Indian Councils Act, 1909 (Morley-Minto Reforms)
Indian Polity › Historical Background · Topic 1.7
The Indian Councils Act, 1909, also known as the Morley-Minto Reforms, was a British law that raised the Central legislative council from 16 to 60 members, recognised the elective principle, placed the first Indian in the Viceroy's executive council and introduced a separate electorate for Muslims.
8 min read · UPSC Prelims · Polity · Historical Background
At a Glance
- What it is A British law of 1909, also known as the Morley-Minto Reforms, that enlarged the legislative councils and brought in elections and separate electorates
- Named after Lord Morley, the Secretary of State for India, and Lord Minto, the Viceroy
- Central council Members raised from 16 to 60
- First Indian in the Viceroy’s executive council Satyendra Prasad Sinha, as Law Member
- Separate electorate Introduced for Muslims; Lord Minto came to be known as the Father of the Communal Electorate
- Part of a series The third of the three Acts of association: 1861, 1892 and 1909
- Exam link UPSC Prelims, Polity: Historical Background
Where Does It Fit in British Rule?
The Indian Councils Act, 1909 belongs to the Crown Rule (1858-1947). After the revolt of 1857, the British government followed a policy of association with Indians through three Acts, in 1861, 1892 and 1909. The Act of 1909 is the third of them.
Why Was the Act Passed?
By the early twentieth century Indian nationalism had risen, and the Indian National Congress, founded in 1885, was asking for a larger part for Indians in governance. The Partition of Bengal in 1905 set off wide protests. In October 1906 a group of Muslim leaders, led by the Aga Khan, met Lord Minto at Simla and asked for separate electorates for Muslims. Gopal Krishna Gokhale also went to England to put the Congress’s demands before Lord Morley. The Viceroy, Lord Minto, and the Secretary of State, Lord Morley, agreed that some reforms were needed to satisfy both the Moderates and the Muslims. These reforms are known as the Morley-Minto Reforms, and they were made law by the Indian Councils Act of 1909.
Timeline
- 1885 The Indian National Congress is founded
- 1892 The Indian Councils Act: a limited and indirect provision for election
- 1905 The Partition of Bengal
- October 1906 The Simla Deputation meets Lord Minto
- 1909 The Indian Councils Act, the Morley-Minto Reforms
- 1917 The British Government declares that its aim is responsible government in India
- 1919 The Government of India Act, the Montagu-Chelmsford Reforms
What Did the Indian Councils Act, 1909 Provide?
Bigger councils
The Act considerably increased the size of the legislative councils, both Central and provincial. The number of members in the Central legislative council was raised from 16 to 60. The number of members in the provincial legislative councils was not uniform.
Official and non-official majority
The Act kept the official majority in the Central legislative council, but it allowed the provincial legislative councils to have a non-official majority. Some of the non-official members were nominated and not elected.
Election, and an indirect one
The elective principle was recognised for non-official seats. The election was indirect: local bodies elected an electoral college, which elected the members of the provincial councils, and they in turn elected the members of the Central council.
More powers for the councils
The Act enlarged the deliberative functions of the legislative councils at both levels. For example, members were allowed to ask supplementary questions and to move resolutions on the budget.
Indians in the executive councils
For the first time, the Act provided for the association of Indians with the executive councils of the Viceroy and the Governors. Satyendra Prasad Sinha became the first Indian to join the Viceroy’s executive council, as the Law Member.
Separate electorates
The Act introduced a system of communal representation for Muslims, by accepting the concept of a separate electorate. Under it, Muslim members were to be elected only by Muslim voters. The income qualification for Muslim voters was lower than that for Hindus. The Act is said to have “legalised communalism”, and Lord Minto came to be known as the Father of the Communal Electorate.
Other special seats
The Act also provided for the separate representation of presidency corporations, chambers of commerce, universities and zamindars.
Why Is the Act Important?
- The elective principle: The Act recognised election as a way of choosing non-official members, though only on the basis of class and community.
