It thus
displayed the expansion of British India almost to its modern limits,
but dealt only with the earliest British attempts to build up a workable
method of government.
displayed the expansion of British India almost to its modern limits,
but dealt only with the earliest British attempts to build up a workable
method of government.
Cambridge History of India - v4 - Indian Empire
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## p. (#1) ##################################################
## p. (#2) ##################################################
## p. i (#3) ################################################
THE CAMBRIDGE HISTORY OF INDIA
IN SIX VOLUMES
VOLUME VI
The Indian Empire
1858-1918
With additional Chapters 1919-1969
## p. ii (#4) ###############################################
1
?
irgini
## p. iii (#5) ##############################################
THE
CAMBRIDGE
HISTORY OF INDIA
VOLUME VI
The Indian Empire
1858–1918
With chapters on the development
of Administration 1818-1858
EDITED BY
H. H. DODWELL, M. A.
PROFESSOR OF THE HISTORY AND CULTURE OF THE BRITISH
DOMINIONS IN ASIA, IN THE UNIVERSITY OF LONDON
AND
Chapters XXXIV to XXXVIII
(1919-1969)
Ву
V. D. MAHAJAN, PH. D.
S. CHAND & CO.
DELHI-NEW DELHI-JULLUNDUR-WCKNOW-BOMBAY
CALCUTTA-MADRAS-HYDERABAD-PATNA
THE PENNSYLVANIA STATE UNIVERSITY
LIBRARY, Capitol Campus Middletown. Pa. 17057
## p. iv (#6) ###############################################
S. CHAND & CO.
H. O. : RAM NAGAR, NEW DELHI-55
Branches:
Fountain, Delhi
32, Ganesh Chandra Ave. , Calcutta
Mai Hiran Gate, Jullundur
35, Mount Road, Madras
Aminabad Park, Lucknow
Sultan Bazar, Hyderabad
167, Lamington Road, Bombay
Exhibition Road, Patna
Published in India by S. Chand & Co. , by arrangement
with the Cambridge University Press, London.
Syndics of the Cambridge University are not responsible
for the chapters written by Dr. V. D. Mahajan.
Price Rs. 60 00
Printed at Rajendra Printers, Ram Nagar, New Delhi-55
## p. v (#7) ################################################
INTRODUCTION
The previous volunie narrated the expansion of British power down
to the conquest of the Panjab and the Second Burmese War, and the
development of the administrative system do'yn to 1818 under the
guidance of Cornwallis in Bengal and of Munro in Madras. It thus
displayed the expansion of British India almost to its modern limits,
but dealt only with the earliest British attempts to build up a workable
method of government. The present volume, in the first place, carries
this latter development from 1818 down to the outbreak of the Indian
Mutiny. This period, in which the supremacy of the East India
Company was virtually uncontested, displayed great activity and
produced notable reforms. The belief that the Company's govern-
ment was obscurantist or reactionary lacks foundation. Without
exception the governors-general took high views of their obligations,
while many of the Company's servants regarded themselves as pre-
eminently the servants of India. Under them the administrative
system took its final shape, with many local variations necessitated
by variations in the land tenures of the British provinces; and this new
system, in strong contrast with the system originally introduced by
Cornwallis, was based upon the plan of securing the fullest and most
detailed knowledge of social and economic conditions. In almost
every province district administration embraced large elements of
personal government; and many collectors of the period were till
recent times remembered with reverence in the districts which they
had ruled. As has been well said, had the Company's government
perished in the Mutiny, the later period of its rule would have been
long remembered as a golden age. But the development of good
district government was by no means the sole achievement of that
generation. Sati and thagi were suppressed, and female infanticide
greatly lessened, while the introduction of the railway and the tele-
graph, the extension of irrigation, the conservation of forests, the
spread of missionary activity and the growth of western education
brought India into contact of a new and fruitful kind with the external
world.
India's first answer to these beneficent changes was the Mutiny.
In ultimate analysis that movement was a Brahman reaction against
a
## p. vi (#8) ###############################################
vi
INTRODUCTION
influences which, given free play, would revolutionise the mental,
moral, and social condition of the country. It acted through the sepoy
army because that was the only organised body through which
Brahman sentiment could express itself; it acted through the Bengal
section of the sepoy troops because that alone included numerous
Brahmans and because its discipline was far more relaxed than that
of either the Madras or the Bombay sepoys. But this weapon was
broken by the very use to which it was put. The sepoys lost coherence
with the loss of their English officers. With the exception of Tantia
Topi no Indian leader of note emerged. Except in Oudh the sepoys
found no popular support. India indeed still had no common con-
sciousness. It was disunited, cloven into numberless mutually indif.
ferent or even hostile sections by caste, creed and distance, just as it
had always been. Therefore the force of the Mutiny was broken
before help arrived from England; and when help at last came, the
Mutiny was quickly crushed. If on the one hand it bequeathed to
the survivors heart-breaking memories of slaughtered women, of
broken trust, of wholesale executions, on the other the fact of its sup-
pression exposed India to the more intense application of those
westernising forces which had provoked its occurrence. The
Company vanished, but the queen's government took its place and
rapidly tightened the control exercised from London. Foreign
policy, almost completely limited to the protection of India from the
Russian menace, was more closely than ever knit up with European
politics. And the centre of interest tended to shift from external
policy to internal development. India reached a higher degree
of union than it had ever before known. Under the pressure of
political fact the Indian states ceased to be the dependent but
external allies of 1858 and became integral parts of a new empire
of India. At the same time a new social phenomenon emerged. The
spread of western education in the cities of India and the growing
demand for administrative and professional services created a new
class of society-educated in western knowledge and possessed of
professional qualifications. This new class was essentially urban and
almost ex lusively Brahman. In English it possessed a common
vehicle of thought. Railways and telegraphs brought the cities of
India into new and intimate relations. The rise of an Indian
press
gave voice to common interests and aspirations. Hence emerged a
new sense of unity, limited to a single class and not as yet touching
## p. vii (#9) ##############################################
INTRODUCTION
vii
a
rural India, but diffused througnout every city of the land. The
British government had in fact created the conditions under which
nationalist sentiment could arise. The purposes contemplated from
afar by Company's servants like Thomas Munro were being realised
by the seryants of the crown.
This political was accompanied by a great economic development.
Indian finance was handled by a succession of remarkably able men
with prudence and foresight. Debt was incurred mainly for productive
works which increased the wealth of the country in a degree incom-
parably greater than their cost. Irrigation, railways, agricultural
improvements, co-operative credit, all helped to create an India in
which wealth was more widely diffused than it had been for many
centuries, and permitted the development of a famine policy which
gradually ended that great scourge of humanity.
Such were two of the three main developments which mark out
the two generations which followed the Indian Mutiny. The third
consisted of a series of efforts, still actively continuing, to transform
into an organic state the inorganic despotism which the crown had
inherited from the Company, and the Company from the former
Indian governments. It was the greatest political experiment ever
attempted. It had no precedent. The peoples of Asia had created
great civilisations, and formed themselves into strong, well-knit and
durable social groups, but their political organisation had seldom
risen above the primitive community of the village. In this respect
the history of the Aryan invaders of India is most instructive. They
seem to have carried with them the same political gifts as their
brethren displayed in classical Greece and Rome. They belonged
to the stock which created the science and the art of politics. At the
dawn of history they dimly appear in India organised in modes which
might well have developed into an active political life. But their
tribal institutions and self-governing townships withered and decayed
under the Indian sun. The kings and emperors who arose after them
were ever limited in their action by social and religious influences
but never shared their power with political institutions. Therefore
when the rising middle class of Indians began to demand political
reform, and when the British government began to consider how best
to give effect to this demand, neither side could turn for guidance to
oriental political experience and were compelled to base their plans
on the alien ideas of the west Hence the purely British form taken
## p. viii (#10) ############################################
viii
INTRODUCTION
4
alike by the demands of the Indian National Congress and the
provisions of the various statutes designed to change the nature of
political power in India.
