# The Truth about China and Japan/Document E

(E)
THE SHANTUNG RAILWAY AGREEMENT OF SEPTEMBER 24, 1918
Communications between the Japanese Foreign Office and the Chinese Minister to Japan
The Shantung Railway Agreement of September 24, 1918, was signed by the Chinese Minister to Japan, but was not ratified by the Chinese Government. Japan advanced $10,000,000 on the strength of the agreement and the Japanese Minister to Peking
​now states that there is no reason why the agreement should have been ratified by China, as it is binding upon her in any case. The question is asked—"Can the Minister of any power make with the state to which he is accredited a treaty that is binding, without further ratification, upon his own government?" If so a new and very far-reaching principle in international law will have been established.
The agreement has been transmitted by cable to China's peace delegates in Paris, who have been instructed to lay it on the table of the Peace Conference. It is considered a question for that Conference.
It will be observed that under this secret agreement Japan proposes to garrison permanently the capital of Shantung province; to control the police along the railway zone; and to place the Shantung railway under 'joint control'. These steps are tantamount to annexation.
Text of Agreement
Minister of Foreign Affairs, Tokio to H. E. Chang Tsung Hsiang, Chinese Minister to Tokio.
Foreign Office, Tokio, Sept. 24, 1918.
Sir,
In view of the neighbourly feelings of friendship between our two countries, the Government of Japan, ​being desirous of arranging matters in a spirit of harmony, has drawn up an agreement which it regards as a satisfactory settlement of all outstanding questions relating to the Province of Shantung, and I now have the honour to bring this proposal to the notice of your Government. The terms of the proposed agreement are as follows:—
I
All Japanese troops stationed along the Shantung Railway—with the exception of one regiment which will be left at Tsinan—will be withdrawn to Tsingtao.
II
The Chinese Government may establish a Police Force which shall take over the duty of guarding the railway.
III
The Administration of the Shantung Railway shall set aside a sufficient sum to meet the expenses of the Police Force.
IV
Japanese subjects are to be employed at the Headquarters of this Police and at all important stations and in the Police Training School.
V
Among the employés of the Shantung Railway posts shall be given to Chinese subjects also.
VI
After it has been definitely decided to whom the Shantung Railway is to belong the railway is to be placed under the joint management of China and Japan.
VII
The Civil Administration Offices now in existence are to be abolished.
I have the honor to request that you will communicate to me views of your Government with regard to the above proposal.
I have, etc., (Sd) Baron Goto, Japanese Minister for Foreign Affairs.
Chinese Minister's Reply
Chang Tsung Hsiang, Chinese Minister at Tokio, to Japanese Minister for Foreign Affairs.
Tokio (No date)
I have the honor to acknowledge receipt of your letter couched in the following terms:—
(Quotes in full letter from Minister for Foreign Affairs of September 24, 1918.)
​I have the honor to inform you that the Government of China accepts with pleasure the proposal contained in the letter quoted above.
I have, etc. (Seal of Chang Tsung Hsiang, Envoy Extraordinary and Minister Plenipotentiary.)