I am not able to say when the idea of this cession first took shape. I
have heard that it was as long ago as the Administration of Mr. Polk.
It is within my knowledge that the Russian Government was sounded on
the subject during the Administration of Mr. Buchanan. This was done
through Mr. Gwin, at the time Senator of California, and Mr. Appleton,
Assistant Secretary of State. For this purpose the former had more than
one interview with the Russian minister at Washington, some time in
December, 1859, in which, while professing to speak for the President
unofficially, he represented that “Russia was too far off to make the
most of these possessions, and that, as we were near, we could derive
more from them.” In reply to an inquiry of the Russian minister, Mr.
Gwin said that “the United States could go as high as $5,000,000 for
the purchase,” on which the former made no comment. Mr. Appleton, on
another occasion, said to the minister that “the President thought the
acquisition would be very profitable to the States on the Pacific;
that he was ready to follow it up, but wished to know in advance if
Russia was ready to cede; that, if she were, he would confer with his
Cabinet and influential members of Congress.” All this was unofficial;
but it was promptly communicated to the Russian Government, who seem
to have taken it into careful consideration. Prince Gortchakoff, in
a despatch which reached here early in the summer of 1860, said that
“the offer was not what might have been expected, but that it merited
mature reflection; that the Minister of Finance was about to inquire
into the condition of these possessions, after which Russia would be in
a condition to treat.” The Prince added for himself, that “he was by no
means satisfied personally that it would be for the interest of Russia
politically to alienate these possessions; that the only consideration
which could make the scales incline that way would be the prospect of
great financial advantages, but that the sum of $5,000,000 did not
seem in any way to represent the real value of these possessions”;
and he concluded by asking the minister to tell Mr. Appleton and
Senator Gwin that the sum offered was not considered “an equitable
equivalent.” The subject was submerged by the Presidential election
which was approaching, and then by the Rebellion. It will be observed
that this attempt was at a time when politicians who believed in the
perpetuity of Slavery still had power. Mr. Buchanan was President,
and he employed as his intermediary a known sympathizer with Slavery,
who shortly afterwards became a Rebel. Had Russia been willing, it
is doubtful if this controlling interest would have sanctioned any
acquisition too far north for Slavery.
Meanwhile the Rebellion was brought to an end, and peaceful enterprise
was renewed, which on the Pacific coast was directed toward the Russian
possessions. Our people there, wishing new facilities to obtain fish,
fur, and ice, sought the intervention of the National Government. The
Legislature of Washington Territory, in the winter of 1866, adopted the
following memorial to the President of the United States, entitled “In
reference to the cod and other fisheries.”
“TO HIS EXCELLENCY ANDREW JOHNSON,
“_President of the United States_.
“Your memorialists, the Legislative Assembly of Washington
Territory, beg leave to show that abundance of codfish,
halibut, and salmon, of excellent quality, have been found
along the shores of the Russian possessions. Your memorialists
respectfully request your Excellency to obtain such rights
and privileges of the Government of Russia as will enable
our fishing vessels to visit the ports and harbors of its
possessions, to the end that fuel, water, and provisions may
be easily obtained, that our sick and disabled fishermen may
obtain sanitary assistance, together with the privilege of
curing fish and repairing vessels in need of repairs. Your
memorialists further request that the Treasury Department be
instructed to forward to the collector of customs of this
Puget Sound district such fishing licenses, abstract journals,
and log-books as will enable our hardy fishermen to obtain
the bounties now provided and paid to the fishermen in the
Atlantic States. Your memorialists finally pray your Excellency
to employ such ships as may be spared from the Pacific naval
fleet in exploring and surveying the fishing banks known
to navigators to exist along the Pacific coast from the
Cortés Bank to Behring Straits. And, as in duty bound, your
memorialists will ever pray.
“Passed the House of Representatives January 10, 1866.
“EDWARD ELDRIDGE,
“_Speaker, House of Representatives_.
“Passed the Council January 13, 1866.
“HARVEY K. HINES,
“_President of the Council_.”
This memorial, on presentation to the President, in February, 1866,
was referred to the Secretary of State, by whom it was communicated to
Mr. de Stoeckl, the Russian minister, with remarks on the importance
of some early and comprehensive arrangement between the two powers to
prevent the growth of difficulties, especially from the fisheries in
that region. At the same time reports began to prevail of extraordinary
wealth in fisheries, especially the whale and cod, promising to become
an important commerce on the Pacific coast.
Shortly afterwards another influence was felt. Mr. Cole, who had been
recently elected to the Senate from California, acting in behalf of
certain persons in that State, sought from the Russian Government
a license or franchise to gather furs in a portion of its American
possessions. The charter of the Russian American Company was about to
expire. This company had already underlet to the Hudson’s Bay Company
all its franchise on the main-land between 54° 40´ and Cape Spencer;
and now it was proposed that an American company, holding directly
from the Russian Government, should be substituted for the latter.
The mighty Hudson’s Bay Company, with headquarters in London, was
to give way to an American company, with headquarters in California.
