belfast;the Linen Hall none,and the bridge over which during those nine decades flowed Library,Belfast;the National Library,Dublin;and the Library of Trinity smoothly and safely China's commercial intercourse with the nations of College,Dublin. the earth.History has shown that in China as elsewhere in the world,an Thanks,too,are due to all those-too numerous to list in detail- ill-managed customs establishment can be an intolerable clog on honest who have helped in ascertaining and checking information regarding trade;but from its inception the Chinese Customs Service made it one Hart's lineage,early days,and education,but among whom should be of its chief aims to protect and foster China's legitimate foreign trade, mentioned,Sir David Lindsay Keir,Vice-Chancellor of Queen's to indicate and record its lines of development,and to render every University,for granting access to the University records;Rev.Dr.T.J. reasonable facility for its successful transaction.In this,it has played Irwin,Principal of Wesley College,Dublin;the authorities of the Public its part in helping to break down prejudice,and to create and strengthen Record Office,Northern Ireland;Mr.T.G.F.Paterson,M.A.,Curator that mutual international understanding without which trade would of the Armagh County Museum,whose knowledge of all that concerns languish and decay. County Armagh and of its people,past and present,is as wide as his As a revenue-raising agency the success of the Service is proverbial generosity in placing that knowledge at the disposal of others;Mr.W.H. Prior to 1854-when the experiment of having foreigners on the staff of Wolsey of Portadown,a walking cyclopadia of information on old and the Chinese Customs was first tried at Shanghai-the revenue collected modern Portadown;Rev.F.J.Halahan,Rector of Drumcree;Rev.Canon at the custom houses throughout the Empire was only nominally Matchett,Rector of Hillsborough;Rev.John Hart of Lisburn;Mr.F.J. controlled by the Imperial Government,which followed the line of least Cole of Greenisland,County Antrim;and Mr.R.J.McNulty of the resistance by not interfering with either the collecting of the revenue or Downshire Estate Office,Hillsborough. its disposal,so long as the assessed quota was remitted regularly to Peking. Lastly,I wish to express my deep sense of obligation to the Senate Such quotas were based on the representations,or misrepresentations,of of the Queen's University for so generously permitting the publication of the officials engaged in the actual collecting of the revenue,but were this book under the agis of the University. supposed to equal four-tenths of the total collected:in practice the B
xvi ACKNOWLEDGklENTS Grateful acknowledgments are due to the late Sir Francis A. Aglen, K.B.E., G.C.;rv.LG., formerly Inspector-General of the Chinese Customs Service, and to his successor, Sir Frederick W. Maze, K.B.E., K.C.M.G., for permission. to make use of the voluminous Service archives, both at the Inspectorate and at the Ports; to the authorities concerned in London and in Washington, who have so courteously allowed me to consult and make u~e of the British and the United States official records bearing on the subject; to Lady Aglen for access to, and permission to use several series of letters from Hart to Archdeacon Aglen, from Hart to her husband, Sir Francis ,Aglen, and from Hart to Captain Charles Stuart Forbes, R.~.; to the late Mr. Cecil A. V. Bowra, formerly Chief Secretary of the Chmese Customs Service, and on several occasions Officiating Ir:spector-General, for generousl~ lending me a copy of the diary kept by h.IS father: E: C. M. ~owra, dUrIng his early days in the Service in the eIghteen-sIxtIes; to MISS Evelyn W. Hippisley for extracts from the letters of her ~mcle, the late Mr. Alfred E. Hippisley, formerly Commissioner in the Chmese Customs; and to the late Mr. E. O. Reis, also a Commissioner in the same Service, for much assistance in deciphering and copying letters. I am under deep obligation also to the librarians and staffs of the Cu.st?ms Referen~e Library, Shanghai; the Tsing-hua University Library, PeIpmg; the LIbrary of the Chinese Social and Political Science As~oc.iation,. Peiping; the l~brary of the North China Branch of the Royal A~IatIc SocIety, ShanghaI; the British Museum Library; the Royal Library, Stockholm; the University Library, Oslo; the Mitchell Library, G!asgow; the Queen's University Libr.ary, Belfast; the Linen Hall LIbrary, Belfast; the National Library, Dublin; and the Library of Trinity College, Dublin. Thanks, ,too, are due to all those-too numerous to list in detailwho have helped in ascertaining and checking information regarding Hart's lineage, early days, and education, but among whom should be n:er:tior:ed, Sir Da:id Lindsay Keir, Vice-Chancellor of Queen's Um.versIty, ~or grantmg access to the University records; Rev. Dr. T. J. Irwm, PrInCIpal of Wesley College, Dublin; the authorities of the Public Record Office, Northern Ireland; Mr. T. G. F. Paterson, M.A., Curator of the Armagh County Museum, whose knowledge of all that concerns County Armagh and of its people, past and present, is as wide as his generosity in placing that knowledge at the disposal of others; Mr. W. H. 