If, as I have already said I expect, it may be my duty by-and-by to recommend to the Crown the name of an Indian member, it will not be solely for the sake of placing on the Viceroy's Executive Council an Indian member simply as either a Hindu or a Mahomedan. Decidedly we are of opinion that the Governor-General in Council will be all the more likely to transact business wisely, if he has a responsible Indian adviser at his elbow. But the principle in making such a recommendation to the Crown, would be to remove the apparent disability in practice--for there is no disability in law--of an Indian holding a certain appointment because he is an Indian. That is a principle we do not accept; and the principle I should go upon--and I know Lord Minto would say exactly the same--is the desirability of demonstrating that we hold to the famous promise made in the proclamation of Queen Victoria in 1858, that if a man is fully qualified in proved ability and character to fill a certain post, he shall not be shut out by race or religious faith. There is a very great deal more to be said on this most important subject; but to-day I need only tell you--which I do with all respect, without complaining of what you have said, and without denying that in practical usage some day there may be means of alternation for meeting your difficulty--I see no chance whatever of our being able to comply with your present request.

I have endeavoured to meet you as fairly as I possibly could. I a.s.sure you again we are acting in earnest, with zeal and entire good faith; and any suggestion that any member of the Government, either in this office or the Government of India, has any prejudice whatever against Mahomedans, for the purposes of political administration in India, is one of the idlest and most wicked misapprehensions that could possibly enter into the political mind. I am greatly encouraged by having met you. I am sure that you speak in the name of important bodies of your own countrymen and of your own community. I am sure that you are going to look at our proposals in a fair and reasonable spirit, and give us credit for a desire to do the best that we possibly can in the interests of all the communities in India, including also the interests of the British Government. I can only tell you further, that if this action of ours fails, miscarries, and is wrecked, it will be a considerable time before another opportunity occurs. You will never again--I do not care whether the time be long or be short--you will never again have the combination of a Secretary of State and a Viceroy, who are more thoroughly in earnest in their desire to improve Indian government, and to do full justice to every element of the Indian population.

VII

SECOND READING OF INDIAN COUNCILS BILL

(HOUSE OF LORDS, FEBRUARY 23, 1909)

MY LORDS. I invite the House to take to-day the first definite and operative step in carrying out the policy that I had the honour of describing to your Lordships just before Christmas, and that has occupied the active consideration both of the Home Government and of the Government of India for very nearly three years. The statement was awaited in India with an expectancy that with time became impatience, and it was received in India--and that, after all, is the point to which I looked with the most anxiety--with intense interest and attention and various degrees of approval, from warm enthusiasm to cool a.s.sent and acquiescence.

A few days after the arrival of my despatch, a deputation waited upon the Viceroy unique in its comprehensive character. Both Hindus and Mahomedans were represented; and they waited upon the Viceroy to offer warm expressions of grat.i.tude for the scheme that was unfolded before them. A few days later at Madras the Congress met; they, too, expressed their thanks to the Home Government and to the Government of India. The Moslem League met at Amritsar; they were warm in their approval of the policy which they took to be foreshadowed in the despatch, though they found fault with the defects they thought they had discovered in the scheme, and implored the Government, both in India and here, to remedy those defects. So far as I know--and I do beg your Lordships to note these details of the reception of our policy in India--there has been no sign in any quarter, save in the irreconcilable camp, of anything like organised hostile opinion among either Indians or Anglo-Indians.

The Indian Civil Service I will speak of very shortly. I will pa.s.s them by for the moment. Lord Lansdowne said truly the other night that when I spoke at the end of December, I used the words "formidable and obscure" as describing the situation, and he desired to know whether I thought the situation was still obscure and formidable. I will not abandon the words, but I think the situation is less formidable and less obscure. Neither repression on the one hand, nor reform on the other, could possibly be expected to cut the roots of anarchical crime in a few weeks. But with unfaltering repression on the one hand, and vigour and good faith in reform on the other, we see solid reason to hope that we shall weaken, even if we cannot destroy, those baleful forces.

There are, I take it, three cla.s.ses of people that we have to consider in dealing with a scheme of this kind. There are the extremists, who nurse fantastic dreams that some day they will drive us out of India.

