final goal which His Imperial Majesty has prescribed as that of his Cabinet's action.

"There is no necessity to insist on the palpable interest of Russia in restricting the growth of her territory and preventing the advent of complications in distant provinces which may retard and paralyse our domestic development.

"The programme which I have just traced is in strict accord with this policy.

"People of late years have been pleased to credit us with a mission to civilise neighbouring countries on the continent of Asia. The progress of civilisation has no more efficacious ally than commercial relations. These require, in all countries, order and stability as conditions essential to their growth; but in Asia their existence implies a revolution in the manners of the people. Asiatics must, before all things, be made to understand that it is more advantageous to favour and assure trade by caravans than to pillage them. These elementary principles can penetrate the public conscience only when there is a public; that is to say, a social organisation and a government which directs and represents it. We are accomplishing the first portion of this task in extending our frontier to points where these indispensable conditions are to be met with. We accomplish the second when we undertake the duty of proving to neighbouring states, by a policy of firmness as regards the repression of their misdeeds, but of moderation and justice in the employment of armed strength and of respect for their independence, that Russia is not their foe, that she cherishes no designs of conquest, and that peaceful and commercial relations with her are more profitable than disorder, pillage, reprisals, and chronic warfare. In devoting itself to this task the Russian Cabinet has the

interests of the empire in view; but we believe that its accomplishment will also serve those of civilisation and humanity at large. We have a right to count upon an equitable and loyal appreciation of the policy which we follow, and the principles on which it is framed.

"GORTSCHAKOFF."

APPENDIX II

THE present Minister of War, General Kurapatkine, delivered an address at Askabad, on the 25th November 1897, to some members of a party of English tourists, which is really a remarkably frank enunciation of the policy of his Government in Central Asia. The full text runs as follows:

"The policy of our Government in Central Asia, since the accession of the late Tsar, has been eminently one of peace; and recourse has never been had to arms until every other means of gaining a given object had failed. Before the extension of the railway and telegraph to these remote regions, a considerable measure of initiative was necessarily left in the hands of local officers. Generals Chernaieff, Skobeleff, and Kauffman were repeatedly compelled by circumstances to undertake expeditions without sanction; and their action was sometimes in opposition to the views of the Central Government. There has been a radical change in our administrative system since the Transcaspian provinces were united to Europe by these powerful civilising influences. Every case of friction on the frontier is reported to St. Petersburg, and instructions are obtained before active measures are adopted. It is now impossible that there could be a repetition of the events of 1865, when General Chernaieff took Tashkent, and then reported having done so to his Imperial Master. No operations likely to produce serious consequences can

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now be undertaken without the previous sanction of His Majesty. I wish to be particularly explicit on this point, because my nomination as governor of Transcaspia was regarded by many journals, both in England and India, as a presage of what is called a "forward policy." It is the custom of the present Tsar, as it was of his lamented father, to furnish detailed instructions on questions of internal organisations as well as those which concern foreign affairs. The principles which govern the policy of Russia are very simple. They are the maintenance of peace, of order, and of prosperity in all classes of the population. The means employed to compass these ends are equally free from complexity. Those who fill responsible positions are expressly informed by our Government that the assumption of sovereignty over alien nationalities must not be attempted without very serious deliberation, inasmuch as such become, on annexation, Russian subjects, children of the Tsar, and invested with every privilege enjoyed by citizens of the empire. His Majesty has enjoined on his representatives, as their first duty, the fatherly care of his Asiatic subjects. In order to prevent the possibility of internal discord, we have disarmed the natives, and no pains have been spared to induce them to adopt peaceful pursuits. The fruits of this action are already visible. A solitary traveller can now cross Central Asia, from the Caspian to the Siberian frontier, without incurring the smallest risk of attack. A few years ago I furnished weapons for purposes of defence to the Russian colonists in seventeen villages established by me, and I warned them that it might be unsafe to undertake journeys without arms. They have, however, disregarded this advice, and never carry arms when at a distance from their homes. Last winter a Russian peasant fell on the roadside in a state of helpless intoxication near the Afghan frontier south of

Merv; but the Turkomans, so far from molesting him, covered him with carpets and brought him on a camel before the district chief. Similar occurrences are reported from Askabad.

"We may boast with perfect truth that the thirty-five years during which Central Asia has enjoyed the blessings of a firm and civilised rule have been years of sustained progress, of daily - increasing strength in the bonds of attachment and goodwill which unite these subject peoples to the inhabitants of other Russian provinces. As compared with India, our territories in that part of the world are still poor and sparsely populated; but there has been a considerable increase in the country's wealth since the conquest of Turkestan in 1863. The trading classes are now the staunchest supporters of our authority; next, the cultivators; lastly, the women. Should any mischief arise, it will be due to the intrigues of the mullās, whose powers for evil are great, owing to the ignorance rather than the fanaticism of the population.

"The large measure of progress attained could not have been hoped for did we not possess settled frontiers with which we are perfectly content. Every country in Central Asia has had its period of war; but it is the fixed policy of our Tsar to prevent a recurrence of its horrors arising from our initiative. In the case of the territory most recently acquired, the disturbances lasted for seven years-from 1878 to 1885. Between the latter year and 1888 we established a stable and logical frontier with the aid of Great Britain; and in the twelve years which have since elapsed t're have been no expeditions throughout its length of o miles bordering on Persia, and 400 on Afghanistan. The latter country contains much inflammable material, but we have taken every means in our power to ensure that the internal disorders of that state shall not react