'Volsey of Portadown, a walking cyclopredia of information on old and modern Portadown; Rev. F. J. Halahan, Rector of Drumcree; Rev. Canon Matchett, Rector of Hillsborough; Rev. John Hart of Lisburn; Mr. F. J. Cole of Greenisland, County Antrim; and Mr. R. J. McNulty of the Downshire Estate Office, Hillsborough. . Lastly, I wish to express my deep sense of obligation to the Senate of .the Queen's University for so generously permitting the publication of thIS book under the regis of the University. INTRODUCTION The Unique Character of the Chinese Customs Service. China's Customs Service-"one of the most striking monuments ever produced by the genius and labour of any individual"l-stands ?-nique am.o~g th~ ~iv~l services of the w~rld, unique in its origin, unique m the polItICal VICISSItudes through whIch it has passed, unique in the composition of its staff-counting in 1940 twenty-three nationalities among its members, unique in the fact that the head of that staff, although chosen and appointed by the Chinese Government, was a foreigner enjoying till recently extraterritorial status, an anomalous privilege shared also by all the foreigners appointed by that head, and unique in the varied duties it has been called on to perform. In Theobald:s often misquoted line-"~one but itself can be its parallel." Joint Chinese and foreign action in 1854 brought this Service into being for the purpose of enforcing the impartial administration of the Chinese treaty tariff at a time when civil strife, lawlessness on land and sea, mercantile defiimce of authority and corrupt practices of both traders and officials had made that tariff, and the customs procedure enjoined by the treaties, more honoured in the breach than the observance. From its modest beginning, some ninety years ago, it became, during those years, not simply China's foremost revenue-collecting agency, providing an ever-increasing supply of funds for the Central Government, the guarantee for the secure service of many of the Government's foreign and domestic obligations, but also, and pred~minantly: the sign and symbol of the "Open Door:' the pledge for equalIty of tarIff treatment towards all and discrimination against none, and the bridge over which during those nine decades flowed smoothly and safely China's commercial intercourse with the nations of the earth. History has shown that in China as elsewhere in the world, an ill-managed customs establishment can be an intolerable clog on honest trade; but from its inception the Chinese Customs Service made it one of its chief aims to protect and foster China's legitimate foreign trade, to indicate and· record its lines of development, and to render every reasonable facility for its successful transaction. In this, it has played its part in helping to break down prejudice, and to create and strengthen that mutual international understanding without which trade would languish and decay. . As a revenue-raising agency the success of the Service is proverbial. PrIor to I854-when the experiment of having foreigners on the staff of the Chinese Customs. was first tried at Shanghai-the revenue collected at the custom houses throughout the Empire was only nominally controlled by the Imperial Government, which followed the line of least resistance by not interfering with either the collecting of the revenue or its disposal, so long as the assessed quota was remitted regularly to Peking. Such quotas were based on the representations, or misrepresentations, of the officials engaged in the actual collecting of the revenue, but were supposed to equal four-tenths of the total collected: in practice the B 1
HART AND THE CHINESE CUSTOMS HART AND THE CHINESE CUSTOMS 3 Imperial Government was lucky if it received one-tenth.The Shanghai Western lines,but it was the Customs Seryice,by its resuscitation and experiment opened the eyes of the Peking authorities to the rich harvest support of the T'ung Wen Kwan at Peking,which enabled China to train that could be garnered when their Customs revenue was properly her first Diplomats and thus help to lay the foundation for her present controlled and reported. Six years later (1860)came the necessity of Diplomatic and Consular Service.Incidentally,too,it was through the having to pay a war indemnity to France and Great Britain, Customs Service that for many years China's Diplomats and Consuls and inthis task the infant.Service proved itself so invaluable received the funds necessary for their maintenance,while their families, an auxiliary,that on the liquidation of the debt in 1866 the left behind in China,were,through it,assured of their home allotments. Government decided that the foreign inspectorate was too useful On several occasions,too,it was the Customs that devised means which an organisation to be dispensed with.From then on,the financial for a considerable period carried the whole financial burden of the activities of the Service widened out:its chief preoccupation remained Diplomatic and Consular Service. the collecting and the reporting