Among letters on this subject addressed to Mr. Cole, and now before
me, is one dated San Francisco, April 10, 1866, in which the scheme is
developed:--
“There is at the present time a good chance to organize a
fur-trading company, to trade between the United States and the
Russian possessions in America; and as the charter formerly
granted to the Hudson’s Bay Company has expired, this would
be the opportune moment to start in.… I should think that by
a little management this charter could be obtained from the
Russian Government for ourselves, as I do not think they are
very willing to renew the charter of the Hudson’s Bay Company,
and I think they would give the preference to an American
company, especially if the company should pay to the Russian
Government five per cent. on the gross proceeds of their
transactions, and also aid in civilizing and ameliorating the
condition of the Indians by employing missionaries, if required
by the Russian Government. For the faithful performance of the
above we ask a charter for the term of twenty-five years, to be
renewed for the same length of time, if the Russian Government
finds the company deserving,--the charter to invest us with
the right of trading in all the country between the British
American line and the Russian Archipelago.… Remember, we wish
for the same charter as was formerly granted to the Hudson’s
Bay Company, and we offer in return more than they did.”
Another correspondent of Mr. Cole, under date of San Francisco,
September 17, 1866, wrote:--
“I have talked with a man who has been on the coast and in the
trade for ten years past, and he says it is much more valuable
than I have supposed, and I think it very important to obtain
it, if possible.”
The Russian minister at Washington, whom Mr. Cole saw repeatedly
upon the subject, was not authorized to act, and the latter, after
conference with the Department of State, was induced to address Mr.
Clay, minister of the United States at St. Petersburg, who laid the
application before the Russian Government. This was an important step.
A letter from Mr. Clay, dated at St. Petersburg as late as February 1,
1867, makes the following revelation.
“The Russian Government has already ceded away its rights in
Russian America for a term of years, and the Russo-American
Company has also ceded the same to the Hudson’s Bay Company.
This lease expires in June next, and the president of the
Russo-American Company tells me that they have been in
correspondence with the Hudson’s Bay Company about a renewal
of the lease for another term of twenty-five or thirty years.
Until he receives a definite answer, he cannot enter into
negotiations with us or your California company. My opinion
is, that, if he can get off with the Hudson’s Bay Company,
he will do so, when we can make some arrangements with the
Russo-American Company.”
Some time had elapsed since the original attempt of Mr. Gwin, also a
Senator from California, and it is probable that the Russian Government
had obtained information which enabled it to see its way more clearly.
It will be remembered that Prince Gortchakoff had promised an inquiry,
and it is known that in 1861 Captain-Lieutenant Golowin, of the
Russian navy, made a detailed report on these possessions. Mr. Cole
had the advantage of his predecessor. There is reason to believe,
also, that the administration of the fur company had not been entirely
satisfactory, so that there were well-founded hesitations with regard
to the renewal of its franchise. Meanwhile, in October, 1866, Mr. de
Stoeckl, who had long been the Russian minister at Washington, and
enjoyed in a high degree the confidence of our Government, returned
home on leave of absence, promising his best exertions to promote good
relations between the two countries. While he was at St. Petersburg,
the applications from the United States were under consideration; but
the Russian Government was disinclined to any minor arrangement of the
character proposed. Obviously something like a crisis was at hand with
regard to these possessions. The existing government was not adequate.
The franchises granted there were about to terminate. Something must
be done. As Mr. de Stoeckl was leaving for his post, in February, the
Archduke Constantine, brother and chief adviser of the Emperor, handed
him a map with the lines in our treaty marked upon it, and told him he
might treat for cession with those boundaries. The minister arrived
in Washington early in March. A negotiation was opened at once. Final
instructions were received by the Atlantic cable, from St. Petersburg,
on the 29th of March, and at four o’clock on the morning of the 30th of
March this important treaty was signed by Mr. Seward on the part of the
United States and by Mr. de Stoeckl on the part of Russia.
Few treaties have been conceived, initiated, prosecuted, and completed
in so simple a manner, without protocol or despatch. The whole
negotiation is seen in its result, unless we except two brief notes,
which constitute all that passed between the negotiators. These have
an interest general and special, and I conclude the history of this
transaction by reading them.
“DEPARTMENT OF STATE, WASHINGTON, March 23, 1867.
“SIR,--With reference to the proposed convention between
our respective Governments for a cession by Russia of her
American territory to the United States, I have the honor to
acquaint you that I must insist upon that clause in the sixth
article of the draft which declares the cession to be free
and unincumbered by any reservations, privileges, franchises,
grants, or possessions by any associated companies, whether
corporate or incorporate, Russian or any other, &c., and must
regard it as an ultimatum. With the President’s approval,
however, I will add $200,000 to the consideration money on that
account.
“I avail myself of this occasion to offer to you a renewed
assurance of my most distinguished consideration.
“WILLIAM H. SEWARD.
“MR. EDWARD DE STOECKL, &c., &c., &c.”
[TRANSLATION.]
“WASHINGTON, March 17 [29], 1867.
“MR. SECRETARY OF STATE,--I have the honor to inform you,
that, by a telegram, dated 16th [28th] of this month, from St.
Petersburg, Prince Gortchakoff informs me that his Majesty the
Emperor of all the Russias gives his consent to the cession
of the Russian possessions on the American continent to the
United States, for the stipulated sum of $7,200,000 in gold,
and that his Majesty the Emperor invests me with full powers to
negotiate and sign the treaty.
“Please accept, Mr. Secretary of State, the assurance of my
very high consideration.
“STOECKL.
“TO HON. WILLIAM H. SEWARD,
“_Secretary of State of the United States_.”