Russia's geography demands four separate fleets

Could Imperial Russia actually build up to whatever naval treaty limit it received?

Only with difficulty; foreign orders and captured German yards could help, but four separated fleet areas would multiply industrial, basing, and personnel demands.

Russia could claim that treaty tonnage must cover the Baltic, Black Sea, Pacific, and northern or Arctic theaters rather than one concentrated battle fleet. That geography multiplies the need for docks, escorts, bases, repair capacity, and trained personnel. Newly acquired German coastline and yards around Danzig could provide modern facilities, while French bases might support Mediterranean operations. Russia could also place foreign orders if domestic yards could not meet the allowance. The nominal right to build a large fleet would therefore exceed the empire's immediate ability to crew, maintain, and distribute it effectively.