Such is the subject matter of the following pages. It presses closely
on the events of to-day.
Incedis per ignes
Suppositos cineri doloso.
Perhaps the more accurate and sober the statement, the less likely it
is to win general approval. But the present work may at least claim
to gather together in a single volume not only a wealth of personal
knowledge and experience but also the information scattered through
a multitude of blue-books, of statutes, of acts of the Indian legis-
latures; to present the views of policy uttered both by governors-
general and secretaries of state and by Indian political leaders; above
all at the present moment it aspires to show clearly and firmly the
historical background, without some knowledge of which political
decisions become matters of mere sentiment and chance.
H. H. D.
September 1932
1
## p. ix (#11) ##############################################
TABLE OF CONTENTS
ADMINISTRATIVE DEVELOPMENT, 1818–1858
CHAPTER I
PAGE
I
1
IMPERIAL LEGISLATION AND THE SUPERIOR
GOVERNMENTS, 1818-1857
By H. H. DODWELL, M. A. , Professor of the history and culture of the
British dominions in Asia in the University of London.
The Whig tradition
The Act of 1813
The reforms of 1833
Legal anomalies
Legislative powers
5
The law member.
7
The law commissions
The government of Bengal
Recruitment of the covenanted service
The position of Indians
Slavery :
Relations of the Company and the board
Recall of the governor-general
13
Decay of the Company's position.
15
The Act of 1853
16
Competitive examinations
16
Reform of the legislature
17
The effects of competitive examinations
19
7
II
OG GT
Cooconvoiciw
CHAPTER II
DISTRICT ADMINISTRATION IN BENGAL, 1818-1858
By Sir H. VERNEY LOVETT, K. C. S. I. , late Reader in Indian History
in the University of Oxford.
20
21
22
22
Limits of the presidency
Neglect of the local problems of Bengal
Appointment of a lieutenant-governor .
Regulation system
District organisation
Police organisation
The magistrate-and-collector
Effects of the Permanent Settlement
Communications
Thagi
Dacoity
Primitive tribes
Mutiny in Bengal
CHIVI
26
28
30
31
33
34
35
35
b
## p. x (#12) ###############################################
х
CONTENTS
1
CHAPTER III
DISTRICT ADMINISTRATION IN MADRAS, 1818-1857
By A. BUTTERWORTH, C. S. I. , formerly Chief Secretary to
the Government of Madras.
PAGE
38
38
38
39
40
40
41
42
42
Annexation of Kurnool
Troubles in Canara
Mopla rebellions
Rebellions in the Circars
Human sacrifice
Slavery.
Government of the presidency
District organisation
Courts of law
Land-revenue system
Revenue survey
Malabar tenures
Inam tenures
Irrigation
District police
Mohatarfa
Salt revenue
Abkari
Reorganisation of the police
49
49
50
51
52
52
53
54
55
Civil surgeons
57
CHAPTER IV
DISTRICT ADMINISTRATION IN BOMBAY, 1818–1857
By the late S. M. EDWARDES, C. S. I. , C. V. O.
Growth of the presidency
Early organisation
The mamlatdar
Taxation
Administration of justice
Rcforms of 1830
Bombay legislation
Education
Police system
ministration of Sind
Jail
Public works and other departments
60
61
62
63
67
69
68
69
71
73
74
## p. xi (#13) ##############################################
CONTENTS
xi
CHAPTER V
.
DISTRICT ADMINISTRATION IN THE UNITED
PROVINCES, CENTRAL PROVINCES, AND
THE PANJAB, 1818-1857
By SIR PATRICK FAGAN, K. C. I. E.
PAGE
Formation of the United Provinces, etc.
75
The regulation system
76
Its application
77
Early police system
78
Criminal law
79
The land-revenue settlement
80
The village community
82
Tenant-right
Irrigation
Famines
Abkari
86
Municipalities
86
The non-regulation system
87
Panjab administration under Ranjit Singh
88
The Board of Administration
90
Early British administration in the Panjab
91
Public works
92
John Lawrence's administration
93
83
84
84
CHAPTER VI
EDUCATION AND MISSIONS TO 1858
By Sir H. VERNEY LOVETT, K. C. S. I.
Warren Hastings's policy
Charles Grant's Observations
The Serampur Mission
David Hare.
Indigenous schools in Bengal
The discussions of 1813
Foundation of the Vidyalaya
Ram Mohan Roy's petition.
The Committee of Public Instruction
The orientalist controversy
Elphinstone's efforts in Bombay
Munro's Madras plan
Alexander Duff's views
Macaulay's minute
Orientalist opposition.
Adam's reports
The Council of Education
Thomason's scheme in the North-Western Provinces
Slowness of progress
The dispatch of 1854 .
95
97
98
99
100
102
104
105
106
107
107
108
109
III
112
114
115
116
117
118
## p. xii (#14) #############################################
xii
CONTENTS
CHAPTER VII
7
SOCIAL POLICY TO 1858
.
.
By Sir H. VERNEY LOVETT, K. C. S. I
The Company's chaplains
Danish missionaries
Policy of religious toleration
Activity of Protestant missions
Ecclesiastical establishments
Disabilities of Indian Christians
Religious festivals and temple endowments
Slavery
Sacrifice of children at Sagar Island
Female infanticicie
The question of sati
Protests against permission
Carey's description
The nizamat adalat's report.
The rules of 1812-1815
Ewer's remonstrance
Other protests
Company's orders of 1823
Ram Mohan Roy's petition
Bentinck resolves to prohibit sati .
PAGE
121
121
I 22
123
124
125
125
127
128
129
131
133
134
135
135
137
139
139
140
140
1
CHAPTER VIII
THE COMPANY'S MARINE
By the late S. M. EDWARDES, C. S. I. , C. V. O.
>
144
144
145
146
The Surat squadron
Early wars with Gheria
The Bombay dockyard
Growth of the Marine, 1740-72
Capture of the Ranger
Co-operation with Hughes
Organisation of the Marine .
Marine regulations
Services in the Persian Gulf. and elsewhere
The Indian Marine
Later developments
Marine surveys
147
147
147
148
149
150
151
151
.
## p. xiii (#15) ############################################
CONTENTS
xiii
CHAPTER IX
THE ARMIES OF THE EAST INDIA COMPANY
>
PAGE
By Lt. -Col. SIR WOLESLEY Haig, K. C. I. E. , C. S. I. , C. M. G.
It thus
displayed the expansion of British India almost to its modern limits,
but dealt only with the earliest British attempts to build up a workable
method of government. The present volume, in the first place, carries
this latter development from 1818 down to the outbreak of the Indian
Mutiny. This period, in which the supremacy of the East India
Company was virtually uncontested, displayed great activity and
produced notable reforms. The belief that the Company's govern-
ment was obscurantist or reactionary lacks foundation. Without
exception the governors-general took high views of their obligations,
while many of the Company's servants regarded themselves as pre-
eminently the servants of India. Under them the administrative
system took its final shape, with many local variations necessitated
by variations in the land tenures of the British provinces; and this new
system, in strong contrast with the system originally introduced by
Cornwallis, was based upon the plan of securing the fullest and most
detailed knowledge of social and economic conditions. In almost
every province district administration embraced large elements of
personal government; and many collectors of the period were till
recent times remembered with reverence in the districts which they
had ruled. As has been well said, had the Company's government
perished in the Mutiny, the later period of its rule would have been
long remembered as a golden age. But the development of good
district government was by no means the sole achievement of that
generation. Sati and thagi were suppressed, and female infanticide
greatly lessened, while the introduction of the railway and the tele-
graph, the extension of irrigation, the conservation of forests, the
spread of missionary activity and the growth of western education
brought India into contact of a new and fruitful kind with the external
world.