of the Customs revenue,but the 1860-1866 indemnity experience had pointed the way to the use of that In line with this fostering of China's representation abroad was the revenue as security for Government loans and of the Service as 'a reliable task,likewise assigned to the Customs,of getting together and arranging fiscal agent.From 1868 till the China-Japan war the Imperial Govern- at no fewer than 38 international exhibitions2 the collections illustrating ment-generally through the agency of the Inspector-General and always China's arts,industries,and trade.From the Paris Exposition of 1867 on the security of the Customs revenue-floated loan after loan,usually to that held at Liege in 1go5 it was the Customs Service that either for short terms of from five to ten years,to meet exceptional adminis- assisted in organising,or actually planned and executed for China,those trative expenses,while the provincial authorities-with,or sometimes displays of Chinese products which have helped the world to understand without,the sanction of the Central Government-were not slow to and appreciate something of the civilization,the art,and the culture of follow suit.Then came the war with Japan,when large long-term loans the Chinese people. had to be raised abroad to meet the outlay on the war and the indemnity Again,it was due to the Customs Service that the Government- imposed by the victors;to be followed five years later by the catastrophe after having finally disposed of the Taiping insurgents-was enabled to which laid on China the crushing burden of the Boxer Indemnity. take in hand the erection of lighthouses and aids to navigation along Through all this and subsequent financial distresses the Customs revenue China's coasts and waterways,so that before the recent Japanese invasion stood between the Government and bankruptcy-a fact so universally the China coast,with its numerous lighthouses-all of the most modern recognized that when the disruptive forces of the Revolution of 1911 type-and with its wireless beacons,was admittedly one of the best swept through the country it was instinctively to the Customs revenue- marked in the world.The Yangtse,too,that incomparable waterway of and to the Service collecting that revenue-that the Chinese Govern- internal trade,was also robbed of the dangers from its ever-shifting shoals ment and the foreign Powers alike turned for financial security.Once and channels,its fierce rapids,and its sunken rocks by the lightships, again it was the Customs revenue that averted bankruptcy,but in the buoys,beacons,and other aids,kept always in proper place by the arrangements that had then to be made it was the existence of the Service Customs Marine Department.It was this Department,too,in the days -an essentially Chinese institution with a cosmopolitan personnel- before the Hydrographic Bureau of the Chinese Navy,which carried out with its well-earned reputation for honesty and efficiency,that saved for the Government all needed surveys of coast,harbours,and rivers, China from being saddled with a foreign caisse de la dette. publishing numerous charts which are still in use,and it was on the work of this Department and with the active assistance of the Customs that the But China's Customs Service has been,and has done,much more Hydrographic Bureau was able to come into effective existence in 1932. than this.It has not been permitted to confine its attention to the ordinary Customs routine of preventing smuggling,examining cargo, Again,it was to the Customs that the Government entrusted the appraising goods,assessing,collecting,and accounting for duties,and of oversight of the harbours and of pilots and pilotage at the open ports, compiling reports and returns of trade,or to the related duties of caring and it was to the Customs that they turned for assistance when river for the service of foreign and domestic obligations secured on the Customs and harbour conservancy problems pressed for solution so that trade revenue.In the days when China had no diplomatic or consular agents and navigation might be facilitated.It was upon the Customs also,in abroad,and no returned students on whom the Government could call days prior to the existence of the National Quarantine Bureau,that the for help and advice in foreign affairs,the Customs Service,as a Chinese brunt of the task fell of supervising measures for the prevention of the institution with a staff of picked men from all the leading nations of the spread of.disease from ship-borne infection.Everything,in fact, world,became for the Government-principally through its head at connected directly or indirectly with foreign trade and shipping,whether Peking,but also in less degree through its Commissioners at the ports covered by treaty stipulations or.not,and everything dealing with the a trusted counsellor and guide to whom the Peking Government and the control and development of domestic trade,whether in foreign vessels provincial authorities alike turned readily for advice and assistance.That or in Chinese-owned foreign-style vessels,was automatically referred to function naturally fell into abeyance with the growth of a Diplomatic the Customs Service for whatever administrative action the situation Service and with the development in China of higher education on might call for
