Canada negotiated it without a British delegate at the table and without ratification from the British Parliament; though not official, convention stated that the United Kingdom would have a seat at the table or be a signatory to any agreement Canada was part of. King argued the situation only concerned Canada and the United States. After, the British accepted King's intentions to send a separate Canadian diplomat to Washington D.C. (to represent Canada's interests) rather than a British one. At the 1923 Imperial Conference, Britain accepted the Halibut Treaty, arguing it set a new precedent for the role of British Dominions. King expanded the Department of External Affairs, founded in 1909, to further promote Canadian autonomy from Britain. The new department took some time to develop, but over time it significantly increased the reach and projection of Canadian diplomacy. Prior to this, Canada had relied on British diplomats who owed their first loyalty to London. After the King–Byng episode, King recruited many high-calibre people for the new venture, including future prime minister Lester Pearson and influential career administrators Norman Robertson and Hume Wrong. This project was a key element of his overall strategy, setting Canada on a course independent of Britain, of former colonizer France, as well as of the neighbouring powerful United States. Throughout his tenure, King led Canada from a dominion with responsible government to an autonomous nation within the British Commonwealth. King asserted Canadian autonomy against the British government's attempts to turn the Commonwealth into an alliance. His biographer asserts that "in this struggle Mackenzie King was the constant aggressor". The Canadian High Commissioner to Britain, Vincent Massey, claimed that an "anti-British bias" was "one of the most powerful factors in his make-up". Other reforms In domestic affairs, King strengthened the Liberal policy of increasing the powers of the provincial governments by transferring to the governments of Manitoba, Alberta, and Saskatchewan the ownership of the crown lands within those provinces, as well as the subsoil rights; these in particular would become increasingly important, as petroleum and other natural resources proved very abundant. In collaboration with the provincial governments, he inaugurated a system of old-age pensions based on need. In February 1930, he appointed Cairine Wilson as the first female senator in Canadian history. Reductions in taxation were carried out such as exemptions under the sales tax on commodities and enlarged exemptions of income tax, while in 1929