India's first answer to these beneficent changes was the Mutiny.
In ultimate analysis that movement was a Brahman reaction against
a
## p. vi (#8) ###############################################
vi
INTRODUCTION
influences which, given free play, would revolutionise the mental,
moral, and social condition of the country. It acted through the sepoy
army because that was the only organised body through which
Brahman sentiment could express itself; it acted through the Bengal
section of the sepoy troops because that alone included numerous
Brahmans and because its discipline was far more relaxed than that
of either the Madras or the Bombay sepoys. But this weapon was
broken by the very use to which it was put. The sepoys lost coherence
with the loss of their English officers. With the exception of Tantia
Topi no Indian leader of note emerged. Except in Oudh the sepoys
found no popular support. India indeed still had no common con-
sciousness. It was disunited, cloven into numberless mutually indif.
ferent or even hostile sections by caste, creed and distance, just as it
had always been. Therefore the force of the Mutiny was broken
before help arrived from England; and when help at last came, the
Mutiny was quickly crushed. If on the one hand it bequeathed to
the survivors heart-breaking memories of slaughtered women, of
broken trust, of wholesale executions, on the other the fact of its sup-
pression exposed India to the more intense application of those
westernising forces which had provoked its occurrence. The
Company vanished, but the queen's government took its place and
rapidly tightened the control exercised from London. Foreign
policy, almost completely limited to the protection of India from the
Russian menace, was more closely than ever knit up with European
politics. And the centre of interest tended to shift from external
policy to internal development. India reached a higher degree
of union than it had ever before known. Under the pressure of
political fact the Indian states ceased to be the dependent but
external allies of 1858 and became integral parts of a new empire
of India. At the same time a new social phenomenon emerged. The
spread of western education in the cities of India and the growing
demand for administrative and professional services created a new
class of society-educated in western knowledge and possessed of
professional qualifications. This new class was essentially urban and
almost ex lusively Brahman. In English it possessed a common
vehicle of thought. Railways and telegraphs brought the cities of
India into new and intimate relations. The rise of an Indian
press
gave voice to common interests and aspirations. Hence emerged a
new sense of unity, limited to a single class and not as yet touching
## p. vii (#9) ##############################################
INTRODUCTION
vii
a
rural India, but diffused througnout every city of the land. The
British government had in fact created the conditions under which
nationalist sentiment could arise. The purposes contemplated from
afar by Company's servants like Thomas Munro were being realised
by the seryants of the crown.
This political was accompanied by a great economic development.
Indian finance was handled by a succession of remarkably able men
with prudence and foresight. Debt was incurred mainly for productive
works which increased the wealth of the country in a degree incom-
parably greater than their cost. Irrigation, railways, agricultural
improvements, co-operative credit, all helped to create an India in
which wealth was more widely diffused than it had been for many
centuries, and permitted the development of a famine policy which
gradually ended that great scourge of humanity.
Such were two of the three main developments which mark out
the two generations which followed the Indian Mutiny. The third
consisted of a series of efforts, still actively continuing, to transform
into an organic state the inorganic despotism which the crown had
inherited from the Company, and the Company from the former
Indian governments. It was the greatest political experiment ever
attempted. It had no precedent. The peoples of Asia had created
great civilisations, and formed themselves into strong, well-knit and
durable social groups, but their political organisation had seldom
risen above the primitive community of the village. In this respect
the history of the Aryan invaders of India is most instructive. They
seem to have carried with them the same political gifts as their
brethren displayed in classical Greece and Rome. They belonged
to the stock which created the science and the art of politics. At the
dawn of history they dimly appear in India organised in modes which
might well have developed into an active political life. But their
tribal institutions and self-governing townships withered and decayed
under the Indian sun. The kings and emperors who arose after them
were ever limited in their action by social and religious influences
but never shared their power with political institutions. Therefore
when the rising middle class of Indians began to demand political
reform, and when the British government began to consider how best
to give effect to this demand, neither side could turn for guidance to
oriental political experience and were compelled to base their plans
on the alien ideas of the west Hence the purely British form taken
## p. viii (#10) ############################################
viii
INTRODUCTION
4
alike by the demands of the Indian National Congress and the
provisions of the various statutes designed to change the nature of
political power in India.
Such is the subject matter of the following pages. It presses closely
on the events of to-day.
Incedis per ignes
Suppositos cineri doloso.
Perhaps the more accurate and sober the statement, the less likely it
is to win general approval. But the present work may at least claim
to gather together in a single volume not only a wealth of personal
knowledge and experience but also the information scattered through
a multitude of blue-books, of statutes, of acts of the Indian legis-
latures; to present the views of policy uttered both by governors-
general and secretaries of state and by Indian political leaders; above
all at the present moment it aspires to show clearly and firmly the
historical background, without some knowledge of which political
decisions become matters of mere sentiment and chance.
H. H. D.
September 1932
1
## p. ix (#11) ##############################################
TABLE OF CONTENTS
ADMINISTRATIVE DEVELOPMENT, 1818–1858
CHAPTER I
PAGE
I
1
IMPERIAL LEGISLATION AND THE SUPERIOR
GOVERNMENTS, 1818-1857
By H. H. DODWELL, M. A. , Professor of the history and culture of the
British dominions in Asia in the University of London.
The Whig tradition
The Act of 1813
The reforms of 1833
Legal anomalies
Legislative powers
5
The law member.
7
The law commissions
The government of Bengal
Recruitment of the covenanted service
The position of Indians
Slavery :
Relations of the Company and the board
Recall of the governor-general
13
Decay of the Company's position.
15
The Act of 1853
16
Competitive examinations
16
Reform of the legislature
17
The effects of competitive examinations
19
7
II
OG GT
Cooconvoiciw
CHAPTER II
DISTRICT ADMINISTRATION IN BENGAL, 1818-1858
By Sir H. VERNEY LOVETT, K. C. S. I. , late Reader in Indian History
in the University of Oxford.
20
21
22
22
Limits of the presidency
Neglect of the local problems of Bengal
Appointment of a lieutenant-governor .
Regulation system
District organisation
Police organisation
The magistrate-and-collector
Effects of the Permanent Settlement
Communications
Thagi
Dacoity
Primitive tribes
Mutiny in Bengal
CHIVI
26
28
30
31
33
34
35
35
b
## p. x (#12) ###############################################
х
CONTENTS
1
CHAPTER III
DISTRICT ADMINISTRATION IN MADRAS, 1818-1857
By A. BUTTERWORTH, C. S. I. , formerly Chief Secretary to
the Government of Madras.
PAGE
38
38
38
39
40
40
41
42
42
Annexation of Kurnool
Troubles in Canara
Mopla rebellions
Rebellions in the Circars
Human sacrifice
Slavery.
Government of the presidency
District organisation
Courts of law
Land-revenue system
Revenue survey
Malabar tenures
Inam tenures
Irrigation
District police
Mohatarfa
Salt revenue
Abkari
Reorganisation of the police
49
49
50
51
52
52
53
54
55
Civil surgeons
57
CHAPTER IV
DISTRICT ADMINISTRATION IN BOMBAY, 1818–1857
By the late S. M. EDWARDES, C. S. I. , C. V. O.
Growth of the presidency
Early organisation
The mamlatdar
Taxation
Administration of justice
Rcforms of 1830
Bombay legislation
Education
Police system
ministration of Sind
Jail
Public works and other departments
60
61
62
63
67
69
68
69
71
73
74
## p. xi (#13) ##############################################
CONTENTS
xi
CHAPTER V
.
DISTRICT ADMINISTRATION IN THE UNITED
PROVINCES, CENTRAL PROVINCES, AND
THE PANJAB, 1818-1857
By SIR PATRICK FAGAN, K. C. I. E.
