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DR.
D27 JUL 1972
H.M. DIPLOMATIC SERVICE
DEPT.
or POST
Lil.
No. FEC 3/540/10
FILE No.
TITLE: STATUS OF
IN United Kingdom
Univers
REFER TO
NAME
(and dept. when necessary)
(Part
)
CHARGÉ D'AFFAITES
of CHINA
REFER TO
TO SEE:
NAME
DATE
(and dept, when necessary)
TO SEE:
DATE
(-37.12|
Rey
Lot LVA PA?
Weeded
|| 12/
1512
1/10
REFER TO
NAME
TO
DATE
(and dept, when necessary) SEE:
FCO 21/670
8
426
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we upgrading slip must be affixed when ever necessary.)
document contained in it. The
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YEAR STAMP
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:
1
I
Ꮀ
1
CONFIDENTIAL
Mr. Wilford
Miss Beas
Private Office
Aquees. 1.8. Аднад
18
13
many like to see this
41.
mer
Tels sent for
despatch.
J.M.
S.I
STATUS OF OUR CHARGE ATTAIRES IN PEKING
Problem
When Mr. Denson was appointed to be Head of Mission in
Peking in February 1969, he was sent as Chargé d'Affaires
ad interim, and so described in the telegram from the then
Secretary of State to Mr. Ch'en Yi of 22 February 1969.
Protocol Department consider that as the appointed Head of
Mission, he should really have been Chargé d'Affaires
en titre from the beginning.
Chinese that he has been appointed Chargé d'Affaires
en titre?
Recommendation
Should we now inform the
2. I recommend that we should inform the Chinese that
Mr. Denson has been appointed Chargé d'Affaires en titre.
A telegram to Peking is submitted, together with the
appropriate message from the Secretary of State to the
Chinese Foreign Minister. Protocol and Conference
Department concur.
Argument
3. In 1969 Mr. Demson succeeded Mr. Cradock, who was
Chargé d'Affaires ad interim following the departure of
/Sir Donald Hopson.
LAST PAPER
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-
This
Sir Donald Hopson. At that time we were concerned to show
that our relations vere far from being regarded by us as
normal, and Mr. Denson was appointed as Chargé d'Affaires
ad interim. The Chinese had withdrawn their Chargé
d'Affaires en titre, Mr. Hsiung, in 1966, and we wished to
keep open the option of sending a Grade 3 Officer.
we do not intend doing at least until Mr. Denson has
completed his tour in Easter 1972. Since then our relations
have improved steadily: in 1970 we have seen the release of
all those detained British subjects about whom we have
expressed particular concern. The Chinese Chargé d'Affaires,
Mr. Ma, has asked me several times recently when we proposed
to appoint a Chargé d'Affaires en titre. It could be that
Mr. Hsiung would now return if we raise Mr. Denson's status.
I think that, after the release of Mr. Johnston, this would
be an appropriate moment.
4. Mr. Denson is well regarded in Peking and respected by
the Chinese. I do not consider that this appointment would
be seen as a slight to the Chinese by downgrading the post.
5. His appointment will not improve his access to the higher levels of the Chinese Foreign Ministry, but it should mean that he will no longer be placed automatically at the bottom of every diplomatic function which he attends
BK (Mr. Denson's letter of 11 December 1970).
The Chinese
customarily place Chargés d'Affaires en titre after Ambassadors but before Chargés d'Affaires ad interim. gesture will be useful in indicating our interest in
raising gradually the level of representation.
The
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/6.
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6.
Paragraph 6 of Mr. Denson's letter of 15 December to
me records that the idea would be acceptable to him.
7.
A background note, prepared by Research Department,
sets out the history of our level of relations.
Hiio
Copies to:-
SALMugan
am
not convincay that
(J. A. L. Morgan) 30 December 1970
të Tuzome will
}
great advance by Mi
What M! Ma meant
Protocol and Conference Department Sir 9. Tomlinson
Personnel (Operations) Department
really
fure that
askip
we should
sent back a
Chage
on time
woo when winds are replace
CONFIDENTIAL
3 -
Si D. Hope
level
is
ar Grade 3
Never thelast-do
not see any reason for not
M?
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Ku hoffe
(3/10)
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enter
TL
12
S.M.
22.12
Office of the British Chargé d'Affaires
FEKING
TEC
11 December 1970
ZA
Dear John,
Thank you for your letter of 27 November about diplomatic precedence. 2. I am afraid that even now I may not have made my point quite clear. There has never been any doubt about where the Chinese now place Chergés d'Affaires en titre, that is to say immediately after Ambassadors and immediately before all Chargés d'Affaires ad interim. This is where my Dutch colleague is placed. Apparently this was not always so, but, according to paragraph 5 of the memorandum by Far Eastern section of Research Department dated 26 November, enclosed in Appleyard's letter to Allan of 3 December, the Chinese accepted our practice in 1954. I should certainly not wish the Chinese Chargé d'affaires ad interim in London to be given the same precedence as if he were Chargé d'Affaires en titre. You state that Ma takes his place among the Chargés d'Affaires ad interim "strictly in terms of the length of time" he has been in London. In fact, I presume you mean the length of time he has been Chargé d'Affaires ad interim since Na was in fact in London when Shen P'ing was Charge d'Affaires ad interim after the departure of Hsuing. I also presume that Ma's seniority is not affected by occasional temporary absences from London such as his visit to Faris. The point I am trying to establish is whether we draw a distinction between Chargés d'affaires ad interim of Embassies on the one hand and of Offices on the other, a practice for which, as I said in paragraph 1 of my letter of 14 November, Satow lends some support. It appears from your letter that we do not and that all Chargés d'Affaires are treated alike. This means that in due course F'ei will work his way up the ladder as a has done whereas, irrespective of how long I stay in Feking, I shall remain permanently at the bottom, Perhaps you could confirm this and say whether Irotocol Department also regard the relative placing of Chargé. d'Affaires ad interim as a matter under which they are bound by the Vienna Convention and hence would be unable to discriminate against the Chinese?
