However, Japanese government felt a strong sense of crisis over Russia which sent more soldiers and immigrants to Sakhalin and pushed Japan into an inferior position, and established the Sakhalin Development Commission in 1870, and the vice chief of the Commission, Kiyotaka KURODA, was assigned to oversee the administrative matters of Sakhalin.
兵士と移民を送りこむロシアに対し、日本が劣勢に立たされていることに強い危機感を抱いた政府は、明治3年（1870年）に樺太開拓使を設置し、黒田清隆を開拓使次官にして樺太専務を命じた。