Government of India Act, 1919 (Montagu-Chelmsford Reforms)

At a Glance

• What it is A British law, also known as the Montagu-Chelmsford Reforms, that introduced dyarchy in the provinces and a two-House legislature at the centre
• Named after Montagu, the Secretary of State for India, and Lord Chelmsford, the Viceroy
• Came into force 1921, after the declaration of 20 August 1917
• Dyarchy Provincial subjects were divided into transferred and reserved subjects
• Firsts Bicameralism and direct elections in the country; separate provincial budgets
• Review A statutory commission after ten years, which led to the Simon Commission
• Exam link UPSC Prelims, Polity: Historical Background

Where Does It Fit in British Rule?

The Government of India Act, 1919 belongs to the Crown Rule (1858-1947). It came after the Indian Councils Act, 1909, and it was the first Act to follow a declared British aim of gradual responsible government in India. It was followed by the Government of India Act, 1935.

Why Was the Act Passed?

By 1917 the Indian National Congress and the All India Muslim League were both demanding self-government, and the First World War had strengthened these demands. On 20 August 1917, the British Government declared, for the first time, that its objective was the gradual introduction of responsible government in India. The Government of India Act of 1919 was enacted as a result. It rests on the report of Montagu, the Secretary of State for India, and Lord Chelmsford, the Viceroy, and so it is also called the Montagu-Chelmsford Reforms. It came into force in 1921.

Timeline

• 1909 The Indian Councils Act, the Morley-Minto Reforms
• 20 August 1917 The British Government declares its aim of responsible government
• 1919 The Government of India Act is passed
• 1921 The Act comes into force; the Chamber of Princes is inaugurated
• 1926 The Central Public Service Commission is set up
• November 1927 The Simon Commission is appointed, two years before the due date

What Did the Government of India Act, 1919 Provide?

Central and provincial subjects

The Act divided all the subjects of administration into two categories, central subjects and provincial subjects. This was done through the “Devolution Rules” framed under the Act. The rules helped to hand over authority from the centre to the provinces, and so the Act relaxed central control over the provinces. The central and provincial legislatures could make laws on their own lists of subjects. But the structure of government stayed centralised and unitary.

Dyarchy in the provinces

The Act further divided the provincial subjects into two parts, transferred and reserved. This dual scheme of governance was known as dyarchy, a term from the Greek word di-arche, which means double rule.

Dyarchy was introduced in eight provinces. The experiment was largely unsuccessful.

Two Houses and direct elections

For the first time in the country, the Act introduced bicameralism and direct elections. The Indian legislative council was replaced by a bicameral legislature of an Upper House, the Council of State, and a Lower House, the Legislative Assembly. The majority of members of both Houses were chosen by direct election. The Council of State had 60 members and the Legislative Assembly had 145. Their terms were five years and three years.

Indians in the Viceroy’s executive council

Of the six members of the Viceroy’s executive council, other than the Commander-in-Chief, three had to be Indians.

Communal representation extended

The Act extended the principle of communal representation by giving separate electorates to Sikhs, Indian Christians, Anglo-Indians and Europeans.

A limited franchise

The right to vote was given to a limited number of people, on the basis of property, tax or other qualifications.

New offices and rules

• A new office, the High Commissioner for India in London, was created, and some of the functions of the Secretary of State for India were transferred to him.
• The Act provided for a public service commission. A Central Public Service Commission was set up in 1926 for recruiting civil servants.
• For the first time, provincial budgets were separated from the Central budget, and the provincial legislatures could enact their own budgets.
• The Act provided for a statutory commission to inquire into and report on its working after ten years.

Chamber of Princes

The Act proposed a Chamber of Princes, also known as the Narendra Mandal. It was inaugurated in 1921 and had 120 members: princes of 108 states and 12 representatives of other states. The Viceroy headed it, and it helped consultation and discussion on matters of common interest.

Why Is the Act Important?

• Responsible government as an aim: The Act followed the first declaration, in 1917, that responsible government was the objective of British policy.
• Devolution: Dividing subjects between the centre and the provinces, and separating their budgets, relaxed central control over the provinces.
• Dyarchy: Ministers responsible to the legislative council ran some provincial subjects, which introduced the concept of provincial self-government.
• A two-House legislature: Direct election and a bicameral legislature were introduced in the country for the first time.
• Indians in the executive: Three of the six members of the Viceroy’s executive council, other than the Commander-in-Chief, were to be Indian.

What Were Its Limitations?

• A small electorate: Voting rights depended on property, tax or other qualifications, so only a small, privileged group could vote.
• Communal electorates spread: Separate electorates were extended to Sikhs, Indian Christians, Anglo-Indians and Europeans.
• Seats by importance: Seats in the central legislature were given to the provinces on the basis of their importance, such as the military importance of Punjab and the commercial importance of Bombay, and not on population.
• Dyarchy fell short: Finance and law and order stayed with the reserved subjects. Provincial ministers lacked power over finances and the bureaucracy, and their decisions were often overruled by governors.
• British control: Defence, foreign policy and major financial matters stayed under British control, and the Viceroy could veto laws and issue ordinances.
• Still unitary: The structure of government continued to be centralised and unitary.

How Does It Compare With the Act of 1909?

What Came Next?

The Act provided for a statutory commission after ten years. In November 1927, two years before the due date, the British Government appointed the Simon Commission, a seven-member commission under Sir John Simon. All its members were British, and so all the parties boycotted it. It submitted its report in 1930. The report, the round table conferences and a White Paper led to the Government of India Act, 1935.

Key People and Terms

• Edwin Montagu Secretary of State for India at the time of the Act
• Lord Chelmsford Viceroy of India at the time of the Act
• Devolution Rules The rules framed under the Act that divided subjects between the centre and the provinces
• Dyarchy Double rule in the provinces, with transferred and reserved subjects
• Transferred subjects Provincial subjects run by the Governor with Ministers responsible to the legislative council
• Reserved subjects Provincial subjects run by the Governor and his executive council, not responsible to the legislative council
• Council of State The Upper House of the Central legislature
• Legislative Assembly The Lower House of the Central legislature
• High Commissioner for India An office created in London, with some functions of the Secretary of State
• Chamber of Princes Also called Narendra Mandal; a forum for the princes, inaugurated in 1921

Exam Corner

Mains Angle

The Act of 1919 is a key Mains topic, because it brought in responsible government for the first time, and only in part. Use these points to add depth.

• A new aim: The declaration of 1917 said, for the first time, that the aim was the gradual introduction of responsible government in India. The Act followed it, and it introduced the concept of provincial self-government.
• Devolution without federation: The Act relaxed central control over the provinces by dividing subjects and budgets, but the structure of government continued to be centralised and unitary.
• Dyarchy and why it fell short: Dyarchy was a double rule in the provinces. Transferred subjects went to Ministers responsible to the legislative council, while finance and law and order stayed reserved. Ministers lacked power over finance and the bureaucracy, and governors often overruled them. The experiment was largely unsuccessful.
• Election, and its limits: Direct election and a bicameral legislature came for the first time, but the franchise was limited by property, tax and other qualifications. Seats were allotted to provinces by their importance, and communal electorates grew.
• Review built in: The Act provided for a commission after ten years. The Simon Commission was appointed in 1927, and all parties boycotted it because it had only British members.