PAGE
Formation of the United Provinces, etc.
75
The regulation system
76
Its application
77
Early police system
78
Criminal law
79
The land-revenue settlement
80
The village community
82
Tenant-right
Irrigation
Famines
Abkari
86
Municipalities
86
The non-regulation system
87
Panjab administration under Ranjit Singh
88
The Board of Administration
90
Early British administration in the Panjab
91
Public works
92
John Lawrence's administration
93
83
84
84
CHAPTER VI
EDUCATION AND MISSIONS TO 1858
By Sir H. VERNEY LOVETT, K. C. S. I.
Warren Hastings's policy
Charles Grant's Observations
The Serampur Mission
David Hare.
Indigenous schools in Bengal
The discussions of 1813
Foundation of the Vidyalaya
Ram Mohan Roy's petition.
The Committee of Public Instruction
The orientalist controversy
Elphinstone's efforts in Bombay
Munro's Madras plan
Alexander Duff's views
Macaulay's minute
Orientalist opposition.
Adam's reports
The Council of Education
Thomason's scheme in the North-Western Provinces
Slowness of progress
The dispatch of 1854 .
95
97
98
99
100
102
104
105
106
107
107
108
109
III
112
114
115
116
117
118
## p. xii (#14) #############################################
xii
CONTENTS
CHAPTER VII
7
SOCIAL POLICY TO 1858
.
.
By Sir H. VERNEY LOVETT, K. C. S. I
The Company's chaplains
Danish missionaries
Policy of religious toleration
Activity of Protestant missions
Ecclesiastical establishments
Disabilities of Indian Christians
Religious festivals and temple endowments
Slavery
Sacrifice of children at Sagar Island
Female infanticicie
The question of sati
Protests against permission
Carey's description
The nizamat adalat's report.
The rules of 1812-1815
Ewer's remonstrance
Other protests
Company's orders of 1823
Ram Mohan Roy's petition
Bentinck resolves to prohibit sati .
PAGE
121
121
I 22
123
124
125
125
127
128
129
131
133
134
135
135
137
139
139
140
140
1
CHAPTER VIII
THE COMPANY'S MARINE
By the late S. M. EDWARDES, C. S. I. , C. V. O.
>
144
144
145
146
The Surat squadron
Early wars with Gheria
The Bombay dockyard
Growth of the Marine, 1740-72
Capture of the Ranger
Co-operation with Hughes
Organisation of the Marine .
Marine regulations
Services in the Persian Gulf. and elsewhere
The Indian Marine
Later developments
Marine surveys
147
147
147
148
149
150
151
151
.
## p. xiii (#15) ############################################
CONTENTS
xiii
CHAPTER IX
THE ARMIES OF THE EAST INDIA COMPANY
>
PAGE
By Lt. -Col. SIR WOLESLEY Haig, K. C. I. E. , C. S. I. , C. M. G. , C. B. E. ,
M. A. , Lecturer in Persian, in the School of Oriental Studies, in
the University of London.
Early garrisons
153
Origin of sepoys
153
Growth of the presidency armies
154
Recruitment of European officers
157
Recruitment of sepoys
158
The reorganisation of 1796
159
Officers' pay
160
Cadets.
161
Military life.
161
Recrganisation of 1824
The Barrackpore mutiny
162
European and officers' mutinies
162
mutiny
163
The Madras officers
' mutiny
163
Local and irregular units
165
Demoralisation of the Bengal army
165
162
CHAPTER X
THE MUTINY
By T. Rice HOLMES, M. A. , Litt. D.
Revenue causes of discontent
Nana Sahib's pension
Dalhousie's annexations
Railway and telegraph
The attitude of the people
The Bengal army.
The general service order
Proselytising officers
The greased cartridges
Mutiny of the 19th and 34th Native Infantry
Mutiny at Meerut
Mutiny at Delhi
Indecision of the authorities
The position at Agra
Attitude of the civil population
Conduct of the Indian princes
Tayler at Patna
Neill at Benares
Allahabad
Wheeler at Cawnpore.
The Cawnpore massacres
Lawrence at Lucknow
Havelock's campaign
167
167
168
169
169
171
172
173
173
174
175
177
177
178
179
179
180
181
182
183
183
184
187
## p. xiv (#16) #############################################
xiy
CONTENTS
Outram joins Havelock
Lucknow relieved
John Lawrence in the Panjab
Siege of Delhi
Proposed cession of Peshawur
Nicholson's march
The storm of Delhi
Sir Colin Campbell's march to Lucknow
Tantia Topi .
The recovery of Lucknow
Canning's proclamation
Kunwar Singh
Position in Bombay
Mutiny in Central India
Sir Hugh Rose's campaign
Reduction of the Rohilkhand
The Mutiny not organised
Dalhousie unjustly blamed
PAGE
189
190
190
192
193
194
195
196
198
199
200
200
200
201
202
203
204
205
ADMINISTRATIVE DEVELOPMENT, 1858–1918
CHAPTER XI
THE HOME GOVERNMENT, 1858-1918
.
.
By Sir H. VERNEY LOVETT, K. C. S. I.
The East India Company's petition
Parliamentary bills
The Act of 1858
The debates .
The Council of india
Thc Amendment Act of 1869
Lord Salisbury as secretary of state
General po icy of the India Office
Attitude of parliament
Morley and the Council of India
Lord Crewe's proposed reforms
The changes
of
1911
The Mesopotamia Commission
Montagu's visit to India
The functions of parliament
The functions of the crown
206
207
208
210
212
214
214
215
.
216
.
217
218
219
220
222
222
225
CHAPTER XII
THE INDIAN GOVERNMENTS, 1858–1918
By Sir H. VERNEY LOVETT, K. C. S. I.
>
The governor-general
Canning's reforms
The Councils Act of 1861
The portfolio system
226
226
228
229
## p. xv (#17) ##############################################
CONTENTS
XV
Subsequent changes in the governor-general's council
Powers of the governor-general
The legislative council of 1853
Inclusion of Indian members
Other changes in the legislature
The home government's control of legislation
Thc Morley-Minto reforms
The provincial governments
Relations between the central and provincial governments
PAGE
230
231
233
234
235
237
238
238
240
CHAPTER XIII
DISTRICT ADMINISTRATION IN BENGAL, 1858-1918
By Sir H. VERNEY LOVETT, K. C. S. I.
Changes in the size of the province
Position of the magistrate-and-collector
Growth of Calcutta
Honorary magistrates
Courts of law
Neglect of Eastern Bengal
Communications in the province
Tenancy tegislation
The bhadralok
Trade and industry
Political agitation and crime
The Bengal District Administration Committee
245
245
246
246
247
247
248
249
251
251
252
253
CHAPTER XIV
DISTRICT ADMINISTRATION IN BOMBAY, 1858-1918
:
By the late S. M. EDWARDES, C. S. I. , C. V. O.
Subordinate states in Kathiawar, etc.
Relations with border states
The survey settlement
Land-revenue in Sind
The presidency government
Judicial organisation
Revenue administration
Port trusts
Public works
Forests.
Education
Agriculture
Miscellaneous departments
255
256
256
257
257
259
261
263
263
264
264
265
266
.
## p. xvi (#18) #############################################
xvi
CONTENTS
CHAPTER XV
DISTRICT ADMINISTRATION IN MADRAS, 1858–1918
By A. BUTTERWORTH, C. S. I.
PAGE
Madras during the Mutiny
267
Tidal wave at Masulipatam
267
The Guntur famine
267
Moplah rebellions
268
Troubles in the Circars
268
The Shanar riots.
269
Political agitation and crime
270
Judicial organisation
270
Revenue settlement
271
Agriculture
272
Forests
272
Local self-government
-
273
Communications in the province
274
Provincial finance
275
CHAPTER XVI
DISTRICT ADMINISTRATION IN THE UNITED
PROVINCES, CENTRAL PROVINCES, AND
THE PANJAB, 1858–1918
By Sir PATRICK FAGAN, K. C. I. E.