HART AND THE CHINESE CUSTOMS 2 Imperial Government was lucky if it r~ceived on~-~ent~: Th~ Shanghai experiment opened the eyes of the PekIng authontles to the nch harvest that could be garnered when their Customs revenue was pr~perly controlled and reported. Six years later (1860) came the necessl~y .of having to pay a war indemnity . to France ~nd Grea~ BntaIn, and in ,this task the infant SerVIce proved Itself so Invaluable an auxiliary, that on the liquidation of the debt in 1866 the Government decided that the foreign inspectorate was too useful an organisation to be dispensed with. From then on, the financial activities of the Service widened out: its chief preoccupation remained the collecting and the reporting of the Customs revenue, but the 1860-1866 indemnity experience had pointed the way to the use of that revenue as security for Government loans and of the Service as 'a reliable fiscal agent. From 1868 till the China-Japan war the Imperial Government-generally through the agency of the Inspector-General and always on the security of the Customs revenue-floated loan after loan, usually for short terms of from five to ten years, to meet exceptional administrative expenses, while the provincial authorities-with, or sometimes without, the sanction of the Central Government-were not slow to follow suit. Then came the war with Japan, when large long-term loans had to be raised abroad to meet the outlay on the war and the indemnity imposed by the victors; to be followed five years later by the catastro~he which laid on China the crushing burden of the Boxer Indenmlty. Throurrh all this and subsequent financial distresses the Customs revenue stood between the Government and bankruptcy-a fact so universally recognized that when the disruptive forces of the Revolution of 1911 swept through the country it was instinctively to the Customs revenueand to the Service collecting that revenue-that the Chinese Government and the foreign Powers alike turned for financial security. Once , again it was the Customs revenue that averted ba~kruptcy, but in t.he arrangements that had then to be made it was the eXIstence of the ServICe -an essentially Chinese institution with a cosmopolitan personnelwith its well-earned reputation for honesty and efficiency, that saved China from being saddled with a foreign caisse de la dette. But China's Customs Service has been, and has done, much more than this. It has not been permitted to confine its attention to the ordinary Customs routine of preventing smuggling, examining cargo, appraising goods, assessing, collecting, and accounting for d\,-ties, and. of compiling reports and returns of trade, or to the related dutIes of carIng for the service of foreign and domestic obligations secured on the Customs revenue. In the days when China had no diplomatic or consular agents. abroad, and no returned students on whom the Government could call for help and advice in foreign affairs, the Customs Ser;ice, as. a Chinese institution with a staff of picked men from all the leadIng natIOns of the world, became for the Government-principally through its head at Peking, but also in less degree through its Commissioners at the portsa trusted counsellor and guide to whom the Peking Government and the provincial authorities alike turned readily for advice and assistance. That function naturally fell into abeyance with the growth of a Diplomatic Service and with the development in China of higher education on HART AND THE CHINESE CUSTOMS 3 Western lines, but it was the Customs Service, by its resuscitation and support of the T'ung Wen K wan at Peking, which enabled China to train h~r first I?iplomats and thus help to lay the foundation for her present DIplomatic a~d Consular Service. Incidentally, too, it was through the Cus~oms SerVICe that for many years China's Diplomats and Consuls recelVed the funds necessary for their maintenance, while their families, left behind in China, were, through it, assured of their home allotments. On several occasions, too, it was the Customs that devised means which for a considerable period carried the whole financial burden of the Diplomatic and Consular Service. I~ lin~ with. this fostering of China's representation abr~ad was the task, lIkeWIse aSSIgned to the Customs, of getting together and arrangin'" at no fewer than !l8 international exhibitions2 the collections illustratin~ China's arts, industries, and trade. From the Paris Exposition of 186; to that held at Liege in 1905 it was t1;te Customs Service that either assisted in organising, or actually planned and executed for China, those displays of Chinese products which have helped the world to understand and appreciate something of the civilization, the art, and the culture of the Chinese people. Again, it was due to the Customs Service that the Governmentafter having finally disposed of the Taiping insurgents-was enabled to take in hand the erection of lighthouses and aids to