3. If the situation is as I have stated, then I am afraid that there is nothing to be done here. The Doyen is totally ineffective and would not say boo to a Deputy Section Chief in Protocol Department even though his own position were affected. But I will continue to keep you posted about my treatment and you can judge whether there is another suitable occasion for you to raise it.
2.A.L. Morgan, Esq.
Far Eastern Department
Foreign and Commonwealth Office
S.W.1
Yours ever John
(J.B. Denson)
VALOIDENTIAL
TOP COPY
CYPHER/CAT'A'
CONFIDENTIAL
ROUTINE FOREIGN AND COMMONWEALTH OFFICE
TO PEKING
TELEGRAM NUMBER 456
22 DECEMBER 1970 (FED)
CONFIDENTIAL. 221910Z.
10
YOUR TELEGRAM NUMBER 838.
YOU ARE RIGHT THAT THE CHINES PROCEDURE IS INCORRECT, STRICTLY SPEAKING, THEY SHOULD HAVE SENT A TELEGRAM FROM CH'EN YI. THE CHINESE CLEARLY HAVE A GENUINE DIFFICULTY OVER HIS ABSENCE AND WE SHOULD PREFER NOT TO MAKE AN ISSUE OF THIS MATTER, PARTICULARLY IN THE LIGHT OF JOHNSTON'S FORTHCOMING RELEASE, WE SUGGEST THEREFORE THAT YOU SEND A ROUTINE ACKNOWLEDGEMENT.
DOUGLAS-HOME.
FILES:
F.E.D.
P.& C.D.
P.U.S.D.
MR. VILFORD
SİR S. TOMLINSON
"
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NOTHING TO BE WRITTEN IN THIS MARGIN
Registry No.
DEPARTMENT
ED
Date and time (G.M.T.) telegram should
reach addressee(s)
Despatched
SECURITY CLASSIFICATION
Top Sporer
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2219102
En Clair. Code
[
Privacy marking -if any
1..
PERITO
(date)
Cypher/
Draft Telegram to:---
Peking
No. 2156
(Date) 22/1
And to:-
[Codeword-if any)
Addressed to
telegram N.........
And to
repeated for information to
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יויו-וויי
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Repeat to:--
Saving to:-
Distribution:
Your telegram number 838.
You are right in suggesting that the Chinese
procedure is incorrect. Strictly speaking, they
should have sent a telegram from Ch'en Yi,Farenga
clearly Mübistan. te-ne. Howeres, the Chinese have a
genuine difficulty over the absence of Chien It and
we should prefer not to make an issue of this matter,
particularly in the light of Johnston's forthcoming
release. We suggest therefore that you send a
Hte acknowledgement.
writing
Files
FED
18001
24/10/10
Protocol and
Conference Dept.
PUSD Mr. Wilford Copies to:-
$ 22/02
SM.
22.12
A d
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CYPHER/CATA
ROUTINE PEKING
TELEGRAM NUMBER 838
SCHFIDENTIAL 2180LOZ
CONFIDENTIAL
TO FOREIGN AND COMMONWEALTH OFFICE
21 DECEMBER 1970
F
Ec psaglio
I
WE HAVE RECEIVED A THIRD PERSON NOTE DATED 21 DECEMBER
FROM THE MINISTRY OF FOREIGN AFFAIRS STATING THAT MR. MA
WILL SHORTLY LEAVE AND UPON HIS DEPARTURE MR. P'EI TSIEN-
CHANG WILL TAKE UP THE POST OF CHARGE D'AFFAIRES AD INTERIM
OF THE OFFICE OF THE CHINESE CHARGE D'AFFAIRES
IN LONDON.
WE ARE ASKED TO CONVEY THIS INFORMATION TO THE QUOTE FOREIGN
AND COMMONWEALTH OFFICE OF THE UNITED KINGDOM UNQUOTE
2.
ACCORDING TO OUR PROTOCOL, THIS PROCEDURE IS INCORRECT
AND YOU WILL NO DOUBT WISH TO POINT IT OUT TO THE CHINESE.
PENDING YOUR COMMENTS, WE SHALL NOT ACKNOWLEDGE THE NOTE
MR. DEBON
FILES:
F.EAJZERI D.
PROT.& COH.D.
P.U.3.D.
KM. VELFORD
DODDD
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C
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L
Sednulo Chanel 3*1steiros
Mim
21 December, 1970
Despatched
22/12
AWR
2.
▲ P.5. to my letter of 17 December.
Mr. E duly poid his farowall calls on Er. Royle and Kichael wilford (tir 3. Tomlinson was on leave) on 21 December. Hr. Royle olad that he had hoped Mr. Ka would have given us information about Er. Johnsten's impending relcuao as a farewell prezent. Kr. Ea said
that he had hoped to see the over 70 patriotic compatriots as hie fareveli present. He added that 25. Johnston's
etse was unior coraideration by the appropriate authorition (no mention of soon).
