The Russian-American and Anglo-Russian Conventions, 1824-1825: An Interpretation

Abstract

THE RUSSIAN-AMERICAN AND THE ANGLO-RUSSIAN conventions of April 17, 1824, and of February 28, 1825, respectively, delimiting territorial claims in the New World have been frequently referred to in American historical literature, but little attention has been given to the reasons why Russia proved so lenient in this diplomatic arrangement. How did it happen, for instance, that despite the high-sounding imperial ukaz of September 4, 1821, generously granting fishery privileges to the Russian-American Company and limiting foreign traffic in waters, the government shortly afterwards retreated from its position officially proclaimed to the world? To understand what occurred one must bear in mind that Russia's traditional foreign policy has always represented a double-edged sword; with one edge the government endeavors to guard its interests in the East, with the other it watches the western frontiers, and vice versa; while initiating an active policy at one end of the empire, it allows the other to rest ice. Or, on occasion, it uses one end of its vast empire as a lever for attaining aims at the other. At the time the twenty-year charter granted to the Russian-American Company on July 8, 1799, expired, Russia was enjoying her recently won triumph over Napoleon and a most prominent place in the concert of Europe. The termination of war in Europe afforded Russia a keener interest in the East, though never forsaking the West where greater issues were at stake. So when in 1819 the charter was renewed and the company commenced to insist that the borders of the American possessions be improved and allowed more adequate defense, the government granted the company's request for such delimitation. On September 4, 1821, an imperial edict or ukaz was issued by the Czar of Russia pontifically proclaiming that all trade and fishing be forbidden to foreigners and that foreign ships be forbidden entrance along the coasts of Siberia and Russian America as far south as 51o north latitude within one hundred Italian miles. By extending claims to 51o north latitude the czar incorporated into possessions all territories to the Oregon border. The immediate implications of the ukaz were not fully appreciated by many people and the document, contrary to the picture given in many textbooks, did not produce the overwhelming impression that has been thus conveyed. But so far as the governments of Britain and the United States were concerned the issue was suddenly forced from the wings to the footlights of the stage of foreign politics.