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Rh demands for office and emolument, and when they discovered that the shah, acting by the advice of the British envoy, was levying from among their tribesmen regiments to be directly under his control, they took care that the plan should fail. Without a regular revenue no effective administration could be organized; but the attempt to raise taxes showed that it might raise the people, so that for both men and money the shah’s government was still obliged to rely principally upon British aid. All these circumstances combined to render the new régime weak and unpopular, since there was no force at the ruler’s command except foreign troops to put down disorder or to protect those who submitted, while the discontented nobles fomented disaffection and the inbred hatred of strangers in race and religion among the general Afghan population.

British and Russian Relations.—It has been said that the declared object of this policy had been to maintain the independence and integrity of Afghanistan, to secure the friendly alliance of its ruler, and thus to interpose a great barrier of mountainous country between the expanding power of Russia in Central Asia and the British dominion in India. After 1849, when the annexation of the Punjab had carried the Indian north-western frontier up to the skirts of the Afghan highlands, the corresponding advance of the Russians south-eastward along the Oxus river became of closer interest to the British, particularly when, in 1856, the Persians again attempted to take possession of Herat. Dost Mahommed now became the British ally, but on his death in 1863 the kingdom fell back into civil war, until his son, Shere Ali, had won his way to undisputed rulership in 1868. In the same year Bokhara became a dependency of Russia. To the British government an attitude of non-intervention in Afghan affairs appeared in this situation to be no longer possible. The meeting between the amir Shere Ali and the viceroy of India (Lord Mayo) at Umballa in 1869 drew nearer the relations between the two governments; the amir consolidated and began to centralize his power; and the establishment of a strong, friendly and united Afghanistan became again the keynote of British policy beyond the north-western frontier of India.

When, therefore, the conquest of Khiva in 1873 by the Russians, and their gradual approach towards the amir’s northern border, had seriously alarmed Shere Ali, he applied for support to the British; and his disappointment at his failure to obtain distinct pledges of material assistance, and at Great Britain’s refusal to endorse all his claims in a dispute with Persia over Seistan, so far estranged him from the British Connexion that he began to entertain amicable overtures from the Russian authorities at Tashkend. In 1869 the Russian government had assured Lord Clarendon that they regarded Afghanistan as completely outside the sphere of their influence; and in 1872 the boundary line of Afghanistan on the north-west had been settled between England and Russia so far eastward as Lake Victoria.

Nevertheless the correspondence between Kabul and Tashkend continued, and as the Russians were now extending their dominion over all the region beyond Afghanistan on the north-west, the British government determined, in 1876, once more to undertake active measures for securing their political ascendancy in that country. But the amir, whose feelings of resentment had by no means abated, was now leaning toward Russia, though he mainly desired to hold the balance between two equally formidable rivals. The result of overtures made to him from India was that in 1877, when Lord Lytton, acting under direct instructions from Her Majesty’s ministry, proposed to Shere Ali a treaty of alliance, Shere Ali showed himself very little disposed to welcome the offer; and upon his refusal to admit a British agent into Afghanistan the negotiations finally broke down.

Second Afghan War, 1878–80.—In the course of the following year (1878) the Russian government, to counteract the interference of England with their advance upon Constantinople, sent an envoy to Kabul empowered to make a treaty with the amir. It was immediately notified to him from India that a British mission would be deputed to his capital, but he demurred to receiving it; and when the British envoy was turned back on the Afghan frontier hostilities were proclaimed by the Viceroy in November 1878, and the second Afghan War began. Sir Donald Stewart’s force, marching up through Baluchistan by the Bolan Pass, entered Kandahar with little or no resistance; while another army passed through the Khyber Pass and took up positions at Jalalabad and other places on the direct road to Kabul. Another force under Sir Frederick Roberts marched up to the high passes leading out of Kurram into the interior of Afghanistan, defeated the amir’s troops at the Peiwar Kotal, and seized the Shutargardan Pass which commands a direct route to Kabul through the Logar valley. The amir Shere Ali fled from his capital into the northern province, where he died at Mazar-i-Sharif in February 1879. In the course of the next six months there was much desultory skirmishing between the tribes and the British troops, who defeated various attempts to dislodge them from the positions that had been taken up; but the sphere of British military operations was not materially extended. It was seen that the farther they advanced the more difficult would become their eventual retirement; and the problem was to find a successor to Shere Ali who could and would make terms with the British government.

In the meantime Yakub Khan, one of Shere Ali’s sons, had announced to Major Cavagnari, the political agent at the headquarters of the British army, that he had succeeded his father at Kabul. The negotiations that followed ended in the conclusion of the treaty of Gandamak in May 1879, by which Yakub Khan was recognized as amir; certain outlying tracts of Afghanistan were transferred to the British government; the amir placed in its hands the entire control of his foreign relations, receiving in return a guarantee against foreign aggression; and the establishment of a British envoy at Kabul was at last conceded. By this convention the complete success of the British political and military operations seemed to have been attained; for whereas Shere Ali had made a treaty of alliance with, and had received an embassy from Russia, his son had now made an exclusive treaty with the British government, and had agreed that a British envoy should reside permanently at his court. Yet it was just this final concession, the chief and original object of British policy, that proved speedily fatal to the whole settlement. For in September the envoy, Sir Louis Cavagnari, with his staff and escort, was massacred at Kabul, and the entire fabric of a friendly alliance went to pieces. A fresh expedition was instantly despatched across the Shutargardan Pass under Sir Frederick Roberts, who defeated the Afghans at Charasia near Kabul, and entered the city in October. Yakub Khan, who had surrendered, was sent to India; and the British army remained in military occupation of the district round Kabul until in December (1879) its communications with India were interrupted, and its position at the capital placed in serious jeopardy, by a general rising of the tribes. After they had been repulsed and put down, not without some hard fighting, Sir Donald Stewart, who had not quitted Kandahar, brought a force up by Ghazni to Kabul, overcoming some resistance on his way, and assumed the supreme command. Nevertheless the political situation was still embarrassing, for as the whole country beyond the range of British effective military control was masterless, it was undesirable to withdraw the troops before a government could be reconstructed which could stand without foreign support, and with which diplomatic relations of some kind might be arranged. The general position and prospect of political affairs in Afghanistan bore, indeed, an instructive resemblance to the situation just forty years earlier, in 1840, with the important differences that the Punjab and Sind had since become British, and that communications between Kabul and India were this time secure.

Reign of Abdur Rahman.—Abdur Rahman, the son of the late amir Shere Ali’s elder brother, had fought against Shere Ali in the war for succession to Dost Mahommed, had been driven beyond the Oxus, and had lived for ten years in exile with the Russians. In March 1880 he came back across the river, and began to establish himself in the northern province of Afghanistan. The viceroy of India, Lord Lytton, on hearing of his