3.
Otherwise it was all very cordial with lir. Ka trying hard to say friendly things.
J. B. Denson, Esq., 0.3.E.,
PASIO.
Copies toi
A. P. Haddocka, Esq.1 ното иска.
J. D. I. Boyd, Esq., WASUINOTON.
+
RAJERICHO
(J. &. L. Horgan)
+
+
Fi
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AND O NIJE
enter
SM
22 12
Office of the British Chargé d'Affaires
FEXING
15 December 1970
L
رقی
Dear John,
In your letter of 13 November you reported some interesting remarks Lade by Na at a dinner on 1 November about the level of representation at this Post. The following are some personal and entirely informal comments which you may like to have in your mind when the in tter is discussed in the Office. They are in no sense recommendations.
2.
As regards an exchange of ambassadors, the Chinese have made it clear on a number of occasions that the two major stumbling blocks are our vote in the United Nations and our attitude to the status of Formosa which they may regard the existence of a Consulate at Tansui as symbolising. At the next General Assembly we may vote in a way which the Chinese consider satisfactory, that is to say if the "Important Question" resolution is not again put or if it is, we oppose it, or in other circumstances do not support any other resolution such as one one divided nations which the Chinese would regard as a device to block their entry. The question of Taiwan seens altogether more intractable and as I understand the present trend of thinking in London, we are unlikely to change our attitude either on the juridical status of the island or decide to close down the Consulate. Despite the fact that He did not specifically mention the Consulate, I have doubts as to whether the Chinese would consider our attitude satisfactory so long as it remains open. I think, therefore, that we can for the present put aside any idea of an exchange of ambassadors. We can, however, take the line that we are quite ready for an exchange but it is the Chinese who continue to impose conditions.
3. It is interesting that Ka should have three times asked when we intended to send back"a Chargé d'Affaires en titre. This suggests sone desire on the Chinese part to achieve at least a measure of greater normalisation in their relations with us. This is probably part of their general policy of improving relations all round and demonstrating to the world at large that even when there have been severe strains in the past and difficulties still exist, they now wish to develop normal diplomatic contacts. (In this context it is significant that at a recent dinner given by Chinese officials for the Yugoslav Ambassador and Yugoslav trade representatives, the senior Chinese said out of the blue
C.A.L. Morgan, Esq.
Far Eastern Department
Foreign and Commonwealth (ffice
LUNDI, S.W.1
PERSONAL AND CONFIDENTIAL
/that...
next
FERSONAL AND CONFILESTIAL
that the burning of our Mission in 1967 had been the work of extremists and implied that the Chinese Government should be dissociated from it. This is, as you know, not the first time that this has been said.) The fact remains, however, that it was the Chinese who withdrew their Chargé d'Affaires en titre in January 1967 for reasons to do with the Cultural Revolution and föllowing the burning of the Mission held our Chargé d'Affaires prisoner for a year virtually compelling us to lower the level of our representation if for no other reason because no suitable office and residential accommodation was available. In equity, therefore, it is for the Chinese to take the initiative in sending back a Chargé d'Affaires en titre. Other objections to our making this gesture would presumably be the continued detention of British subjects, particularly Johnston which Mr. Royle recently described as a "serious obstacle" to an improvement in our relations.
4. We might, however, consider it worthwhile making a gesture if there were benefits to be gained from raising the level of representation here or having a higher level of Chinese representation in London. Undoubtedly such a move would improve the atmosphere and might eventually
But from the yield fruits in the political and commercial fields. practical short-term point of view in Feking, I think that apart from the anomalies of my being a "permanent" Chargé d'Affaires a.i. (about which we have had separate correspondence) and the level of routine access to Chinese officials, it does not make too much difference whether we have a Chargé d'Affaires a.i. or en titre. Only ambassadors (and not all of them) see Chou En-lai. I can, if I so wish, see a Vice- Minister. If a Foreign Minister is appointed, it is possible that I might have difficulty in seeing him but if the question were important enough, he might recive me and if not, whatever representations were made would be relayed by a senior official. On the political reporting and trade side, provided the calibre of the staff is maintained, I venture to suggest we do not lose much by being represented at a lower level. In the state of relations which are likely to persist between the United Kingdom and China, it is scarcely conceivable that we should be able to give the Chinese advice (I doubt if anyone does), though in certain circumstances, for example if a conference on Indo-China were in prospect, a more senior representative could bring greater weight to bear.
5. You are better placed than I to judge the position at the London end but as I see it, the present working relationship is good and we will lose little if it does not change for the moment.
At
6. All the foregoing suggests that we should play the and long. this point I shall have to bring in some factors affecting my personal position. When I spoke to Derek Day in the summer, I agreed that if it was thought desirable I would be prepared to stay on in Peking until about Easter 1972 at the latest. This would have the advantage of my being here for the Inspection which is to take place in November, December of min year and would enable me to have the Office and the Louse in smooth running order for whoever takes over. I am still content
A to stick to this timetable if it is acceptable for wider reasons. convenient time to review the position might be in the autumn of next year by which time we shall be considering our vote in the General Assembly and we shall have seen whether there has been any progress in
ÞERSONAL ND CONFIDENTIAL
/the...