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## p. (#1) ##################################################
## p. (#2) ##################################################
## p. i (#3) ################################################
THE CAMBRIDGE HISTORY OF INDIA
IN SIX VOLUMES
VOLUME VI
The Indian Empire
1858-1918
With additional Chapters 1919-1969
## p. ii (#4) ###############################################
1
?
irgini
## p. iii (#5) ##############################################
THE
CAMBRIDGE
HISTORY OF INDIA
VOLUME VI
The Indian Empire
1858–1918
With chapters on the development
of Administration 1818-1858
EDITED BY
H. H. DODWELL, M. A.
PROFESSOR OF THE HISTORY AND CULTURE OF THE BRITISH
DOMINIONS IN ASIA, IN THE UNIVERSITY OF LONDON
AND
Chapters XXXIV to XXXVIII
(1919-1969)
Ву
V. D. MAHAJAN, PH. D.
S. CHAND & CO.
DELHI-NEW DELHI-JULLUNDUR-WCKNOW-BOMBAY
CALCUTTA-MADRAS-HYDERABAD-PATNA
THE PENNSYLVANIA STATE UNIVERSITY
LIBRARY, Capitol Campus Middletown. Pa. 17057
## p. iv (#6) ###############################################
S. CHAND & CO.
H. O. : RAM NAGAR, NEW DELHI-55
Branches:
Fountain, Delhi
32, Ganesh Chandra Ave. , Calcutta
Mai Hiran Gate, Jullundur
35, Mount Road, Madras
Aminabad Park, Lucknow
Sultan Bazar, Hyderabad
167, Lamington Road, Bombay
Exhibition Road, Patna
Published in India by S. Chand & Co. , by arrangement
with the Cambridge University Press, London.
Syndics of the Cambridge University are not responsible
for the chapters written by Dr. V. D. Mahajan.
Price Rs. 60 00
Printed at Rajendra Printers, Ram Nagar, New Delhi-55
## p. v (#7) ################################################
INTRODUCTION
The previous volunie narrated the expansion of British power down
to the conquest of the Panjab and the Second Burmese War, and the
development of the administrative system do'yn to 1818 under the
guidance of Cornwallis in Bengal and of Munro in Madras. It thus
displayed the expansion of British India almost to its modern limits,
but dealt only with the earliest British attempts to build up a workable
method of government. The present volume, in the first place, carries
this latter development from 1818 down to the outbreak of the Indian
Mutiny. This period, in which the supremacy of the East India
Company was virtually uncontested, displayed great activity and
produced notable reforms. The belief that the Company's govern-
ment was obscurantist or reactionary lacks foundation. Without
exception the governors-general took high views of their obligations,
while many of the Company's servants regarded themselves as pre-
eminently the servants of India. Under them the administrative
system took its final shape, with many local variations necessitated
by variations in the land tenures of the British provinces; and this new
system, in strong contrast with the system originally introduced by
Cornwallis, was based upon the plan of securing the fullest and most
detailed knowledge of social and economic conditions. In almost
every province district administration embraced large elements of
personal government; and many collectors of the period were till
recent times remembered with reverence in the districts which they
had ruled. As has been well said, had the Company's government
perished in the Mutiny, the later period of its rule would have been
long remembered as a golden age. But the development of good
district government was by no means the sole achievement of that
generation. Sati and thagi were suppressed, and female infanticide
greatly lessened, while the introduction of the railway and the tele-
graph, the extension of irrigation, the conservation of forests, the
spread of missionary activity and the growth of western education
brought India into contact of a new and fruitful kind with the external
world.
India's first answer to these beneficent changes was the Mutiny.
In ultimate analysis that movement was a Brahman reaction against
a
## p. vi (#8) ###############################################
vi
INTRODUCTION
influences which, given free play, would revolutionise the mental,
moral, and social condition of the country. It acted through the sepoy
army because that was the only organised body through which
Brahman sentiment could express itself; it acted through the Bengal
section of the sepoy troops because that alone included numerous
Brahmans and because its discipline was far more relaxed than that
of either the Madras or the Bombay sepoys. But this weapon was
broken by the very use to which it was put. The sepoys lost coherence
with the loss of their English officers. With the exception of Tantia
Topi no Indian leader of note emerged. Except in Oudh the sepoys
found no popular support. India indeed still had no common con-
sciousness. It was disunited, cloven into numberless mutually indif.
ferent or even hostile sections by caste, creed and distance, just as it
had always been. Therefore the force of the Mutiny was broken
before help arrived from England; and when help at last came, the
Mutiny was quickly crushed. If on the one hand it bequeathed to
the survivors heart-breaking memories of slaughtered women, of
broken trust, of wholesale executions, on the other the fact of its sup-
pression exposed India to the more intense application of those
westernising forces which had provoked its occurrence. The
Company vanished, but the queen's government took its place and
rapidly tightened the control exercised from London. Foreign
policy, almost completely limited to the protection of India from the
Russian menace, was more closely than ever knit up with European
politics. And the centre of interest tended to shift from external
policy to internal development. India reached a higher degree
of union than it had ever before known. Under the pressure of
political fact the Indian states ceased to be the dependent but
external allies of 1858 and became integral parts of a new empire
of India. At the same time a new social phenomenon emerged. The
spread of western education in the cities of India and the growing
demand for administrative and professional services created a new
class of society-educated in western knowledge and possessed of
professional qualifications. This new class was essentially urban and
almost ex lusively Brahman. In English it possessed a common
vehicle of thought. Railways and telegraphs brought the cities of
India into new and intimate relations. The rise of an Indian
press
gave voice to common interests and aspirations. Hence emerged a
new sense of unity, limited to a single class and not as yet touching
## p. vii (#9) ##############################################
INTRODUCTION
vii
a
rural India, but diffused througnout every city of the land. The
British government had in fact created the conditions under which
nationalist sentiment could arise. The purposes contemplated from
afar by Company's servants like Thomas Munro were being realised
by the seryants of the crown.
This political was accompanied by a great economic development.
Indian finance was handled by a succession of remarkably able men
with prudence and foresight. Debt was incurred mainly for productive
works which increased the wealth of the country in a degree incom-
parably greater than their cost. Irrigation, railways, agricultural
improvements, co-operative credit, all helped to create an India in
which wealth was more widely diffused than it had been for many
centuries, and permitted the development of a famine policy which
gradually ended that great scourge of humanity.
Such were two of the three main developments which mark out
the two generations which followed the Indian Mutiny. The third
consisted of a series of efforts, still actively continuing, to transform
into an organic state the inorganic despotism which the crown had
inherited from the Company, and the Company from the former
Indian governments. It was the greatest political experiment ever
attempted. It had no precedent. The peoples of Asia had created
great civilisations, and formed themselves into strong, well-knit and
durable social groups, but their political organisation had seldom
risen above the primitive community of the village. In this respect
the history of the Aryan invaders of India is most instructive. They
seem to have carried with them the same political gifts as their
brethren displayed in classical Greece and Rome. They belonged
to the stock which created the science and the art of politics. At the
dawn of history they dimly appear in India organised in modes which
might well have developed into an active political life. But their
tribal institutions and self-governing townships withered and decayed
under the Indian sun. The kings and emperors who arose after them
were ever limited in their action by social and religious influences
but never shared their power with political institutions. Therefore
when the rising middle class of Indians began to demand political
reform, and when the British government began to consider how best
to give effect to this demand, neither side could turn for guidance to
oriental political experience and were compelled to base their plans
on the alien ideas of the west Hence the purely British form taken
## p. viii (#10) ############################################
viii
INTRODUCTION
4
alike by the demands of the Indian National Congress and the
provisions of the various statutes designed to change the nature of
political power in India.