- Larger and stronger councils: The Central council grew from 16 to 60 members, and members could now ask supplementary questions and move resolutions on the budget.
- Indians in the executive: It was the first time that an Indian joined the Viceroy’s executive council.
- Foundation for later reform: It set the stage for the Montagu-Chelmsford Reforms of 1919.
What Were Its Limitations and Criticisms?
- Separate electorates: This was the most controversial part of the Act. It was seen as an attempt to divide and rule, and it deepened communal tensions.
- Limited power: The councils had little real authority, particularly in budgetary and legislative matters, and the British government kept ultimate control. The official majority stayed in the Central council.
- Tokenism: Critics said the reforms were meant to appease Indian leaders while British control stayed.
- No responsible government: Lord Morley stated clearly that colonial self-government, which the Congress wanted, was not suited to India.
- A complex election: The indirect system of election was complex.
How Does It Compare With the Act of 1892?
| Point | Indian Councils Act, 1892 | Indian Councils Act, 1909 |
|---|---|---|
| Central council | 10 to 16 additional members | Members raised from 16 to 60 |
| Election | Limited and indirect provision; the word was not used | Elective principle recognised, with indirect election |
| Official majority | Kept in the Central and provincial councils | Kept in the Central council; provincial councils could have a non-official majority |
| Budget | Could be discussed, not voted on | Members could move resolutions on the budget |
| Questions | No supplementary questions | Supplementary questions allowed |
| Indians in executive councils | None | For the first time: Satyendra Prasad Sinha |
| Separate electorate | None | Introduced for Muslims |
What Came Next?
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, 1919 was enacted as a result. It is also known as the Montagu-Chelmsford Reforms, because Montagu was the Secretary of State for India and Lord Chelmsford was the Viceroy. It came into force in 1921.
Key People and Terms
- Lord Morley Secretary of State for India at the time of the Act
- Lord Minto Viceroy at the time of the Act; known as the Father of the Communal Electorate
- Satyendra Prasad Sinha The first Indian member of the Viceroy’s executive council, as Law Member
- Separate electorate A system in which members of a community are elected only by voters of that community
- Communal representation Representation of a religious community in the councils as a community
- Supplementary question A further question that a member puts after the first answer; allowed from 1909
- Indirect election Election in which voters choose an electoral college, which chooses the members
Exam Corner
Points to Remember
- The Act of 1909 is also called the Morley-Minto Reforms.
- The Central legislative council grew from 16 to 60 members.
- The official majority stayed in the Central council, but provincial councils could have a non-official majority.
- Members could ask supplementary questions and move resolutions on the budget.
- Satyendra Prasad Sinha was the first Indian in the Viceroy’s executive council, as Law Member.
- Muslims got a separate electorate, and Lord Minto is called the Father of the Communal Electorate.
- There was also separate representation for presidency corporations, chambers of commerce, universities and zamindars.
Do Not Confuse With
- Indian Councils Act, 1892: a limited and indirect provision for election, no supplementary questions and no resolutions on the budget.
- Indian Councils Act, 1861: began the nomination of Indians to the Viceroy’s council.
- Government of India Act, 1919: the Montagu-Chelmsford Reforms, which followed the declaration of 1917.
Memory Hook
1909 in one line: 16 to 60, indirect election, an Indian in the Viceroy’s council, and a separate electorate for Muslims.
Mains Angle
The Morley-Minto Reforms are a classic Mains topic, because they brought in both election and communal representation. Use these points to add depth.
- Why the reforms came: Rising nationalism, the protests after the Partition of Bengal and the demands of both the Congress and the Muslim deputation led Morley and Minto to agree on reforms to satisfy the Moderates and the Muslims.
- The elective principle: The Act recognised election as a method for choosing non-official members, though the election was indirect and Indians could vote only on the basis of their class and community.
- Separate electorates and their effect: Muslim members were elected only by Muslim voters, and the Act is said to have legalised communalism. Critics saw it as a way to divide and rule, and it deepened communal tensions.