VERSONAL AND CULFIDENTIAL
the release of further British subjects, particularly Johnston. You might then consider whether there was justification for our taking the initiative in raising the level and possibly use such a change as a card with the Chinese. The change could then be made (or not as the case night be) when I leave in 1972.
6. If a gesture were thought desirable for any reason at an earlier stage, it might be made by raising the representation from ad interim to en titre but leaving e where I am for the moment and deciding leter whether the post should revert to Grade 3. The change would have to be presented to the Chinese in some way as a "promotion".
Since I have earlier suggested that in practical terms we should not gain much by such a change, you may think this is only because I would like to sit next to Derksen on official occasions and chatter about music. But I leave the idea with you.
Yours ever, Jam
(J.B. Jenson)
PERSCHAL AND CONFIDENTIAL
ká jisoofia
RISTRICTED
Despatche
17 Desember, 1970
17/12
DR
5
Thank you for your letter of 1 December about P'i hisn=tsang" (ean we agree on this spelling?).
2.
On 7 December the Chinese Office asked whether P'ei could call on me. I offered his that afternoon, but was told that I suspect that this meant that he had not
He eventually came on 9 December te dinner with
teo tired.
yet read all the briefu.
and he, Hn and Chiang
16 December.
has asked not
3. Ma is leaving on 28 December by BKA to be searched. Fermal notific-tim of P'ei will be made you in Peking. Then I enquired whether Ir. Høimg's name should be kept on the list, be said that he had not yet been ziven instructions.
Ma said that he hoped on return to go to work in the countryside. I Zound Fei lively, well informed and with a good sense of humour. He said he had three children, 19, 13 and 11, and that his wife would join him after the Spring Festival. He had beam ofurated at a "sort of university" at
Taing tas.
5. In the course of our talks I left P'ei in no doubt that the main obstacle in our relations was the continued detention af British subject:, in particular Johnston. P'si replied at length on the usual lines. À now these repeated on both oocasions war think the relatives of the confrontation prisoners in Hong Kong ware growing indignant at their continued detention. While not vinhing to read too much into this, say change ef wording is notsvertay. It could be a warning iight that popular indignation on this matter kight now need to be demon- strated in Hong Kong. Um Jojnaton, kis wording was also #lightly dife, ant, in paying that "departments concerned would soon deal with his case", I explained at length the family unyent of christusa and said that release by then would be particularly well received.
He devoted a great deal of tina to our "unsatisfactory attitude" to the Important Item Rosolution, nad repeated that it was a bar to any shange in the level at our representation, À now line on this was that he said we were breaking one of the tive principàss of poncesful so-ezistonsej that relating to
J. 3. Denson, Kuq., 0.3.I.,
/ territorial
AMINA
JOTER
し
RESTRICTED
territorial integrity, by maintaining
ay
consulate on Taiwan
7. I handed Vr, P'ei my letter to Ka of 9 December about 49-51 Portland Plses and went over it again at dinner, They still favour knoeking the building down and want us to secure permission for them from the Festminster City Council. They have not yet formally requested us to do so and I shall keep trying to ride them off is.
I have agreed with IAD that "'ei should be given, a aponeered journey.
Te cas de this for new Honda of Missions
of the "peerer or less developed" countries. I have told P'ei that whan he has taken over, he should let us know his wishes on the sert of things he would like to see. give hin a fully-paid conducted tour to Sectland, Oxford and Janbridge, a new tom, and such-like. I have unde sleur
thet similar facilitiše for you would be welcome.
se
Condes tos
(8. A. L. Morgan)
J. M. I. Boyd, a#...", FASHINGTON A. X. Kaddoaks, Eng., HONG KONG
Löir 3. ToniĒJU OR
Mr. Wilford
Kiss Dens
PURD
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RESTRICTED
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SM 259 22.m
Kr. Wilford
Miss Dear
Mr. Mary's
F.E.D.
Thank you.
Farewell Call by the Chinese Chargé d'Affaires
Mr. Ka Chia-chun is paying a farewell call on TFC
Mr. Royle on 21 December at 4 p.m. Subsequently he will
be calling on Mr. Wilford and myself.
2. I suggest that the meeting with Mr. Royle need only
take a few minutes and be limited to courtesies. Mr. Royle
might say that in Mr. Ma's seven years in London there have
been noticeable ups and downs in our relations.
Happily
they now seem on the up trend. I would hope that Mr. Royle
would re-affirm to Mr. Ma the concern that exists over the
continued detention of Mr. Johnston.
3. I attach a copy of the record of my latest conversation
with him as additional background.
Copy to: Sir S. Tomlinson
Enterapla
SALMungan
(J. A. L. Morgan)
17 December, 1970
Ma has hear a goot friend,
shalles
|MA221,
RESTRICTED
him wife
7
Whom int
P.J.S. DY GIR
enter
17/12
+
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OFFICE OF THE BRITISH
CHARGE D'AFFAIRES,
PEKING.
1 December, 1970
86 (c)
Dear Join,
Ecosy
Thank you for your letter of 13 November about your dinner party with Ma. The discussion about a possible exchange of Ambassadors and the resumption of relations at the level of Chargé d'Affaires en titre was most interesting and I shall be commenting later.
2.
