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At the turn of the twentieth century the Russian navy was in a difficult position. Traditionally, its main theatre of operations was the Baltic Sea. By 1896, a new threat and a new potential theatre of naval operations had emerged in the Pacific. Between 1876 and 1915 roughly one-quarter of the world's land surface was annexed by the European imperialist powers and the United States. The Russian Ministry of Finance insisted that the new naval construction programme should be completed in 1905, although the rival Japanese programme was intended to reach fruition significantly earlier. As a result of the naval construction programmes, by the first years of the twentieth century Russia had moved into third place among the world's navies, with 229 ships as against Britain's 460 and France's 391. The structure and governance of the fleet and the Naval Ministry were defined by the laws of 1885 and 1888.
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