The Mongolian Issue was one that had long been ignored by many in the region. The competition between the Russians and Chinese to formally establish their sovereignty over the nation of Mongolia had torn the people apart, and as Russia and China both fell to warlordism and the diseases associated with it, the situation only continued to grow out of hand as some like Ataman Semyonov declared a pan-Mongolian state free of foreign influence while the Bogd Khan struggled to maintain the unity of the tribes in Outer Mongolia.

Japan could not afford to simply look on the sidelines as the Russian state, or rather the lack thereof, threatened to spill over into Mongolian affairs. The violent revolutionaries that spread like a cancer all over Russia and Siberia were not something to be taken lightly at this time, and the weakness of both the Chinese and the Russians would only serve to weaken the Mongolians themselves against any spread of this revolutionary cancer. Therefore, the Japanese decided if no one else would, they would solve the issue themselves.

The Japanese formally invite Ataman Semyonov, representing Russian interests, the Bogd Khan or a representative thereof to represent Mongolian interests, and a representative from the Beiyang government to represent Chinese interests. This would be hosted in Vladivostok, neutral and safe territory, and serve to replace the corrupt and ineffective Kyakhta Agreement. The Japanese hoped to strengthen the Mongolian state at all costs, to serve as a barrier against extremism of all forms.