In this group there are academic extremists and physical force extremists, and I have seen it stated on a certain authority--it cannot be more than a guess--that they do not number, whether academic or physical force extremists, more than one-tenth, or even three per cent. of what are called the educated cla.s.s in India. The second group nourish no hopes of this sort; they hope for autonomy or self-government of the colonial species and pattern. The third section in this cla.s.sification ask for no more than to be admitted to co-operation in our administration, and to find a free and effective voice in expressing the interests and needs of their people. I believe the effect of the reforms has been, is being, and will be, to draw the second cla.s.s, who hope for colonial autonomy, into the ranks of the third cla.s.s, who will be content with admission to a fair and workable co-operation. A correspondent wrote to me the other day and said:--

"We seem to have caught many discontented people on the rebound, and to have given them an excuse for a loyalty which they have badly wanted."

In spite of all this, it is a difficult and critical situation. Still, by almost universal admission it has lost the tension that strained India two or three months ago, and public feeling is tranquillised, certainly beyond any expectation that either I or the Viceroy ventured to entertain.

The atmosphere has changed from dark and sullen to hopeful, and I am sure your Lordships will allow me to be equally confident that nothing will be done at Westminster to overcloud that promising sky. The n.o.ble Marquess the other day said--and I was delighted to hear it--that he, at all events, would give us, with all the reservations that examination of the scheme might demand from him, a whole-hearted support here, and his best encouragement to the men in India. I accept that, and I lean upon it, because if anything were done at Westminster, either by delay or otherwise, to show a breach in what ought to be the substantial unity of Parliamentary opinion in face of the Indian situation, it would be a marked disaster. I would venture on the point of delay to say this. Your Lordships will not suspect me of having any desire to hurry the Bill, but I remember that when Lord Cross brought in the Bill of 1892 Lord Kimberley, so well known and so popular in this House, used language which I venture to borrow from him, and to press upon your Lordships to-day--

"I think it almost dangerous to leave a subject of this kind hung up to be perpetually discussed by all manner of persons, and, having once allowed that, at all events, some amendment is necessary in regard to the mode of const.i.tuting the Legislative Councils, it is inc.u.mbent upon the Government and Parliament to pa.s.s the Bill which they may think expedient as speedily as possible into law."

Considerations of social order and social urgency in India make that just as useful to be remembered to-day, as it was useful then.

The n.o.ble Marquess the other day, in a very courteous manner, administered to me an exhortation and an admonition--I had almost said a lecture--as to the propriety of deferring to the man on the spot, and the danger of quarrelling with the man on the spot. I listened with becoming meekness and humility, but then it occurred to me that the language of the n.o.ble Marquess was not original. Those n.o.ble Lords who share the Bench with him, gave deep murmurs of approval to the homily that was administered to me. They forgot that they once had a man on the spot, the man then being that eminent and distinguished personage whom I may be allowed to congratulate upon his restoration to health and to his place in this a.s.sembly. He said this, which the n.o.ble Marquess will see is a fair original for his own little discourse; it was said after the n.o.ble Lord had thrown up the reins--

"What I wish to say to high officers of State and members of Government is this, as far as you can trust the man on the spot.

Do not weary or fret or nag him with your superior wisdom. They claim no immunity from errors of opinion or judgment, but their errors are nothing compared with yours."

The remonstrance, therefore, of Lord Curzon, addressed to the n.o.ble Lords sitting near him, is identical with the warning which I have laid to heart from the n.o.ble Marquess.

The House will pardon me if for a moment I dwell upon what by application is an innuendo conveyed in the admonition of the n.o.ble Marquess. I have a suspicion that he considered his advice was needed; he expressed the hope that all who were responsible for administration in India would have all the power for which they had a right to ask.