Such is the subject matter of the following pages. It presses closely
on the events of to-day.
Incedis per ignes
Suppositos cineri doloso.
Perhaps the more accurate and sober the statement, the less likely it
is to win general approval. But the present work may at least claim
to gather together in a single volume not only a wealth of personal
knowledge and experience but also the information scattered through
a multitude of blue-books, of statutes, of acts of the Indian legis-
latures; to present the views of policy uttered both by governors-
general and secretaries of state and by Indian political leaders; above
all at the present moment it aspires to show clearly and firmly the
historical background, without some knowledge of which political
decisions become matters of mere sentiment and chance.
H. H. D.
September 1932
1
## p. ix (#11) ##############################################
TABLE OF CONTENTS
ADMINISTRATIVE DEVELOPMENT, 1818–1858
CHAPTER I
PAGE
I
1
IMPERIAL LEGISLATION AND THE SUPERIOR
GOVERNMENTS, 1818-1857
By H. H. DODWELL, M. A. , Professor of the history and culture of the
British dominions in Asia in the University of London.
The Whig tradition
The Act of 1813
The reforms of 1833
Legal anomalies
Legislative powers
5
The law member.
7
The law commissions
The government of Bengal
Recruitment of the covenanted service
The position of Indians
Slavery :
Relations of the Company and the board
Recall of the governor-general
13
Decay of the Company's position.
15
The Act of 1853
16
Competitive examinations
16
Reform of the legislature
17
The effects of competitive examinations
19
7
II
OG GT
Cooconvoiciw
CHAPTER II
DISTRICT ADMINISTRATION IN BENGAL, 1818-1858
By Sir H. VERNEY LOVETT, K. C. S. I. , late Reader in Indian History
in the University of Oxford.
20
21
22
22
Limits of the presidency
Neglect of the local problems of Bengal
Appointment of a lieutenant-governor .
Regulation system
District organisation
Police organisation
The magistrate-and-collector
Effects of the Permanent Settlement
Communications
Thagi
Dacoity
Primitive tribes
Mutiny in Bengal
CHIVI
26
28
30
31
33
34
35
35
b
## p. x (#12) ###############################################
х
CONTENTS
1
CHAPTER III
DISTRICT ADMINISTRATION IN MADRAS, 1818-1857
By A. BUTTERWORTH, C. S. I. , formerly Chief Secretary to
the Government of Madras.
PAGE
38
38
38
39
40
40
41
42
42
Annexation of Kurnool
Troubles in Canara
Mopla rebellions
Rebellions in the Circars
Human sacrifice
Slavery.
Government of the presidency
District organisation
Courts of law
Land-revenue system
Revenue survey
Malabar tenures
Inam tenures
Irrigation
District police
Mohatarfa
Salt revenue
Abkari
Reorganisation of the police
49
49
50
51
52
52
53
54
55
Civil surgeons
57
CHAPTER IV
DISTRICT ADMINISTRATION IN BOMBAY, 1818–1857
By the late S. M. EDWARDES, C. S. I. , C. V. O.
Growth of the presidency
Early organisation
The mamlatdar
Taxation
Administration of justice
Rcforms of 1830
Bombay legislation
Education
Police system
ministration of Sind
Jail
Public works and other departments
60
61
62
63
67
69
68
69
71
73
74
## p. xi (#13) ##############################################
CONTENTS
xi
CHAPTER V
.
DISTRICT ADMINISTRATION IN THE UNITED
PROVINCES, CENTRAL PROVINCES, AND
THE PANJAB, 1818-1857
By SIR PATRICK FAGAN, K. C. I. E.
PAGE
Formation of the United Provinces, etc.
75
The regulation system
76
Its application
77
Early police system
78
Criminal law
79
The land-revenue settlement
80
The village community
82
Tenant-right
Irrigation
Famines
Abkari
86
Municipalities
86
The non-regulation system
87
Panjab administration under Ranjit Singh
88
The Board of Administration
90
Early British administration in the Panjab
91
Public works
92
John Lawrence's administration
93
83
84
84
CHAPTER VI
EDUCATION AND MISSIONS TO 1858
By Sir H. VERNEY LOVETT, K. C. S. I.
Warren Hastings's policy
Charles Grant's Observations
The Serampur Mission
David Hare.
Indigenous schools in Bengal
The discussions of 1813
Foundation of the Vidyalaya
Ram Mohan Roy's petition.
The Committee of Public Instruction
The orientalist controversy
Elphinstone's efforts in Bombay
Munro's Madras plan
Alexander Duff's views
Macaulay's minute
Orientalist opposition.
Adam's reports
The Council of Education
Thomason's scheme in the North-Western Provinces
Slowness of progress
The dispatch of 1854 .
95
97
98
99
100
102
104
105
106
107
107
108
109
III
112
114
115
116
117
118
## p. xii (#14) #############################################
xii
CONTENTS
CHAPTER VII
7
SOCIAL POLICY TO 1858
.
.
By Sir H. VERNEY LOVETT, K. C. S. I
The Company's chaplains
Danish missionaries
Policy of religious toleration
Activity of Protestant missions
Ecclesiastical establishments
Disabilities of Indian Christians
Religious festivals and temple endowments
Slavery
Sacrifice of children at Sagar Island
Female infanticicie
The question of sati
Protests against permission
Carey's description
The nizamat adalat's report.
The rules of 1812-1815
Ewer's remonstrance
Other protests
Company's orders of 1823
Ram Mohan Roy's petition
Bentinck resolves to prohibit sati .
PAGE
121
121
I 22
123
124
125
125
127
128
129
131
133
134
135
135
137
139
139
140
140
1
CHAPTER VIII
THE COMPANY'S MARINE
By the late S. M. EDWARDES, C. S. I. , C. V. O.
>
144
144
145
146
The Surat squadron
Early wars with Gheria
The Bombay dockyard
Growth of the Marine, 1740-72
Capture of the Ranger
Co-operation with Hughes
Organisation of the Marine .
Marine regulations
Services in the Persian Gulf. and elsewhere
The Indian Marine
Later developments
Marine surveys
147
147
147
148
149
150
151
151
.
## p. xiii (#15) ############################################
CONTENTS
xiii
CHAPTER IX
THE ARMIES OF THE EAST INDIA COMPANY
>
PAGE
By Lt. -Col. SIR WOLESLEY Haig, K. C. I. E. , C. S. I. , C. M. G.
It thus
displayed the expansion of British India almost to its modern limits,
but dealt only with the earliest British attempts to build up a workable
method of government. The present volume, in the first place, carries
this latter development from 1818 down to the outbreak of the Indian
Mutiny. This period, in which the supremacy of the East India
Company was virtually uncontested, displayed great activity and
produced notable reforms. The belief that the Company's govern-
ment was obscurantist or reactionary lacks foundation. Without
exception the governors-general took high views of their obligations,
while many of the Company's servants regarded themselves as pre-
eminently the servants of India. Under them the administrative
system took its final shape, with many local variations necessitated
by variations in the land tenures of the British provinces; and this new
system, in strong contrast with the system originally introduced by
Cornwallis, was based upon the plan of securing the fullest and most
detailed knowledge of social and economic conditions. In almost
every province district administration embraced large elements of
personal government; and many collectors of the period were till
recent times remembered with reverence in the districts which they
had ruled. As has been well said, had the Company's government
perished in the Mutiny, the later period of its rule would have been
long remembered as a golden age. But the development of good
district government was by no means the sole achievement of that
generation. Sati and thagi were suppressed, and female infanticide
greatly lessened, while the introduction of the railway and the tele-
graph, the extension of irrigation, the conservation of forests, the
spread of missionary activity and the growth of western education
brought India into contact of a new and fruitful kind with the external
world.
India's first answer to these beneficent changes was the Mutiny.