navigation alonrr China's coast3 and watenvays, so that before the recent Japanese invasio~ the China coast, with its numerous lighthouses-all of the most modern . type-a~d with its wireless beacons, was admittedly one of the best :narked In the world. The Yangtse, too, that incomparable waterway of Internal trade, was also robbed of the dangers from its ever-shiftina shoals and channels, its fierce rapids, and its sunken rocks by the lightships, buoys, beacons, and other aids, kept always in proper place by the Customs Marine Department. It 'was this Department, too, in the days before the Hyclrographic Bureau of the Chinese Navy, which carried out for the Government all needed surveys of coast, harbours, and rivers, publishing numerous charts which are still in use, and it was on the work of this Department and with the active assistance of the Customs that the Hydrographic Bureau was able to come into effective existence in 19~2. Again, it was to the Customs that the Government entrusted the overs~ght of the harbours and of pilots and pilotage at the open ports, and It was to the Customs that they turned for assistance when riYer and harbour conservancy problems pressed for solution so that trade and navigation might be facilitated. It was upon the Customs also, in days prior to the existence of the National Quarantine Bureau, that, the brunt of the task fell of supervising measures for the prevention of the spread of' disease from ship-borne infection. Everything, in fact, connected directly or indirectly with foreign trade and shipping, whether covered by treaty stipulations or ,not, and everything dealing with the con.trol a~d development. of domestic trade, whether in foreign vessels or III ChInese-owned foreIgn-style vessels, was automatically referred to the Customs Service for whatever administrative action the situation might call for
HART AND THE CHINESE CUSTOMS HART AND THE CHINESE CUSTOMS Local revenue interests likewise have demanded their share of 5 attention,and so,with the Government's sanction,the Customs Service professors and students of the T'ung Wen Kwan,ranging from Martin's was entrusted with the collecting of such charges as the consolidated translation of Wheaton's classic work on international law,through tax at specified ports;river dues,bridge tax,and Haiho Improvement Billequin's books on chemistry-the first of their kind in Chinese-to surtax at Tientsin;breakwater dues at Chefoo;dike dues at Ichang, works on natural philosophy,law,English grammar,political economy, world history, Shasi,Hankow,Yochow,and Changsha;wharfage dues at Changsha, mathematics. physiology,astronomy,astronomical almanacs,and Yochow,Nanking,Shanghai,Ningpo,and Santuao;conservancy dues at Shanghai and Foochow;bund dues at Amoy;and mule tax at Tengyueh. In many cases this revenue-collecting activity on behalf of local authorities Educative also in the highest sense was the standard set by the carried with it administrative duties also,which varied in scope,accord- Service in its conception and performance of public duty.When wrestling ing to requirements,but which invariably had the approval of the in the early fifties at Shanghai with the shameless smuggling and the Central Government. inveterate Custom House corruption then prevailing,Alcock had again and again longed for an element of probity and vigilance in the In the absence of a Government printing office,the publication of administration of the Chinese Customs.Thanks largely to his efforts trade statistics and of trade reports necessarily fell on the Customs Service. that desideratum was at last secured.It proved in time to be the leaven At first the annual returns and reports were printed separately for each that leaveneth the whole lump.The high standard of honesty,efficiency, port,but during the sixties of last century this work was centred at and devotion to the public service raised by Lay was,if anything,set Shanghai,first at the Custom House and subsequently,in 1873,at the still higher by Hart,until it became recognized throughout the length Statistical Department specially created not only for this purpose,but and breadth of China by officials and people alike that the new model also for the publishing of numerous reports,memoranda,and papers Customs organization stood for cleanhandedness,for the just administra- dealing with a wide variety of subjects affecting China.Besides the voluminous Annual and Decennial Trade Reports and Returns of Trade, tion of the tariff and trade regulations,and for willing and competent service to the public.This is not to claim that all the members of the the Statistical Department of the Customs has issued a special series of Service were paragons of uprightness.There have been in its career some Medical Reports,a series of detailed Reports on Lights,Buoys,and cases of peculation of public funds and of individuals succumbing to Beacons (later incorporated in the annual Report of the Marine Depart- the temptation of bribes,or of making money by fraudulent devices;but ment),volumes of Inspector-General's Circulars,Regulations,and such offences have been rare,and when they