This letter is merely to let you know that Plei Chien- trang 24 November and I invited him to dinner two days
Mr. P'ei Tsien-chang called on me at the Office on
later. I also invited Mr. Shen F'ing but he was unable to come at the last moment because of influenza (genuine I think), the only other Chinese present was Chang Yi-chün. P'ei turned out to be very agreeable and we had quite a jolly evening. He drank very little and ate sparingly except for the cake. He said little of substance and I think you will find that he will take some time to develop confidence after he reaches London. He is a native of Shantung. His wife, who is in Feking, will, he says, follow him to London. They have three children none of whom will come. The two eldest are in their late teens and are "working", the other is at school. He says he can read some English but cannot speak any. He certainly understood a certain amount.
3.
-
Since F'ei was not disposed to take the initiative he did not for example comment on our vote in the U.N. I thought that we in turn would stick to non-controversial subjects. I therefore talked about the delivery of the letters, about the direct telephone link (on which we have telegraphed to you), and also about the possibility of developing
J. A. L. Morgan, Esq.,
Far Eastern Department,
Foreign and Commonwealth Office.
CONFIDENTIAL
/cultural
12...
CONFIDENCIAL
cultural and sporting exchanges. I mentioned that previously there had been Chinese students in the United Kingdom and English teachers in this sountry and that we considered such exchanges valuable. P'ei assented but gave no indication that the Chinese wished to resume them. I said half-jokingly that we would like to see some revolutionary operas in London. I suppose in due course the Chinese may get round to sending opera troupes abroad and some British impresario might be interested. F'ei told me, incidentally, that the Chinese had received an invitation from the British Table Tennis Association to send a team to London. No reply has apparently yet been sent.
4.
The one point of substance P'ei did raise was the Chinese desire to get on with the new building in London. I made the appropriate response emphasising that the Foreign and Commonwealth Office did not have the real say in this matter. We had not even been able to put up a new building for ourselves though this had been mooted for the last twenty-five years!
5.
I am sending a copy of this letter to Arthur Maddocks in Hong Kong and John Boyd in Washington.
docks
Copied to:
A. F. Maddocks, Esq.,
font font
J. D. I. Boyd, Esq.,
W: shington
Yours
Jam
(J. B. Denson)
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CONFIDENTIAL
Reference
FEC 3/548/10
Mr. Stow (Protocol and Conference Department)
Diplomatic Representation in London and Peking
You will be interested to see the Research Department paper at Flag A below, setting out the history of the present level of diplomatic representation in Peking and London. In the light of this paper, and the earlier minuting and exchange of letters between Mr. Morgan and Mr. Denson, we should be grateful for your comments on:-
(a) Whether the wording used on page 137 of the 1970 Diplomatic Service List is correct: you will see that the section on China in the list of Chargé d'Affaires describes Chargée from Mr. Lamb in 1951 to Mr. Wilson in 1957 as Chargé d'Affaires ad interim, but Mr. Garvey and Sir Donald Hopson as Chargé d'Affaires, while Mr. Denson' is again listed as Chargé d'Affaires ad interim from January 1969. This practice appears to have been followed for some years.
(b) What the implications would be in terms of protocol if we made Mr. Denson Chargé d'Affaires en titre.
LV. Appleyard;
(L. V. Appleyard) Far Eastern Department 9 December, 1970.
Presumably No Dewan
I
was sent of Petsury slecifically o take chong of the Mission in which case he should 6
be described as Chargé d'Affanns an titre. It would sean to be an error that he is described in our own Deflorate Service Oversees Referee List as Chaud d'Affence and interin. The Chinese Charge d'Affames although he has been abant from for some time) is still listed in a
Categ
kis von above Ith Charges d'Afferies ad interum in one list. The sance should effly & ons Chares in
Peking other worse by would have to take his place among
ons are marely acting dages d'Affarin ad interin was are in the base of the Head of Mission.
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D
I
14/12/
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Post of Chargé d'Affaires at Peking
The position from 1950 to mid-1954
A Note from the Foreign Secretary was communicated to the Chinese Minister of Foreign Affairs by H.M. Consul- General at Peking on 6 January, 1950, intimating that H.M. Government recognised the Government of the People's Republic of China as the de jure Government of China, and requesting, pending the appointment of an Ambassador, that Mr. J.C. Hutchison be received as Chargé d'Affaires ad interim. The Chinese Note in reply, dated 9 January, 1950, expressed the Chinese Government's willingness to establish diplomatic relations and to accept Mr. Hutchison "whom you have appointed as Chargé d'Affaires ad interim" as:
"the representative of the Government of the United Kingdom of Great Britain and Northern Ireland sent to Peking to carry on negotiations on the question of establishment of diplomatic relations between our two countries".
The Note added that the Central People's Government would give all necessary facilities for the transfer of Mr. Hutchison, his staff and archives from Nanking to Peking.
2.
It was accepted in the Foreign Office that this reply did not explicitly accept Mr. Hutchison as Chargé d'Affaires ad interim and did not mean that diplomatic relations had been established (FC1022/89 of 1950). On 28 January, 1950, the Consul-General at Peking received an oral communication from the Ministry of Foreign Affairs referring to the Exchange of Notes expressing agreement to establish diplomatic relations, and stating:
"Consequently Mr. Hutchison may come to Peking in the capacity of British Chargé d'Affaires to discuss preliminary and procedural matters relating to establishment of diplomatic relations".