Upon that I can--though I am half reluctant to do it--completely clear my character. In December last, shortly before I addressed your Lordships, Lord Minto, having observed there was some talk of my interference with him and his Council, telegraphed these words, and desired that I should make use of them whenever I thought fit--

"I hope you will say from me in as strong language as you may choose to use, that in all our dealings with sedition I could not be more strongly supported than I have been by you. The question of the control of Indian administration by the Secretary of State, mixed up as it is with the old difficulties of centralisation, we may very possibly look at from different points of view. But that has nothing to do with the support the Secretary of State gives to the Viceroy, and which you have given to me in a time of great difficulty, and for which I shall always be warmly grateful."

The MARQUESS OF LANSDOWNE: I think the n.o.ble Viscount will see from the report of my speech, that the part he has quoted had reference to measures of repression, and that what I said was that justice should be prompt, that it was undesirable that there should be appeals from one Court to another, or from provincial Governments to the Government in Calcutta, or from the Government at Calcutta to the Secretary of State for India. I did not mean to imply merely the Viceroy, but the men responsible for local government.

VISCOUNT MORLEY: I do not think that when the n.o.ble Marquess refers to the report of his speech he will find I have misrepresented him. At all events, he will, I do believe, gladly agree that, in dealing with sedition, I have on the whole given all the support the Government of India or anybody else concerned had a right to ask for.

I will now say a word about the Indian Civil Service. Three years ago, when we began these operations, I felt that a vital condition of success was that we should carry the Indian Civil Service with us, and that if we did not do this, we should fail. But human nature being what it is, and temperaments varying as they do, it is natural to expect a certain amount of criticism, minute criticism, and observation, I have had that, but will content myself with one quotation from the Lieutenant-Governor of Bengal, well known to the n.o.ble Lord opposite. What did he say, addressing the Legislative Council a few weeks ago?--

"I hold that a solemn duty rests upon the officers of Government in all branches, and more particularly upon the officers of the Civil Service, so to comport themselves in the inception and working of the new measures as to make the task of the people and their leaders easy. It is inc.u.mbent upon them loyally to accept the principle that these measures involve the surrender of some portion of the authority and control which they now exercise, and some modifications of the methods of administration. If that task is approached in a grudging or reluctant spirit, we shall be sowing the seeds of failure, and shall forfeit our claim to receive the friendly co-operation of the representatives of the people. We must be prepared to support, defend, and carry through the administrative policy, and in a certain degree even the executive acts of the Government in the Council, in much the same way as is now prescribed in regard to measures of legislation; and we must further be prepared to discharge this task without the aid of a standing majority behind us. We will have to resort to the more difficult arts of persuasion and conciliation, in the place of the easier methods of autocracy. This is no small demand to make on the resources of a service whose training and traditions have hitherto led its members rather to work for the people, than through the people or their representatives. But I am nevertheless confident that the demand will not be made in vain. For more than a hundred years, in the time of the Company and under the rule of the Crown, the Indian Civil Service has never failed to respond to whatever call has been made upon it or to adapt itself to the changing environment of the time. I feel no doubt that officers will be found who possess the natural gifts, the loyalty, the imagination, and the force of character which will be requisite for the conduct of the administration under the more advanced form of government to which we are about to succeed."

These words I commend to your Lordships. They breathe a fine and high spirit; they admirably express the feeling of a sincere man; and I do not believe anybody who is acquainted with the Service doubts that this spirit, so admirably expressed, will pervade the Service in the admittedly difficult task that now confronts them.

The Bill is a short one, and will speak for itself. I shall be brief in referring to it, for in December last I made what was practically a Second-Reading speech. I may point out that there are two rival schools, and that the n.o.ble Lord opposite (Lord Curzon) may be said to represent one of them. There are two rival schools, one of which believes that better government of India depends on efficiency, and that efficiency is in fact the main end of our rule in India. The other school, while not neglecting efficiency, looks also to what is called political concession. I think I am doing the n.o.ble Lord no injustice in saying that, during his remarkable Vice-royalty, he did not accept the necessity for political concession, but trusted to efficiency. I hope it will not be bad taste to say in the n.o.ble Lord's presence, that you will never send to India, and you have never sent to India, a Viceroy his superior, if, indeed, his equal, in force of mind, in unsparing and remorseless industry, in pa.s.sionate and devoted interest in all that concerns the well-being of India, with an imagination fired by the grandeur of the political problem that India presents--you never sent a man with more of all these attributes than when you sent Lord Curzon. But splendidly designed as was his work from the point of view of efficiency, he still left in India a state of things, when we look back upon it, that could not be held a satisfactory crowning of a brilliant and ambitious career.