did occur the culprits were Instructions,an authoritative collection of China's Treaties with Foreign exposed,denounced,and dismissed,and when possible made to suffer States,and scores of monographs dealing with such varied subjects as the full legal penalty of their crime.The spirit animating the great opium,tea,silk,Chinese music,medicines,jute,currency,railways,and majority of the members of the Service came to be one of unflinching inland taxation,land tax,transit pass procedure,furs and skins, opposition to any form of malpractice within their ranks.A delinquent dangerous cargo,collection and disposal of the revenue,smuggling, was regarded not simply as a breaker of the law of the land,but also,and hospitals,junk dues,typhoon anchorages,sycee,Haikwan banking. much more,as a traitor to the reputation and fair name of the Service. system,likin,bonding,salt,Native Customs,ginseng,timber rafts on the The value of that precedent to China is incalculable. Yangtze,and river conservancy.By 1940 the Statistical Department,with its trained staff,its up-to-date printing plant,and its full equipment of It was the Customs Service also which organized,and for many years electrically controlled tabulating machines,was turning out work which administered,what is now the National Post Office of China.In for technical excellence was the envy of other Governments. effecting this the Inspector-General had to bear in mind that the high Akin to this diffusion of knowledge through official publications Chinese officials were not likely to favour the suppression of the must be ranked the enlightenment on things Chinese spread by the immemorial I Chan or official courier post,that commercial and vested linguistic,literary,scientific,and historical works of distinguished interests would be opposed to the closing down of their long-established members of the Service.Among such should be mentioned the numerous Min Chi,or popular letter hongs,and that local foreign post offices and varied studies of Edkins,the dictionaries of Stent and Hemeling,the functioning at the treaty ports before handing over their mail matter translations of Brewitt-Taylor and of Lyall,the linguistic and historical would have to be satisfied with the regulations and arrangements booty garnered by Hirth,the ornithological studies of La Touche,the proposed,and convinced that the staff would be able and honest enough botanical discoveries of Augustine Henry,the numismatic investigations to give effect to them.By the Treaty of Tientsin(Article IV)the Govern- of Schjoth,the economic enquiries of Hippisley and of Daae,the ment was in effect bound to permit the carriage of Legation mails,and monumental historical works of Morse,and the lighter more descriptive this meant,for the winter months,the establishing of a mounted courier historical and political writings of Bland and of Putnam Weale (B.L. service from Peking to Chinkiang via Tientsin.In the autumn of 1865 Simpson),both of whom in their early days in China had been members the Tsungli Yamen entrusted this task to the Customs.That was the of the Service.The interpreting of the West to the Chinese was essayed beginning.Post offices had to be established at the Inspectorate General in the numerous educational works in Chinese produced by the in Peking and at the Custom Houses in Chinkiang,Shanghai,Tientsin, Chefoo,and Newchwang.Out of this was evolved the Customs Post,and
4 HART AND THE CHINESE CUSTOMS Local revenue interests likewise have demanded their share of attention, and so, with the Government's sanction, the Customs S.ervice was entrusted with the collecting of such charges as the consolIdated tax at specified ports; river dues, bridge tax, and ~aiho Improvement surtax at Tientsin; breakwater' dues at Chefoo; dIke dues at Ichang, Shasi, Hankow, Yochow, and Changsha; wharfage dues at Changsha, Yochow, Nanking, Shanghai, Ningpo, and Santuao; conservancy dues at Shanghai and Foochow; bund dues at Amoy; and mule tax at Tengy?~h. In many cases this revenue-collecting activity on behalf of local authorIties carried with it administrative duties also, which varied in scope, according to requirements, but which invariably had the approval of the Central Government.4 In the absence of a Government printing office, the publication of trade statistics and of trade reports necessarily fell on the Customs Service. At first the annual returns and reports were printed separately for each port, but during the sixties of last century this work :vas centred at Shanahai o first at the Custom House and subsequently, In 1873, at the , , Statistical Department specially created not only for this purpose, but also for the publishing of numerous reports, memoranda, and papers dealing with a wide variety of subjects affecting China. Besides the voluminous Annual and Decennial Trade Reports and Returns of Trade, the Statistical Department of the Customs has issued a special series of Medical Reports, a series of detailed Reports on Lights, Buoys, and Beacons (later incorporated in the annual Report of the Marine Department), volumes of Inspector-General's Circulars, Regulations, and