In ultimate analysis that movement was a Brahman reaction against
a
## p. vi (#8) ###############################################
vi
INTRODUCTION
influences which, given free play, would revolutionise the mental,
moral, and social condition of the country. It acted through the sepoy
army because that was the only organised body through which
Brahman sentiment could express itself; it acted through the Bengal
section of the sepoy troops because that alone included numerous
Brahmans and because its discipline was far more relaxed than that
of either the Madras or the Bombay sepoys. But this weapon was
broken by the very use to which it was put. The sepoys lost coherence
with the loss of their English officers. With the exception of Tantia
Topi no Indian leader of note emerged. Except in Oudh the sepoys
found no popular support. India indeed still had no common con-
sciousness. It was disunited, cloven into numberless mutually indif.
ferent or even hostile sections by caste, creed and distance, just as it
had always been. Therefore the force of the Mutiny was broken
before help arrived from England; and when help at last came, the
Mutiny was quickly crushed. If on the one hand it bequeathed to
the survivors heart-breaking memories of slaughtered women, of
broken trust, of wholesale executions, on the other the fact of its sup-
pression exposed India to the more intense application of those
westernising forces which had provoked its occurrence. The
Company vanished, but the queen's government took its place and
rapidly tightened the control exercised from London. Foreign
policy, almost completely limited to the protection of India from the
Russian menace, was more closely than ever knit up with European
politics. And the centre of interest tended to shift from external
policy to internal development. India reached a higher degree
of union than it had ever before known. Under the pressure of
political fact the Indian states ceased to be the dependent but
external allies of 1858 and became integral parts of a new empire
of India. At the same time a new social phenomenon emerged. The
spread of western education in the cities of India and the growing
demand for administrative and professional services created a new
class of society-educated in western knowledge and possessed of
professional qualifications. This new class was essentially urban and
almost ex lusively Brahman. In English it possessed a common
vehicle of thought. Railways and telegraphs brought the cities of
India into new and intimate relations. The rise of an Indian
press
gave voice to common interests and aspirations. Hence emerged a
new sense of unity, limited to a single class and not as yet touching
## p. vii (#9) ##############################################
INTRODUCTION
vii
a
rural India, but diffused througnout every city of the land. The
British government had in fact created the conditions under which
nationalist sentiment could arise. The purposes contemplated from
afar by Company's servants like Thomas Munro were being realised
by the seryants of the crown.
This political was accompanied by a great economic development.
Indian finance was handled by a succession of remarkably able men
with prudence and foresight. Debt was incurred mainly for productive
works which increased the wealth of the country in a degree incom-
parably greater than their cost. Irrigation, railways, agricultural
improvements, co-operative credit, all helped to create an India in
which wealth was more widely diffused than it had been for many
centuries, and permitted the development of a famine policy which
gradually ended that great scourge of humanity.
Such were two of the three main developments which mark out
the two generations which followed the Indian Mutiny. The third
consisted of a series of efforts, still actively continuing, to transform
into an organic state the inorganic despotism which the crown had
inherited from the Company, and the Company from the former
Indian governments. It was the greatest political experiment ever
attempted. It had no precedent. The peoples of Asia had created
great civilisations, and formed themselves into strong, well-knit and
durable social groups, but their political organisation had seldom
risen above the primitive community of the village. In this respect
the history of the Aryan invaders of India is most instructive. They
seem to have carried with them the same political gifts as their
brethren displayed in classical Greece and Rome. They belonged
to the stock which created the science and the art of politics. At the
dawn of history they dimly appear in India organised in modes which
might well have developed into an active political life. But their
tribal institutions and self-governing townships withered and decayed
under the Indian sun. The kings and emperors who arose after them
were ever limited in their action by social and religious influences
but never shared their power with political institutions. Therefore
when the rising middle class of Indians began to demand political
reform, and when the British government began to consider how best
to give effect to this demand, neither side could turn for guidance to
oriental political experience and were compelled to base their plans
on the alien ideas of the west Hence the purely British form taken
## p. viii (#10) ############################################
viii
INTRODUCTION
4
alike by the demands of the Indian National Congress and the
provisions of the various statutes designed to change the nature of
political power in India.
Such is the subject matter of the following pages. It presses closely
on the events of to-day.
Incedis per ignes
Suppositos cineri doloso.
Perhaps the more accurate and sober the statement, the less likely it
is to win general approval. But the present work may at least claim
to gather together in a single volume not only a wealth of personal
knowledge and experience but also the information scattered through
a multitude of blue-books, of statutes, of acts of the Indian legis-
latures; to present the views of policy uttered both by governors-
general and secretaries of state and by Indian political leaders; above
all at the present moment it aspires to show clearly and firmly the
historical background, without some knowledge of which political
decisions become matters of mere sentiment and chance.
H. H. D.
September 1932
1
## p. ix (#11) ##############################################
TABLE OF CONTENTS
ADMINISTRATIVE DEVELOPMENT, 1818–1858
CHAPTER I
PAGE
I
1
IMPERIAL LEGISLATION AND THE SUPERIOR
GOVERNMENTS, 1818-1857
By H. H. DODWELL, M. A. , Professor of the history and culture of the
British dominions in Asia in the University of London.
The Whig tradition
The Act of 1813
The reforms of 1833
Legal anomalies
Legislative powers
5
The law member.
7
The law commissions
The government of Bengal
Recruitment of the covenanted service
The position of Indians
Slavery :
Relations of the Company and the board
Recall of the governor-general
13
Decay of the Company's position.
15
The Act of 1853
16
Competitive examinations
16
Reform of the legislature
17
The effects of competitive examinations
19
7
II
OG GT
Cooconvoiciw
CHAPTER II
DISTRICT ADMINISTRATION IN BENGAL, 1818-1858
By Sir H. VERNEY LOVETT, K. C. S. I. , late Reader in Indian History
in the University of Oxford.
20
21
22
22
Limits of the presidency
Neglect of the local problems of Bengal
Appointment of a lieutenant-governor .
Regulation system
District organisation
Police organisation
The magistrate-and-collector
Effects of the Permanent Settlement
Communications
Thagi
Dacoity
Primitive tribes
Mutiny in Bengal
CHIVI
26
28
30
31
33
34
35
35
b
## p. x (#12) ###############################################
х
CONTENTS
1
CHAPTER III
DISTRICT ADMINISTRATION IN MADRAS, 1818-1857
By A. BUTTERWORTH, C. S. I. , formerly Chief Secretary to
the Government of Madras.
PAGE
38
38
38
39
40
40
41
42
42
Annexation of Kurnool
Troubles in Canara
Mopla rebellions
Rebellions in the Circars
Human sacrifice
Slavery.
Government of the presidency
District organisation
Courts of law
Land-revenue system
Revenue survey
Malabar tenures
Inam tenures
Irrigation
District police
Mohatarfa
Salt revenue
Abkari
Reorganisation of the police
49
49
50
51
52
52
53
54
55
Civil surgeons
57
CHAPTER IV
DISTRICT ADMINISTRATION IN BOMBAY, 1818–1857
By the late S. M. EDWARDES, C. S. I. , C. V. O.
Growth of the presidency
Early organisation
The mamlatdar
Taxation
Administration of justice
Rcforms of 1830
Bombay legislation
Education
Police system
ministration of Sind
Jail
Public works and other departments
60
61
62
63
67
69
68
69
71
73
74
## p. xi (#13) ##############################################
CONTENTS
xi
CHAPTER V
.
DISTRICT ADMINISTRATION IN THE UNITED
PROVINCES, CENTRAL PROVINCES, AND
THE PANJAB, 1818-1857
By SIR PATRICK FAGAN, K. C. I. E.
PAGE
Formation of the United Provinces, etc.