I am as much for efficiency as the n.o.ble Lord, but I do not believe--and this is the difference between him and myself--that you can now have true, solid, endurable efficiency without what are called political concessions. I know the risks. The late Lord Salisbury, speaking on the last Indian Councils Bill, spoke of the risk of applying occidental machinery in India. Well, we ought to have thought of that before we applied occidental education; we applied that, and a measure of occidental machinery must follow. Legislative Councils once called into existence, then it was inevitable that you would have gradually, in Lord Salisbury's own phrase, to popularise them, so as to bring them into harmony with the dominant sentiments of the people in India. The Bill of 1892 admittedly contained the elective principle, and our Bill to-day extends that principle. The n.o.ble Lord (Viscount Cross) will remember the Bill of 1892, of which he had charge in the House of Commons. I want the House to be good enough to follow the line taken by Mr. Gladstone, because I base myself on that.

There was an amendment moved and it was going to a division, but Mr.

Gladstone begged his friends not to divide, because, he said, it was very important that we should present a substantial unity to India.

This is upon the question of either House considering a Bill like the Bill that is now on the Table--a mere skeleton of a Bill if you like.

I see it has been called vague and sketchy. It cannot be anything else, on the broad principle set out by Mr. Gladstone--

"It is the intention of the Government [that is, the Conservative Government] that a serious effort shall be made to consider carefully those elements which India in its present condition may furnish, for the introduction into the Councils of India of the elective principle. If that effort is seriously to be made, by whom is it to be made? I do not think it can be made by this House, except through the medium of empowering provisions. The best course we could take would be to commend to the authorities of India what is a clear indication of the principles on which we desire them to proceed. It is not our business to devise machinery for the purpose of Indian Government. It is our business to give to those who represent Her Majesty in India ample information as to what we believe to be sound principles of Government: and it is, of course, the function of this House to comment upon any case in which we may think they have failed to give due effect to those principles."

I only allude to Mr. Gladstone's words, in order to let the House know that I am taking no unusual course in leaving the bulk of the work, the details of the work, to the Government of India. Discussion, therefore, in Parliament will necessarily not, and cannot, turn substantially upon details. But no doubt it is desirable that the main heads of the regulations, rules, and proclamations to be made by the Government of India under sanction of the India Office, should be more or less placed within the reach and knowledge of the House so far as they are complete. The principles of the Bill are in the Bill, and will be affirmed, if your Lordships are pleased to read it a second time. The Committee points, important as they are, can well be dealt with in Committee. The view of Mr. Gladstone was cheerfully accepted by the House of Commons then, and I hope it will be accepted by your Lordships to-day.

There is one very important chapter in these regulations, which I think now on the Second Reading of the Bill, without waiting for Committee, I ought to say a few words to your Lordships about--I mean the Mahomedans. That is a part of the Bill and scheme that has no doubt attracted a great deal of criticism, and excited a great deal of feeling in that important community. We suggested to the Government of India a certain plan. We did not prescribe it, we did not order it, but we suggested and recommended this plan for their consideration--no more than that. It was the plan of a mixed or composite electoral college, in which Mahomedans and Hindus should pool their votes, so to say. The wording of the recommendation in my despatch was, as I soon discovered, ambiguous--a grievous defect, of which I make bold to hope I am not very often in public business guilty. But, to the best of my belief, under any construction the plan of Hindus and Mahomedans voting together, in a mixed and composite electorate, would have secured to the Mahomedan electors, wherever they were so minded, the chance of returning their own representatives in their due proportion.

