1. Government.—The Russian settlements were for a long time without any regular government. They were little more than temporary lodgements for purposes of trade, where the will of the stronger prevailed. The natives, who had enslaved each other, became in turn the slaves of these mercenary adventurers. Captain Cook records “the great subjection”[49] of the natives at Oonalaska, when he was there in 1778; and a Russian navigator, fourteen years later, describes the islands generally as “under the sway of roving hunters more savage than any tribes he had hitherto met with.”[50] At Oonalaska the Russians for a long time employed all the men in the chase, “taking the fruits of their labor to themselves.”[51]
The first trace of government which I find was in 1790, at the important island of Kadiak, or the Great Island, as it was called, where a Russian company was established under direction of a Greek by the name of Delareff, who, according to the partial report of a Russian navigator, “governed with the strictest justice, as well natives as Russians, and established a school, where the young natives were taught the Russian language, reading and writing.”[52] Here were about fifty Russians, including officers of the company, and another person described as “there on the part of Government to collect tribute.”[53] The establishment consisted of five houses after the Russian fashion,—barracks laid out on either side, somewhat like the boxes at a coffee-house, with different offices, represented as follows: “An office of appeal, to settle disputes, levy fines, and punish offenders by a regular trial; here Delareff presides, and I believe that few courts of justice pass a sentence with more impartiality; an office of receival and delivery, both for the company and for tribute; the commissaries’ department, for the distribution of the regulated portions of provision; counting-house, &c.: all in this building, at one end of which is Delareff’s habitation.”[54] If this picture is not overdrawn,—and it surely is,—affairs here did not improve with time. But D’Wolf, who was there in 1805-6, reports “about forty houses of various descriptions, including a church, school-house, store-house, and barracks”; and he adds: “The school-house was quite a respectable establishment, well filled with pupils.”[55]
There were various small companies, of which that at Kadiak was the most considerable, all finally fused into one large trading company, known as the Russian American Company, organized in 1799, under a charter from the Emperor Paul, with the power of administration throughout the whole region, including coasts and islands. In this respect it was not unlike the East India Company, which has played such a part in English history; but it may be more properly compared to the Hudson’s Bay Company, of which it was a Russian counterpart. The charter was for a term of years, but it has been from time to time extended, and, as I understand, is now about to expire. The powers of the Company are sententiously described by the “Almanach de Gotha” for 1867, where, under the head of Russia, it says that “to the present time Russian America has been the property of a company.”
I know no limitation upon the Company, except that latterly it has been bound to appoint its chief functionary, called “Administrator General,” from the higher officers of the imperial navy, when he becomes invested with what are declared the prerogatives of a governor in Siberia. This requirement has doubtless secured the superior order of magistrates since enjoyed. Among these have been Baron Wrangell, an admiral, there at the time of the treaty with Great Britain in 1825; Captain Kuprianoff, who had commanded the Azof, a ship of the line, in the Black Sea, and spoke English well; Captain Etolin; Admiral Furuhelm, who, after being there five years, was made governor of the province of the Amoor; Admiral Woiwodsky; and Prince Maksutoff, an admiral also, who is the present Administrator General. The term of service is ordinarily five years.
The seat of government is the town of New Archangel, better known by its aboriginal name of Sitka, with a harbor as smooth and safe as a pond. Its present population cannot be far from one thousand, although even this is changeable. In spring, when sailors leave for the sea and trappers for the chase, it has been reduced to as few as one hundred and eighty. It was not without a question that Sitka at last prevailed as the metropolis. Lütke sets forth reasons elaborately urged in favor of St. Paul, on the island of Kadiak.[56]
The first settlement there was in 1800, by Baranoff, the superintendent of the Company, whose life was passed in this country, and whose name has been given to the island. But the settlement made slow progress. Lisiansky, who was there in 1804, records, that, “from his entrance into Sitka Sound, there was not to be seen on the shore the least vestige of habitation.”[57] The natives had set themselves against a settlement. Meanwhile the seat of government was at Kadiak, of which we have an early and friendly glimpse. I quote what Lisiansky says, as exhibiting in a favorable light the beginning of the government, now transferred to the United States.
“The island of Kadiak, with the rest of the Russian settlements along the northwest coast of America, are superintended by a kind of governor-general or commander-in-chief, who has agents under him, appointed, like himself, by the Company at Petersburg. The smaller settlements have each a Russian overseer. These overseers are chosen by the governor, and are selected for the office in consequence of their long services and orderly conduct. They have the power of punishing, to a certain extent, those whom they superintend; but are themselves amenable to the governor, if they abuse their power by acts of injustice. The seat of government is the Harbor of St. Paul, which has a barrack, different store-houses, several respectable wooden habitations, and a church, the only one to be found on the coast.”[58]
From this time the Company seems to have established itself on the coast. Lisiansky speaks of a single hunting party of nine hundred men, gathered from different places, as Alaska, Kadiak, Cook’s Inlet, Prince William Sound, and “commanded by thirty-six toyons, who are subordinate to the Russians in the service of the American Company, and receive from them their orders.”[59] From another source I learn that the inhabitants of Kadiak and of the Aleutian Islands were regarded as “immediate subjects of the Company,”—the males from eighteen to fifty being bound to serve it for the term of three years each. They were employed in the chase. The population of Alaska and of the two great bays, Cook’s Inlet and Prince William Sound, were also subject to the Company; but they were held to a yearly tax on furs, without regular service, and they could trade only with the Company; otherwise they were independent. This seems to have been before a division of the whole into districts, all under the Company, which, though primarily for the business of the Company, may be regarded as so many distinct jurisdictions, each with local powers of government.
Among these were two districts which I mention only to put aside, as not included in the present cession: (1.) the Kurile Islands, being the group nestling near the coast of Japan, on the Asiatic side of the dividing line between the two continents; (2.) the Ross settlement in California, now abandoned.