for nonwhites, and distinctly limited roles for British and other European settlers. These "Uitlanders" were the base of the economy, paid 80 percent of the taxes, and had no vote. The Transvaal was in no sense a democracy, argues Roberts, for no black, Britain, Catholic or Jew was allowed to vote or hold any office. Johannesburg was the business centre, with 50,000 primarily British residents, but was not permitted any local government. The English language was banned in official proceedings; no public meetings were permitted; newspapers were closed down arbitrarily; and full citizenship was technically possible but quite rare. Roberts says President Paul Kruger "ran a tight, tough, quasi-police state from his state capital, Pretoria." the British government officially protested; while theoretically recognizing the Transvaal's right to manage its internal affairs, cabinet member Joseph Chamberlain detailed the many ways how Uitlanders were mistreated as second-class non-citizens, despite their essential role in producing prosperity. The Boer response to the British pressure was to declare war on 20 October 1899. The 410,000 Boers were massively outnumbered, but amazingly they waged a successful guerrilla war, which gave the British regulars a difficult fight. The Boers were landlocked and did not have access to outside help. The weight of numbers, superior equipment, and often brutal tactics eventually brought about a British victory. To defeat the guerrillas, the British rounded up their women and children into concentration camps, where many died of disease. World outrage focused on the camps, led by a large faction of the Liberal Party in Britain. However, the United States gave its support. The Boer republics were merged into Union of South Africa in 1910; it had internal self-government but its foreign policy was controlled by London and was an integral part of the British Empire. The unexpectedly great difficulty in defeating the Boers forced a reevaluation of British policy. In military terms, it was clear that the Cardwell reforms had been inadequate. The call to establish a general staff to control military operations had been shelved by the Duke of Cambridge, himself a royal with enormous authority. It took a five more years to set up a general staff and other Army reforms, under the administration of Lord Haldane. The Royal Navy was now threatened by Germany. Britain responded by a massive building programme launched in 1904 by the highly controversial First Sea Lord, John Fisher. He launched in 1906.