The political idea at the bottom of this recommendation, which has found so little favour, was that such composite action would bring the two great communities more closely together, and this hope of promoting harmony was held by men of high Indian authority and experience who were among my advisers at the India Office. But the Mahomedans protested that the Hindus would elect a pro-Hindu upon it, just as I suppose in a mixed college of say seventy-five Catholics and twenty-five Protestants voting together, the Protestants might suspect that the Catholics voting for the Protestant would choose what is called a Romanising Protestant, and as a little of a Protestant as they could find. Suppose the other way. In Ireland there is an expression, a "shoneen" Catholic--that is to say, a Catholic who, though a Catholic, is too friendly with English Conservatism and other influences which the Nationalists dislike. And it might be said, if there were seventy-five Protestants against twenty-five Catholics, that the Protestants when giving a vote in the way of Catholic representation, would return "shoneens." I am not going to take your Lordships' time up by arguing this to-day. With regard to schemes of proportional representation, as Calvin said of another study, "Excessive study of the Apocalypse either finds a man mad, or makes him so." At any rate, the Government of India doubted whether our plan would work, and we have abandoned it. I do not think it was a bad plan, but it is no use, if you are making an earnest attempt in good faith at a general pacification, to let parental fondness for a clause interrupt that good process by sitting obstinately tight.

The Mahomedans demand three things. I had the pleasure of receiving a deputation from them, and I know very well what is in their minds.

They demand the election of their own representatives to these councils in all the stages, just as in Cyprus, where I think, the Mahomedans vote by themselves. They have nine votes and the non-Mahomedans have three, or the other way about. So in Bohemia, where the Germans vote alone and have their own register. Therefore we are not without a precedent and a parallel, for the idea of a separate register. Secondly, they want a number of seats somewhat in excess of their numerical strength. Those two demands we are quite ready and intend to meet in full. There is a third demand that, if there is a Hindu on the Viceroy's Executive Council--a subject on which I will venture to say something to your Lordships before I sit down--there should be two Indian members on the Viceroy's Council and one should be a Mahomedan. Well, as I told them and as I now tell your Lordships, I see no chance whatever of meeting their views in that way.

To go back to the point of the registers, some may be shocked at the idea of a religious register at all, a register framed on the principle of religious belief. We may wish--we do wish--that it were otherwise. We hope that time, with careful and impartial statesmanship, will make things otherwise. Only let us not forget that the difference between Mahomedanism and Hinduism is not a mere difference of articles of religious faith or dogma. It is a difference in life, in tradition, in history, in all the social things as well as articles of belief, that const.i.tute a community. Do not let us forget what makes it interesting and even exciting. Do not let us forget that, in talking of Hindus and Mahomedans, we are dealing with, and are brought face to face with, vast historic issues. We are dealing with the very mightiest forces that through all the centuries and ages have moulded the fortunes of great States and the destinies of countless millions of mankind. Thoughts of that kind, my Lords, are what give to Indian politics and to Indian work extraordinary fascination, though at the same time they impose the weight of an extraordinary burden.

I come to the question which, I think, has excited, certainly in this country, more interest than anything else in the scheme before you--I mean the question of an Indian member on the Viceroy's Executive Council. The n.o.ble Marquess said here the other day that he hoped an opportunity would be given for discussing it. "Whether it is in order or not--am too little versed in your Lordships' procedure to be quite sure--but I am told that the rules of order in this House are of an elastic description and that I shall not be trespa.s.sing beyond what is right, if I introduce the point to-night." I thoroughly understand Lord Lansdowne's anxiety for a chance of discussion. It is quite true, and the House should not forget it, that this question is in no way whatever touched by the Bill. If this Bill were rejected by Parliament, it would be a grievous disaster to peace and contentment in India, but it would not prevent the Secretary of State the very next morning from advising His Majesty to appoint an Indian member of the Viceroy's Executive Council.

The n.o.ble Marquess the other day fell into a slight error, if he will forgive me for saying so. He said that the Government of India had used cautious and tentative words, indicating that it would be premature to decide at once this question of the Indian member until after further experience had been gained. I think the n.o.ble Marquess must have lost his way in the mazes of that enormous Blue-book which, as he told us, caused him so much inconvenience, and added so much to his excess luggage during the Christmas holidays. The despatch, as far as I can discover, is silent altogether on the topic of the Indian member of the Viceroy's Council, and deals only with the Councils of Bombay and Madras and the proposed Councils for the Lieutenant-Governorships.

