local government by the consular representatives of the United States, Great Britain and Germany was proposed, but the United States did not consider the plan desirable. The Samoans themselves were becoming tired of a shuttlecock existence. In 1884, Malietoa and the vice-king begged Queen Victoria to either make Samoa a British colony or allow it to be governed by New Zealand.

German residents, acquiring land and monopolizing trade, had continued to encourage opposition to the king, and in 1884 the German consul precipitated a crisis by securing from the Samoan council an agreement providing for a German-Samoan council of government. The king, refusing to execute the agreement, Steubel, the German consul, in 1885, raised his flag over Apia and took possession in the name of his Government as security for Samoan good behavior toward German interests. The American consul, Greenbaum, to counteract German influence, proceeded to hoist the American flag and proclaim a protectorate. The United States Government disavowed the action of Greenbaum, but spoke in a determined tone regarding the protection of American rights in the Pacific."

In the early part of 1886, the State Department was informed that Germany, having agreed with England upon lines of Pacific division," claimed sovereignty over Samoa, and the hitherto unclaimed Gilbert and Marshall islands in which, as in other outlying, unattached groups, the representatives of many nationalities had sporadically settled.

was ready to aid native and independent government of the Ralick groups of Marshall archipelago in establishing temperance restrictions.

12

Bayard to Pendleton, Jan. 17, 1888.

18 In 1885, both Spain and Germany claimed the Caroline Islands, where large American interests were already established. Germany seemed to suspect the intention of the United States to assert a claim to the islands, but Secretary Bayard announced our purpose to respect whatever sovereign jurisdiction might be established or already exist there, without indicating an opinion on the Spanish-German controversy.

The United States had no treaty relations with either the Gilbert or Marshall groups, and offered no objection to their annexation by Germany, but insisted that interests created in favor of peaceful American settlers there should not be disturbed by any assertion of exclusive claims of territorial jurisdiction. In some cases American citizens had undisturbed possession of the Pacific islands, and the United States could have asserted a claim of possession, but she did not desire any exclusive jurisdiction for herself and was not ready to allow any jurisdiction by others if it should expel American citizens from rights which they had from the natives."

15

Determining to get authentic information regarding the situation in Samoa, Bayard sent (1886) George H. Bates, his law partner, to investigate and to prepare an exhaustive report. Desiring to extend good offices for the establishment of order in Samoa, he suggested a conference of representatives of the three powers which, in June, 1887, met at Washington to negotiate a treaty securing autonomy and neutrality of the islands. He urged that the "autonomy and independence of Samoa should be scrupulously preserved," a principle upon which President Cleveland had insisted in a special message to Congress in the preceding January. He proposed that each treaty power should alternately keep a man-of-war in Samoan waters four months

14

The interest of the United States in regard to the destiny of the Pacific islands was increased by the rapid absorption of various groups by the European powers. Great Britain, who had appropriated Australia a century earlier, accepted the Fijis in 1874. France, who had taken the Marquesas, in 1842, and the New Caledonian and Loyalty islands, in 1853, extended her control to the Society group, in 1880; Spain, who had occupied the Philippines and Ladrones since the sixteenth century, took possession of the Carolines, in 1885; Germany assumed control of the Marshall, Solomon and Admiralty groups; Holland and Germany partitioned New Guinea. In 1888, Great Britain took Gilbert, Ellice, Union and Enderbury groups, and several single islands, including Fanning, Washington, Starbuck and Caroline.

15

Strictly Confidential Report of G. H. Bates to the Secretary of State, Dec. 10, 1886. Washington, 1887, 135 pp.

16

of each year to aid in maintaining the government to be established and to preserve peace and order. He also proposed that administration of laws be, by an executive council, composed of the king, vice-king and three foreigners, one of whom should be designated by each of the foreign powers, but all of whom should be " paid by the Samoan Government. The plan which Germany desired, and the British seemed to favor, committing the practical control of affairs to a German adviser of the king, he feared would give Germany too much influence in the Samoan Government. Failing to agree upon any plan, the conference adjourned in July.