- Power stayed with the government: The official majority stayed in the Central council, the councils had little real authority, and Lord Morley opposed a parliamentary or responsible government in India.
- A first for Indians: Satyendra Prasad Sinha became the first Indian to join the Viceroy’s executive council, as Law Member.
A Question You May Face
An original practice question, not a past paper question.
“The Indian Councils Act, 1909 recognised the elective principle but sowed the seeds of communal division.” Discuss.
How to Answer
- Introduction: Rising nationalism and the demands of the Congress and a Muslim deputation led to the Morley-Minto Reforms.
- The elective principle: larger councils, indirect election, supplementary questions, budget resolutions and the first Indian in the Viceroy’s executive council.
- Communal division: the separate electorate for Muslims, the lower income qualification for Muslim voters, and the criticism that the Act legalised communalism and meant to divide and rule.
- Limits and conclusion: The official majority stayed at the centre and the British kept control. The declaration of 1917 and the Act of 1919 came next.
GS Relevance
Frequently Asked Questions
What was the Indian Councils Act, 1909?
The Indian Councils Act, 1909, also known as the Morley-Minto Reforms, was a British law that enlarged the legislative councils, recognised the elective principle, gave Indians a place in the executive councils and introduced a separate electorate for Muslims.
Why is the Indian Councils Act, 1909 called the Morley-Minto Reforms?
It is named after Lord Morley, who was the Secretary of State for India, and Lord Minto, who was the Viceroy of India. The two agreed on the reforms, which were then made law by the Act of 1909.
How did the Act of 1909 change the size of the councils?
The Act raised the number of members in the Central legislative council from 16 to 60. The number of members in the provincial legislative councils was not uniform, and the provincial councils were allowed to have a non-official majority.
Who was the first Indian member of the Viceroy's executive council?
Satyendra Prasad Sinha was the first Indian to join the Viceroy's executive council, under the Act of 1909. He was appointed as the Law Member. It was the first time Indians were associated with the executive councils.
What was the separate electorate under the 1909 Act?
Under the separate electorate, Muslim members were to be elected only by Muslim voters. The income qualification for Muslim voters was also lower than for Hindus. The Act is said to have legalised communalism, and Lord Minto became known as the Father of the Communal Electorate.
What new powers did the councils get in 1909?
The councils got more deliberative functions. Members were allowed to ask supplementary questions and to move resolutions on the budget. These were powers that the Act of 1892 had not given them, since under it members could discuss the budget but not move resolutions on it.
Did the Act of 1909 end the official majority?
No. The Act kept the official majority in the Central legislative council. It allowed the provincial legislative councils to have a non-official majority, although some of the non-official members were nominated and not elected, so the non-elected majority remained.
What is the difference between the Indian Councils Acts of 1892 and 1909?
The 1892 Act made a limited and indirect provision for election and gave no supplementary questions or budget resolutions. The 1909 Act raised the Central council to 60 members, recognised election, allowed both powers and gave Muslims a separate electorate.
PYQ Practice — Statement Analysis
1 The Indian Councils Act, 1909 is also known as the Morley-Minto Reforms.
Lord Morley was the Secretary of State for India and Lord Minto was the Viceroy.
2 The Indian Councils Act, 1909 raised the number of members in the Central legislative council from 16 to 60.
The number of members in the provincial legislative councils was not uniform.
3 The Indian Councils Act, 1909 abolished the official majority in the Central legislative council.
It kept the official majority in the Central council, but allowed provincial councils to have a non-official majority.
4 Satyendra Prasad Sinha was the first Indian to join the Viceroy's executive council, as Law Member.
The Act of 1909 provided, for the first time, for the association of Indians with the executive councils of the Viceroy and Governors.
5 Under the Act of 1909, Muslim members were elected by all the voters of a constituency.
Under the separate electorate, Muslim members were elected only by Muslim voters.
Related Topics
Browse the full Indian Polity index