The Consul-General transmitted a letter to the Chinese Foreign Minister on 31 January acknowledging the exchanges and stating that Mr. Hutchison had been instructed:
"to proceed immediately to Peking in the capacity
of Chargé d'Affaires to discuss with your Government as you have suggested preliminary and procedural
matters relating to the establishment of diplomatic relations." (Telegram No.58 in FC1022/37, 1950).
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3. On 2 March, 1950 the Chinese raised a number of points for clarification affecting the establishment of diplomatic relations and no progress was made. The position until 1954 was that the Chinese referred to the British Embassy as the "Office of the Negotiating Representative" and the Chargé
Notes were was referred to by his name and not by his rank. received, but were not answered, replies being made orally or in the form of statements in the press. During this period there were no Chinese representatives in the United Kingdom. The People's Handbook of 1953 showed Great Britain in a list of countries "willing to establish diplomatic relations and engaged in negotiations", and also gave the dates of the announcements "with regard to establishing relations" of both Great Britain and China (6 and 9 January, 1950, respectively).
The position from mid-1954.
4. During the Geneva Conference in 1954 the subject of diplomatic relations was discussed by the Foreign Secretary with the Chinese Foreign Minister. Chou En-lai said that his Government would be willing to send to London a counter- part to Mr. Trevelyan (FC105174, Telegram 5542/6/54). Huan Hsiang told Mr. Trevelyan in Geneva that China did not contemplate an immediate change in the formal relationship; this would come after negotiations, and the Chinese official in London would have the same status as Mr. Trevelyan in Peking (FC1051/17, Telegram 592, 4 June, 1954). The implications of these statements for the status of both officials were considered in London, and it was decided to seek the agreement of the Chinese to the inclusion of the officials in diplomatic lists. In accordance with United Kingdom fiscal and legal procedures full diplomatic immunity could only be accorded to persons on the statutory diplomatic list restricted to Ambassadors, Ministers, Chargé d'Affaires and their staffs. The Chinese representative would need to be furnished with a formal document from the Chinese Ministry of Foreign Affairs which inter alia described and introduced him as Chargé d'Affaires. In Telegram No.1145 of 15 June, 1954, (FC1895/2) to Geneva conveying these views, it was observed that there was "no special form for the document and official may be Chargé d'Affaires for negotiating diplomatic relations or what- ever the Chinese wish, but he must be called Chargé d'Affaires". The Foreign Secretary obtained agreement in Geneva from the Chinese that the Charges des Affaires and their diplomatic staffs should be included in the diplomatic lista in Peking and London. (F01895/2). On 17 June, 1954, China's agreement to send a Chargé to London was made public in simultaneous announcements
/to
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the effect that the Central People's Government of the People's Republic of China should send "a Chargé d'Affaires to London having the same position and duties as the British Chargé d'Affaires at Peking" (FC1051/30). In September the Chinese sought acceptance for the appointment of Huan Hsiang as "Chargé d'Affaires of the People's Republic of China in London" (FC1895/25).
-
5. The agreement reached in Geneva was reflected quickly in the treatment of the Mission in Peking diplomatic passes issued and the Mission put on distribution lists for official documents and invitations. On 7 July, 1954, Mr. Trevelyan reported that the Chinese were fixing his precedence as below all Chargé d'Affaires aḍ interim of recognised Embassies and Legations, and that the British Embasey would be described as "The Office of the British Chargé d'Affaires" and appear at the end of the Diplomatic List after all recognised Missions (FC1051/34). These matters were considered in London. Protocol Department pointed out that it was incorrect to refer to the British Mission in Peking as an "Embassy", and that the more accurate collective term would be "Diplomatic Mission". Protocol Department did not think that the precedence being assigned to Mr. Trevelyan accorded with their understanding of the situation. It seemed clear that the Chinese Government had no immediate intention of proceeding to the appointment of a diplomatic representative of higher rank than Chargé d'Affaires, and that both Charges were being appointed on a more or less permanent basis requiring accredition by letters signed by the respective Foreign Ministers and not merely introduction by a titular Head of a Mission on the eve of his own departure, as are Chargés d'Affaires ad interim. Since both Chargés were effectively en titre, according to British practice they should be placed in the Diplomatic List before Chargé d'Affaires ad interim. Mr. Trevelyan was asked to explain London's viens to the Chinese (FC1051/35), and shortly after this was done, Mr. Trevelyan reported that he was being given precedence at a reception before Chargés d'Affaires ad interim (FC1895/20). Evidently the Chinese had accepted the British view of the status of the Chargé d'Affaires.
6. The Chinese, in Peking, do not use the term en titre. In their formal, published Diplomatic List, Missions of one category are listed together, e.g. Embassies, Legations and Offices of Chargés d'Affaires. If the post of head of Mission is not filled the space beside the post is left blank. The List does not show the category "Chargé d'Affaires ad interim" at all, either in the description of individual officials or as a category showing the status of diplomatic missions. (e.g. in the 1970 List, the post of UK's Chargé d'Affaires is listed, but left blank with Mr. Denson shown below it as "Counsellor". "Ad interim is used, however, in the normal way when referring to officials temporarily covering the duties of posts of heada of Mission, and this practise presumably is regarded as sufficient for indicating who is substantive and who is not.
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It is interesting, nevertheless, that Huan Hsiang used en titre in London when issuing a statement from his office on 20 September, 1957, about the "plot of having the so-called Chinese Classical Theatre perform in Britain". He was no doubt acknowledging the practise followed in the British Diplomatic Lists.