The Germans in Samoa, by mortgages and land sales, were rapidly getting possession of territory which the natives had never intended to sell," and appeared to be preparing to seize the islands. From the government of Malietoa, hampered by a House of Lords and a House of Commons that did as they pleased, and attempting to rule over a people who refused to obey its orders, they expected little protection for white settlers. By defeating Malietoa and setting up another king with a German adviser, they precipitated a civil contest in which the Samoans were divided into two hostile camps of armed warriors," one supported by German arms, and the other by British colonels and citizens of the United States; they declared martial law at Apia and tried to enforce it on Americans, who at once registered a strong protest.19

16

Blaine, on April 11, 1889, in instructions to our negotiators at the Berlin conference, said that the plan proposed by the United States, in the conference of 1887, was hardly less than a joint protectorate; it went beyond the principle upon which President Harrison desired to see our Samoan relations based, was not in harmony with our established policy, and did not promise efficient action.

17

"In 1886, they claimed 232,000 acres, and the British subjects 357,000 acres.

18

See an article by Henry C. Ide in N. Am. Rev., Aug., 1897. 19 Commander Leary of the U. S. warship Adams on Sept. 6, 1888, sent a protest to the captain of one of the German vessels. Marines were landed to protect the American consulate.

21

The United States, though she had not consciously sought to participate in the contest, and though her trade with Samoa was small compared with that of Germany and England, threatened intervention in order to preserve her interests in the Pacific." She promptly sent a naval squadron, which was subsequently destroyed in the hurricane of 1889. Congress, after an examination of reports and much discussion, appropriated $500,000 for protective measures. On January 17, 1888, in a letter to Pendleton, replying to Bismarck's complaints as to the anti-German attitude of Sewall, the American consul at Apia, Secretary Bayard, reviewing the absorption of Pacific islands by European powers since 1840, and especially since 1884, was determined that only the American Government should preserve Samoan independence and maintain the rights to which the United States had become entitled in any of the few remaining islands which were still under independent and autonomous governments."

22

In February, 1889, Bayard gladly accepted Bismarck's proposal for a resumption of the joint conference for a tripartite agreement. President Harrison appointed John A. Kasson, William Walter Phelps and George H. Bates as plenipotentiaries to go to Berlin. A convention," concluded the following June, provided for maintaining the neutrality of the islands and stipulated that the three powers should refrain from exercising any separate control over the islands or the government. It contained clauses prohibiting the sale of intoxicating liquors, establishing a system of registering titles, and securing to American citizens equality with others in trade, etc.

20 H. Exec. Doc. vol. viii, No. 1, 51-1.

21

R. L. Stevenson: In South Seas, 1888-89. N. Y., 1896.

22 On American rights in Samoa, see H. Exec. Doc. 238, 50-1, Apr. 2, 1888, 311 pp. For the condition of Samoan affairs, see Sen. Exec. Docs. 31, 68 and 118, 50-2, Dec. 1888 and Jan. 1889. Also, a pamphlet of 77 pages, Confidential correspondence respecting affairs in Samoa" [December, 1888-March, 1889], printed for the use of the American Commissioners to Berlin in 1889.

28

66

23 S. Misc. Doc. 81, 51-1, Jan. 6, 1890.

The principal features of the government as provided by the treaty were as follows:

(1) A single king, chosen by the chiefs, a salary of $1800, instead of the two rival kings, who had received $500 each;

(2) A supreme court with a chief justice nominated by the three foreign powers (or by the King of Sweden in case of disagreement), with a salary of $6000 guaranteed by the powers. (The clerk and marshal were to be paid by fees.) The chief justice was given jurisdiction of all Samoan questions arising under the treaty, between the treaty powers, and as to the election of king, and could recommend the passage of laws. He had exclusive jurisdiction in suits between natives and foreigners, or between foreigners of different nationalities, and of crimes and offences committed by natives against foreigners.

(3) A local government for the district of Apia (170 electors), consisting of a municipal council of six members and a president. The president, who was also chief executive of the district and adviser to the king, was appointed through the instrumentality of treaty powers, who guaranteed him $5000 per year out of the Samoan revenues assigned to the municipality. The municipal council appointed a municipal magistrate and subordinate officers, but its orders had no effect till approved by the three foreign consuls or (if they failed to agree) by the chief justice.

(4) A land commission of three persons, one named by each power, for examination of claims and titles, subject to final jurisdiction of the chief justice. (Each commissioner received $300 per month and expenses.)

(5) A fiscal system, providing for revenue duties on imports and exports, capitation taxes on Samoans and colored plantation laborers, license taxes, etc. All taxes collected at Apia were to belong to the municipality, and those collected elsewhere were to belong to the Samoan Government."

"In the condition of affairs in the islands this provision resulted in leaving the government without adequate means of sup