a supporter of the tsar, but he could not compete with the powerful court factions that dominated the government. Historians have debated whether Russia had the potential to develop a constitutional government between 1905 and 1914. The failure to do so was partly because the tsar was not willing to give up autocratic rule or share power. By manipulating the franchise, the government obtained progressively more conservative, but less representative, Dumas. Moreover, the regime sometimes bypassed the conservative Dumas and ruled by decree. Active Balkan policy, 1906–1913 Russia's earlier Far Eastern policy required holding Balkan issues in abeyance, a strategy Austria-Hungary also followed between 1897 and 1906. Japan's victory in 1905 had forced Russia to make deals with the British and the Japanese. In 1907 Russia's new foreign minister, Aleksandr Izvol'skiy, concluded agreements with both nations. To maintain its sphere of influence in northern Manchuria and northern Persia, Russia agreed to Japanese ascendancy in southern Manchuria and Korea, and to British ascendancy in southern Persia, Afghanistan, and Tibet. The logic of this policy demanded that Russia and Japan unite to prevent the United States from establishing a base in China by organizing a consortium to develop Chinese railroads. After China's republican revolution of 1911, Russia and Japan recognized each other's spheres of influence in Inner Mongolia. In an extension of this reasoning, Russia traded recognition of German economic interests in the Ottoman Empire and Persia for German recognition of various Russian security interests in the region. Russia also protected its strategic and financial position by entering the informal Triple Entente with Britain and France, without antagonizing Germany. In spite of these careful measures, after the Russo-Japanese War Russia and Austria-Hungary resumed their Balkan rivalry, focusing on the Kingdom of Serbia and the provinces of Bosnia and Herzegovina, which Austria-Hungary had occupied since 1878. In 1881 Russia secretly had agreed in principle to Austria's future annexation of Bosnia and Herzegovina. But in 1908, Izvol'skiy consented to support formal annexation in return for Austria's support for revision of the agreement on the neutrality of the Bosporus and Dardanelles—a change that would give Russia special navigational rights of passage. Britain stymied the Russian gambit by blocking the revision, but Austria proceeded with the annexation. Then, backed by German threats of war, Austria-Hungary exposed Russia's weakness by forcing Russia to disavow support for Serbia. After Austria-Hungary's annexation of Bosnia and Herzegovina, Russia became a