There are also “unnumbered passages” in the Writings of Bahá’u’llah “in which direct addresses, as well as references, have been made to ministers, governments, and their accredited representatives”

It should not be forgotten that, apart from these specific Tablets in which the kings of the earth are severally and collectively addressed, Bahá’u’lláh has revealed other Tablets—the Lawḥ-i-Ra’ís being an outstanding example—and interspersed the mass of His voluminous writings with unnumbered passages, in which direct addresses, as well as references, have been made to ministers, governments, and their accredited representatives. I am not concerned, however, with such addresses and references, which, vital as they are, cannot be regarded as being endowed with that peculiar pregnancy which direct and specific messages, voiced by the Manifestation of God and directed to the world’s Chief Magistrates in His day, must possess. 

- Shoghi Effendi  (‘The Promised Day Is Come’)