Instructions, an authoritative collection of China's Treaties with Foreign States, and scores of monographs dealing with such varied subjects as opium, tea, silk, Chinese music, medicines, jute, currency, railways, :nd inland taxation, land tax,_ transit pass procedure, furs and skms, dangerous cargo, collection and disposal of the rever:ue, smuggli~g, hospitals, junk dues, typhoon anchorages, sycee, HaIkwan bankmg, system, likin, bonding, salt, Native Customs, ginseng, timber rafts on the Yangtze, and river conservancy. By 1940 the Statistical Depart~ent, with its trained staff, its up-to-date printing plant, and its full eqUIpment of electrically controlled tabulating machines, was turning out work which for technical excellence was the envy of other Governments. Akin to this diffusion of knowledge through official publications must be ranked the enlightenment on things Chinese spread by the linguistic, literary, scientific, and historical works of distinguished members of the Service. Among such should be mentioned the numerous and varied studies of Edkins, the dictionaries of Stent and Hemeling, the translations of Brewitt-Taylor and of Lyall, the linguistic and historical booty garnered by Hirth, the ornithological studies of La Touche, the botanical discoveries of Augustine Henry, the numismatic investigations of Schjoth, the economic enquiries of Hippisley and of Daae, the monumental historical works of Morse, and the lighter more descriptive historical and political writings of Bland and of Putnam Weale (B. L. Simpson), both of whom in their early days in China had been members of the Service. The interpreting of the West to the Chinese was essayed in the numerous educational works in Chinese produced by the HART AND THE CHINESE CUSTOMS 5 profess~rs and students of the T'ung Wen Kwan, ranging from Martin's tr~nslat~o~ of Wheaton's ~lassic work on international law, through BIllequm s books on chemIstry-the first of their kind in Chinese-to works on. natural phi~osophy, law, English grammar, political economy, world hIstory, phYSIOlogy, astronomy, astronomical almanacs and mathematics. ' .Ed1fc~tive also ~n the highest sense was the standard set by the ~ervIce m Its con.ceptIOn and pe:for~ance of public duty. vVhen wrestling ~n the early fiftIes at ShanghaI with the shameless smuggling and the mveterat: Custom House corruption then prevailing, Alcock had again and. a?am .longed for an element of probity and vigilance in the admmIs~ratIOn of the Chinese Customs. Thanks largely to his efforts that deSIderatum was at last secured. It proved in time to be the leayen that leaver:eth the whole lump. The high standard of honesty, efficiency, a~d d~votIOn to the public service raised by Lay was, if anything, set stIll hIgher by Ha~t, until it ?ecame recognized throughout the length and breadth of Chma by offiCIals and people alike that the new model C:ustoms organ~zation stood for cleanhandedness, for the just administratIOn. of the tarIff a~d tra~e ~egulations, .and for willing and competent serVIce to the publIc. ThIS IS not to claIm that all the members of the Service were paragons of uprightness. There have been in its career some cases of pe~ulation ?f public fund.s and of individuals succumbing to the temptatIOn of brIbes, or of makmg money by fraudulent devices; but such offences have been rare: a~d when they did occur the culprits were exposed, denounced, and dIsmI~sed, and when possible made to suffer the. f~ll legal penalty of their crime: The .spirit animating the great majorIty of the members of the SerVIce came to be one of unflinchino' opposition to any form of malpractice within their ranks. A delinquen~ was regarded not simply as a breaker of the law of the land, but also, and much more, as a traItor to the reputation and fair name of the Service.' The value of that precedent to China is incalculable. !t.was the Custo~s Service also which organized, and for many years admmIstered, what IS now the National Post Office of China. In effecting this the Inspector-General had to bear in mind that the hio'h ~hinese officials were not likely to favour the suppression of tIle ~mmemorial 1 Clzan or official courier post, that commercial and vested , Interests would be opposed to the closing down of their Iona-established Min .Ch~, or popular letter hongs, and that local foreign 0 post offices functIOl1lng at the treaty ports before handing over their mail matter would have to be satisfied with the regulations and arrangements proposed, and convinced that the staff would be able and honest enouo'h to give effect to them. By the Treaty of Tientsin (Article IV) the Govel~lm~nt was in effect bound to permit the carriage of 'Legation mails, and thIS .meant, for t~e winter months, the establishing of a mounted courier serVICe from Pekmg to Chinkiang via' Tientsin. In the autumn of 18G~ the Tsungli Yamen entrusted this task to the Custorr'!s. That was th~ ?eginn.ing. Post offices had to be established at the Inspectorate General In Pekmg and at the Custom Houses in Chinkiang, Shanghai, Tientsin, Chefoo, and Newchwang. Out of this was evolved the Customs Post, and