75
The regulation system
76
Its application
77
Early police system
78
Criminal law
79
The land-revenue settlement
80
The village community
82
Tenant-right
Irrigation
Famines
Abkari
86
Municipalities
86
The non-regulation system
87
Panjab administration under Ranjit Singh
88
The Board of Administration
90
Early British administration in the Panjab
91
Public works
92
John Lawrence's administration
93
83
84
84
CHAPTER VI
EDUCATION AND MISSIONS TO 1858
By Sir H. VERNEY LOVETT, K. C. S. I.
Warren Hastings's policy
Charles Grant's Observations
The Serampur Mission
David Hare.
Indigenous schools in Bengal
The discussions of 1813
Foundation of the Vidyalaya
Ram Mohan Roy's petition.
The Committee of Public Instruction
The orientalist controversy
Elphinstone's efforts in Bombay
Munro's Madras plan
Alexander Duff's views
Macaulay's minute
Orientalist opposition.
Adam's reports
The Council of Education
Thomason's scheme in the North-Western Provinces
Slowness of progress
The dispatch of 1854 .
95
97
98
99
100
102
104
105
106
107
107
108
109
III
112
114
115
116
117
118
## p. xii (#14) #############################################
xii
CONTENTS
CHAPTER VII
7
SOCIAL POLICY TO 1858
.
.
By Sir H. VERNEY LOVETT, K. C. S. I
The Company's chaplains
Danish missionaries
Policy of religious toleration
Activity of Protestant missions
Ecclesiastical establishments
Disabilities of Indian Christians
Religious festivals and temple endowments
Slavery
Sacrifice of children at Sagar Island
Female infanticicie
The question of sati
Protests against permission
Carey's description
The nizamat adalat's report.
The rules of 1812-1815
Ewer's remonstrance
Other protests
Company's orders of 1823
Ram Mohan Roy's petition
Bentinck resolves to prohibit sati .
PAGE
121
121
I 22
123
124
125
125
127
128
129
131
133
134
135
135
137
139
139
140
140
1
CHAPTER VIII
THE COMPANY'S MARINE
By the late S. M. EDWARDES, C. S. I. , C. V. O.
>
144
144
145
146
The Surat squadron
Early wars with Gheria
The Bombay dockyard
Growth of the Marine, 1740-72
Capture of the Ranger
Co-operation with Hughes
Organisation of the Marine .
Marine regulations
Services in the Persian Gulf. and elsewhere
The Indian Marine
Later developments
Marine surveys
147
147
147
148
149
150
151
151
.
## p. xiii (#15) ############################################
CONTENTS
xiii
CHAPTER IX
THE ARMIES OF THE EAST INDIA COMPANY
>
PAGE
By Lt. -Col. SIR WOLESLEY Haig, K. C. I. E. , C. S. I. , C. M. G. , C. B. E. ,
M. A. , Lecturer in Persian, in the School of Oriental Studies, in
the University of London.
Early garrisons
153
Origin of sepoys
153
Growth of the presidency armies
154
Recruitment of European officers
157
Recruitment of sepoys
158
The reorganisation of 1796
159
Officers' pay
160
Cadets.
161
Military life.
161
Recrganisation of 1824
The Barrackpore mutiny
162
European and officers' mutinies
162
mutiny
163
The Madras officers
' mutiny
163
Local and irregular units
165
Demoralisation of the Bengal army
165
162
CHAPTER X
THE MUTINY
By T. Rice HOLMES, M. A. , Litt. D.
Revenue causes of discontent
Nana Sahib's pension
Dalhousie's annexations
Railway and telegraph
The attitude of the people
The Bengal army.
The general service order
Proselytising officers
The greased cartridges
Mutiny of the 19th and 34th Native Infantry
Mutiny at Meerut
Mutiny at Delhi
Indecision of the authorities
The position at Agra
Attitude of the civil population
Conduct of the Indian princes
Tayler at Patna
Neill at Benares
Allahabad
Wheeler at Cawnpore.
The Cawnpore massacres
Lawrence at Lucknow
Havelock's campaign
167
167
168
169
169
171
172
173
173
174
175
177
177
178
179
179
180
181
182
183
183
184
187
## p. xiv (#16) #############################################
xiy
CONTENTS
Outram joins Havelock
Lucknow relieved
John Lawrence in the Panjab
Siege of Delhi
Proposed cession of Peshawur
Nicholson's march
The storm of Delhi
Sir Colin Campbell's march to Lucknow
Tantia Topi .
The recovery of Lucknow
Canning's proclamation
Kunwar Singh
Position in Bombay
Mutiny in Central India
Sir Hugh Rose's campaign
Reduction of the Rohilkhand
The Mutiny not organised
Dalhousie unjustly blamed
PAGE
189
190
190
192
193
194
195
196
198
199
200
200
200
201
202
203
204
205
ADMINISTRATIVE DEVELOPMENT, 1858–1918
CHAPTER XI
THE HOME GOVERNMENT, 1858-1918
.
.
By Sir H. VERNEY LOVETT, K. C. S. I.
The East India Company's petition
Parliamentary bills
The Act of 1858
The debates .
The Council of india
Thc Amendment Act of 1869
Lord Salisbury as secretary of state
General po icy of the India Office
Attitude of parliament
Morley and the Council of India
Lord Crewe's proposed reforms
The changes
of
1911
The Mesopotamia Commission
Montagu's visit to India
The functions of parliament
The functions of the crown
206
207
208
210
212
214
214
215
.
216
.
217
218
219
220
222
222
225
CHAPTER XII
THE INDIAN GOVERNMENTS, 1858–1918
By Sir H. VERNEY LOVETT, K. C. S. I.
>
The governor-general
Canning's reforms
The Councils Act of 1861
The portfolio system
226
226
228
229
## p. xv (#17) ##############################################
CONTENTS
XV
Subsequent changes in the governor-general's council
Powers of the governor-general
The legislative council of 1853
Inclusion of Indian members
Other changes in the legislature
The home government's control of legislation
Thc Morley-Minto reforms
The provincial governments
Relations between the central and provincial governments
PAGE
230
231
233
234
235
237
238
238
240
CHAPTER XIII
DISTRICT ADMINISTRATION IN BENGAL, 1858-1918
By Sir H. VERNEY LOVETT, K. C. S. I.
Changes in the size of the province
Position of the magistrate-and-collector
Growth of Calcutta
Honorary magistrates
Courts of law
Neglect of Eastern Bengal
Communications in the province
Tenancy tegislation
The bhadralok
Trade and industry
Political agitation and crime
The Bengal District Administration Committee
245
245
246
246
247
247
248
249
251
251
252
253
CHAPTER XIV
DISTRICT ADMINISTRATION IN BOMBAY, 1858-1918
:
By the late S. M. EDWARDES, C. S. I. , C. V. O.
Subordinate states in Kathiawar, etc.
Relations with border states
The survey settlement
Land-revenue in Sind
The presidency government
Judicial organisation
Revenue administration
Port trusts
Public works
Forests.
Education
Agriculture
Miscellaneous departments
255
256
256
257
257
259
261
263
263
264
264
265
266
.
## p. xvi (#18) #############################################
xvi
CONTENTS
CHAPTER XV
DISTRICT ADMINISTRATION IN MADRAS, 1858–1918
By A. BUTTERWORTH, C. S. I.
PAGE
Madras during the Mutiny
267
Tidal wave at Masulipatam
267
The Guntur famine
267
Moplah rebellions
268
Troubles in the Circars
268
The Shanar riots.
269
Political agitation and crime
270
Judicial organisation
270
Revenue settlement
271
Agriculture
272
Forests
272
Local self-government
-
273
Communications in the province
274
Provincial finance
275
CHAPTER XVI
DISTRICT ADMINISTRATION IN THE UNITED
PROVINCES, CENTRAL PROVINCES, AND
THE PANJAB, 1858–1918
By Sir PATRICK FAGAN, K. C. I. E.