7. Since 1954 there has been no departure from the practices established after agreeing to enter into formal diplomatic relations. Neither side has referred to the Chargé d'Affaires in accredition letters as ad interim. There has been no Chinese Chargé d'Affaires en poste in London since the departure of Hsiung Hsiang-hui on 9(7) January, 1967. There has been no British Chargé en poste since the departure of Sir Donald Hopson from Peking in August, 1968. There has been some small confusion, apparently on both sides, about the formalities required for naming officials to act. When a substantive Chargé is leaving his post he is required to introduce to the host government the officer who will be acting until the post is substantively filled again. Mr. Cradock was introduced in 1968 as Chargé ad interim by Sir Donald Hopson. In October that year Mr. Cradock went on leave and nominated Mr. Weston as Chargé ad interim. The Chinese pointed out that this was a departure from past practice. This was found to be so. When an Acting Chargé à'Affaires is leaving his post, & communication must be addressed by the Foreign Secretary to the Foreign Minister naming the official to be the next Chargé ad interim. This procedure has been followed carefully since 1968. The Chinese, however, seem to have bent the rules when naming the successor to Shen P'ing as Chargé d'Affaire e ad interim. Shen P'ing had taken over from Hsiung Hsiang-hui In 1967. In April 1969 the UK Mission in Peking received a letter from Hsiung in which he appointed Ma Chia-chuan as Chargé d'Affaires ad interim. When this apparent irregularity was pointed out to Ma in London, he observed that correct procedure had been followed as Hsiung was still the Chargé d'Affaires.
Far Eastern Section, Research Department.
26 November, 1970.
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Despatched 3/12/20/5)
Far Eastern Department,
3 December, 1970
Status of Chargée d'Affaires
You may like to see the attached paper prepared by
Research Tepartment in response to enquiries from us on the
background to the appointment of Chargés d'affaires in
Peking and London. Te have still not worked out all the
implications of the study and will be writing to you again.
In the mean time, if you have any comments no doubt you
will let us know.
J. N. Allan, Esq.,
PIZING
(L. V. Appleyard)
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Desparched (in)
27/11
27 November, 1970
741/301/1
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Diplomatic Precedence
Thank you for your letter of 14 Novembar,
1A
2. As you know I share your views on this and on my return from Peking I sent the enclosed minute to Protocol Department.
N
3. I fear the conclusion is that there is very little we can do. We are always careful to play straight down the line on matters of protocol and would be reluctant to breach the rules in this oase, however tempting this might be. Te are committed under the Vienna Convention of 1961 to placing Chargés always below Ambassadors, and Chargés d'Affaires en titre above Chargés ad interin. In the case of Ka, he takes his place among the chargis ad interin, strictly in terms of the length of time he has been here. In fact, he is now number two in the Chargés' list.
As it happens I want over this with Ma at dinner on 11 November. I pointed out that he wouldbe markedly higher placed at the Queen's reception (4 of them attended)" on 19 November than you were åt dinner with Chou Pa-lai, Clearly if P'ei Ch'ien-hus is să interim he will slip to the bottom. I presume you do not expect him to take Aklung'ı place se en titre.
5. I would have thought that the sort of breaches set out in your paragraph 2 are of a different order and should not go without complaint. It should really be for the Doyen to do so particularly as he has himself been subjected to discrimination.
6. If there are any blatant cases involving yourself do not hesitate to let me know as I am very ready to take them up with either Ma or P'ei. It is in the Chinese long-term läterest to get used to complying with the internationally socepted rules of protocol.
11
J. 3. Benson, Esq., 0.3.3.,
PRICING.
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*
(J. A. L. Morgan)
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迄
Reference
Mr. Appleyard,
Far Eastern Department.
Status of Chargés d'Affaires
It has taken longer than expected to deal with your queries of 19 November, largely because of the considerable difficulty experienced in tracing jackets dealing with appointments of Chargés.
2. I thought it would be valuable for future reference to go into this story in detail.
It was worth doing because we found some files
which hitherto we had not seen and which are important. FC1895/2, for example, shows how the Chinese came to accept a formal exchange of diplomatic envoys at Chargé level. Again FC1051/35 and FC1895/20 clear up the question of the precedence of the special category of Chargé d'Affaires in relation to Chargé d'Affaires ad interim. Our earlier minutes which stated that the British Chargé in Peking was given a position after other Chargés ad interim are not correct. That was the position until the end of July 1954.
3. The answers to your specific questions in brief
are:-
8.
b.
c.
d.
The Chinese agreed in effect to enter into diplomatic relations in 1954 when they agreed to send a representative to London having the same position and duties as the British Chargé d'Affaires in Peking, and also agreed to the inclusion of these officials in the respective Diplomatic Lists.
There had been no Chinese representatives in London prior to the making of the 1954 agreement.
Mr. Trevelyan's position changed in June 1954 from that of a negotiating representative without formal diplomatic rank and statue, to Chargé d'Affaires.
The Chinese have not used the term ad interim in referring to the status of the head of the Mission in London or Peking, except when referring to the official temporarily acting for the head of Mission. The Missions do not have the status of Embassy or Legation and are known as "the Offices of the Chargés d'Affaires". The UK has accepted this position and,
therefore, that the substantive head of Mission is Chargé d'Affaires en titre.
