
104 CHINA'S INTERNATIONAL RELATIONS
Britain needed the friendship of its ally Japan to protect its own China
interests. For all these reasons, the British desired a large-scale conference
to adjust with one stroke their relations with the dominions, with the
United States, and with Japan.
45
Ever since the Russo-Japanese War, the United States and Japan had
frequently been at odds over China. Moreover, despite the best efforts
of both governments, the immigration question had raised tensions
further. These two countries, whose economies had flourished while war
had sapped the European economies, rushed into a heated naval race in
the Pacific. Japan, though lacking the natural resources, capital accumula-
tion and productive capacity of the United States, nevertheless adopted
an arms expansion programme to counter the United States naval build-up,
imposing an enormous burden upon its people. For 1920, military
expenditure constituted 48 per cent of total Japanese government
expenditures and for 1921, 49 per cent. To reduce this burden, the
reduction of tensions with the United States was absolutely essential.
The United States also felt the economic burden of the naval race. More
than that, she saw a need to respond somehow to the sudden advance of
Japan into China during the First World War. Secretary of State Robert
Lansing had attempted to maintain an Open Door in China by granting
recognition to certain special rights of Japan in the exchange of notes
known as the Lansing-Ishii Agreement of 2 November 1917. This
culmination of several rounds of negotiations in Washington between
Lansing and the Japanese ambassador, Ishii Kikujiro, had two essential
points. First, recognition of the existence of
a
special relationship between
countries having contiguous boundaries. On this basis, Japan was
recognized as having special interests in China. Second, the guarantee of
China's independence and territorial integrity and the upholding of the
Open Door principle of equal opportunity in commerce and industry.
Once the war had ended, however, the United States revised its
conciliatory position, and began to feel out alternatives, believing that
the old diplomacy of imperialism should now be superseded by a new
international order in East Asia. In 1918 the United States had proposed
that a consortium of American, British, French and Japanese banks should
be set up to make loans to China. In 1920 Washington also urged the
abrogation of the Anglo-Japanese alliance as the device that had protected
Japan's encroachment on China.
As part of this process,
the
Washington Conference met from November
1921 to February 1922. Armaments and Far Eastern relations were taken
45
See Roger Dingman, Power in tbe Pacific; Thomas Buckley, Tbe United States and the Washington
Conference; Akira Iriye, After imperialism: tbe search for a new order in tbe Far East, 1)21-1931.
Cambridge Histories Online © Cambridge University Press, 2008