Perhaps I might be allowed to remind your Lordships of the Act of 1833--certainly the most extensive and important measure of Indian government between Mr. Pitt's famous Act of 1784, and Queen Victoria's a.s.sumption of the government of India in 1858. There is nothing more important than that Act. It lays down in the broadest way possible the desire of Parliament that there should be no difference in appointing to offices in India between one race and another, and the covering despatch written by that memorable man, James Mill, wound up by saying that--

"For the future, fitness is to be the criterion of eligibility."

I need not quote the famous paragraph in the Queen's Proclamation of 1858. Every Member of the House who takes an interest in India, knows that by heart. Now, the n.o.ble Marquess says that his anxiety is that nothing shall be done to impair the efficiency of the Viceroy's Council. I share that anxiety with all my heart. I hope the n.o.ble Marquess will do me the justice to remember that in these plans I have gone beyond the Government of India, in resolving that a permanent official majority shall remain in the Viceroy's Council. Lord MacDonnell said the other day:--

"I believe you cannot find any individual native gentleman who is enjoying general confidence, who would be able to give advice and a.s.sistance to the Governor-General in Council."

Well, for that matter, it has been my lot twice to fill the not very exhilarating post of Chief Secretary for Ireland, and I do not believe I can truly say I ever met in Ireland a single individual native gentleman who "enjoyed general confidence." And yet I received at Dublin Castle most excellent and competent advice. Therefore I am not much impressed by that argument. The question is whether there is no one of the 300 millions of the population of India, who is competent to be the officially-const.i.tuted adviser of the Governor-General in Council in the administration of Indian affairs. You make an Indian a judge of the High Court, and Indians have even been acting Chief Justices. As to capacity, who can deny that they have distinguished themselves as administrators of native States, where a very full demand is made on their resources, intellectual and moral? It is said that the presence of an Indian member would cause restraint in the language of discussion. For a year and a half we have had two Indians on the Council of India, and we have none of us ever found the slightest restraint.

Then there is the question, What are you going to do about the Hindu and the Mahomedan? When Indians were first admitted to the High Courts, for a long time the Hindus were more fit and competent than the Mahomedans; but now I am told the Mahomedans have their full share. The same sort of operation would go on in quinquennial periods in respect of the Viceroy's Council. Opinion amongst the great Anglo-Indian officers now at home is divided, but I know at least one, not at all behind Lord MacDonnell in experience or mental grasp, who is strongly in favour of this proposal. One circ.u.mstance that cannot but strike your Lordships as remarkable, is the comparative absence of hostile criticism of this idea by the Anglo-Indian Press, and, as I am told, in Calcutta society. I was apprehensive at one time that it might be otherwise. I should like to give a concrete ill.u.s.tration of my case. The n.o.ble Marquess opposite said the other day that there was going to be a vacancy in one of the posts on the Viceroy's Executive Council--that is, the legal member's time would soon be up. Now, suppose there were in Calcutta an Indian lawyer of large practice and great experience in his profession--a man of unstained professional and personal repute, in close touch with European society, and much respected, and the actual holder of important legal office. Am I to say to this man--"In spite of all these excellent circ.u.mstances to your credit; in spite of your undisputed fitness; in spite of the emphatic declaration of 1833 that fitness is to be the criterion of eligibility; in spite of the n.o.ble promise in Queen Victoria's Proclamation of 1858--a promise of which every Englishman ought to be for ever proud if he tries to adhere to it, and ashamed if he tries to betray or to mock it--in spite of all this, usage and prejudice are so strong, that I dare not appoint you, but must instead fish up a stranger to India from Lincoln's Inn or the Temple?" Is there one of your Lordships who would envy the Secretary of State, who had to hold language of that kind to a meritorious candidate, one of the King's equal subjects? I press it on your Lordships in that concrete way.

Abstract general arguments are slippery. I do not say there is no force in them, but there are deeper questions at issue to which both I and the Governor-General attach the greatest importance. My Lords, I thank you for your attention, and I beg to move the Second Reading.

VIII

INDIAN PROBATIONERS