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I
8.
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There is no question of the British Chargé's position having "reverted" to ad interim. It never was ad interim.
+
Areas.
F. Brewer
Far Eastern Section, Research Department. 26 November 1970.
I
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+
Dear John,
PERSONAL AND CONFIDENTIAL
RECEIVED IN
REGISTY NE
and
Ma Alkleysid
Pl sex my mente of
300tda alleched
offide of the British Chargé d'Affaires
PEKING
14 November 1970
To submit with It
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24.
When you were in Peking I mentioned to you that in accordance with the Chinese rules on precedence I always found myself seated right at the bottom on every official occasion organised by them. The explanation is presumably that as the Office of a Chargé d'Affaires and not an Embassy, we (and the Dutch) rate below all Embassies and hence the Chargé d'Affaires ad interim of an Office is placed below Chargés d'Affaires of Embassies. Some support is leant to this view in Satow (1966 impression, page 171) where it is stated that in British practice it is customary to rank Chargés d'affaires a.i, of Embassies above Chargés d'Affaires a.i. of Legations to which the Office of a Chargé d'Affaires might be equated. The Vienna Convention on Diplomatic Relations does not seem to cover this point and refers merely to three classes of substantive Heads of Missions and to the procedure for aṛpointing Chargés d'Affaires r.i. The position in Peking is probably unique since for various reasons so many countries have not been represented by Ambassadors for some years, and a category of "permanent" Chargés d'Affaires a.i. has grown up.
2. While the Chinese might argue that they are behaving correctly in placing me where they do, they in fact break the rules whenever it suits them by, for example, placing the representative of the Palestine Liberation Crganisation, who has no real claim to diplomatic status, immediately after the Dutch Chargé d'Affaires en titre. They also show their favour by, for example, seating the newly arrived Chargé d'Affaires of the People's Republic of South Yemen above the Indian Chargé d'Affaires. This, of course, goes on all the time and applies even to the Doyen of the Diplomatic Corps who has recently sat below the Korean Chargé d'Affaires on an official occasion. I doubt therefore whether the Chinese could really argue that they behave consistently on all occasions.
3.
My treatment is probably partly at least political. At any rate my friendly colleagues think so. The important practical question seems to be how we treat the Chinese Chargé d'Affaires in London. If, as I understand, he is accorded precedence according to the date of his arrival which is the practice followed by nearly all my colleagues here who do not accept the Chinese practice, then on the basis of reciprocity I should receive the same treatment. For obvious reasons
J.A.L. Morgan, Esç.
Far Eastern Department
Foreign and Commonwealth Office LONDON, S.W.1
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NAL AND CONFIDENTIAL-
holy f
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PERSONAL AND CONFIDENTIAL
this is something it would be difficult for me to raise myself. Ι wonder if you could look into this matter and if my understanding is correct, it might be raised with the new Chinese Charge d'Affaires when he takes over. It could be pointed out that as a courtesy we accord him a position rather higher than we might and that if it is not found possible to do the same for me, we may be obliged to act strictly according to the rules and seat him at the bottom on every occasion. Possibly the Chinese will not care, but I am convinced reciprocity is the only language they understand.
Yours
wis evel
John
(J.B. Densin)
BERG NAL AND CLUFID NAIAL
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Pardeed
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13 November, 1970
Hez Chinase Chargé d'affaires
Thank you for your t:legram 753 of 11 November confirming that Pei Tsien-chang will be replacing Ha as the Chargé d'Affaires in London.
2. As it happened, the evening before your telegram come I was dining with Ma and asked him about Pei. Ma said that he had no definite news but that as he had now been in London soven years it could be that Pei was to be his replacement.
3. Their careers are strikingly similər.
Ha
1918
1952-58
Born
Rangoon
Aged 34
Second Pecretary
Aged 38
First Secretary
Aged 44
Comsellor on appointment
to Tondon
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1927
1960-67
Aged 33
Agod 37
Aged 43
4. I am sure that it will not have escaped you notice that Fei is some montus younger that you. now being set by reciprocity.
Clearly great store is
J. B. Denson, saq., OBD,
eking.
Couy to:
J. ". I. Boyd, Esq., fashington Chancery, Rangoon
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Reference.
RECEIVED IN
REGISTRY No. 19
Protocol and Conference Department
1774
Chargé d'Affaires in Peking
In Peking the Chinese draw a distinction between Chargé d'Affaires of Embassies and Chargé d'Affaires of missions that have not yet appointed ambassadors. This means that our Chargé d'Affaires and the Dutch are placed below all others in protocol order irrespective of the date they became Chargés.
2.
Do we have good grounds in recognised diplomatic practice to complain at this situation? Alternatively, if we wished, could we retaliate by placing the Chinese in a similar category here?
SALMagan
(J. A. L. Morgan) Far Eastern Department
30 October, 1970
Mr. Morgan
A
you
know, in this country
wa
place the Chinese
Charges.
d'Affaire
Charge d'Affames en fired above the
ad interim ki me her move whether in accordance with recognised diplomatic practice as beid town in Satro and in the Vienna Convention of 1961. The Chinese are not of course, signetoess of the Vienne Convention
they please. It is open to us to compleme that they
"Minding are not following ring awed diplomatic but we in P.rCD. would be offered & retaliating here - indeed we are committed under the Vienne Correction to maintaining
and can do as
the present practice beu.
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2/11/70