Reasons for publication, xix- Responsibility for invention of dyarchy,
XXI. The Duke Memorandum, xx This title explained, xx- Con-
nexion of Indian and Imperial problems, xx-The movement for political
reform, xxi Responsible government preferred to self-government as
definition of goal, xxii - Necessity of gradual advance by first training
electorates, xxii - Minto-Morley reforms no training for responsible
government, xxiii - Dyarchy suggested, xxiii-Its rejection, xxiii — Its
reconsideration in the form of a scheme drafted by Sir William Duke,
xxiv This experience repeated in subsequent inquiries, xxv Why
the Duke Memorandum was not published, xxv - Its circulation in India,
xxvi — Attack on the author in Parliament, xxvii - Drafting of the scheme
defended, xxviii. - II. Letter to the People of India, xxix
of private letter and consequent agitation in India, xxx
replying to agitation, xxx — - Subsequent effects of the incident, xxx.
III. Letter to Mr. Bhupendra Nath Basu, xxxi — How the letter came
to be written, xxxi ·The term ' dyarchy'. Its origin and utility, xxxii —
Assistance rendered by Indian Civil Servants, xxxiii Relations of I.C.S.
to Nationalists, xxxiv · Circulation of letter, xxxiv Comments thereon,
VIII. xxxix How Letters to the People of India came to be written,
xxxix-Interviews with Lord Chelmsford and Mr. Montagu, xl-
Patiala Conference, xl - My relations with authors of Joint report, xli
IX. xlii Introduction to the English edition, a plea for parliamentary
inquiry, xlii.
X. xlii — Letter to The Times urging appointment of franchise and
functions committees, xliii- Scheme of decentralization achieved by
functions committee, xliii.
XI. xliii- The Joint Select Committee, xliv - My reasons for writing
my evidence at length, xliv - Inconsistency of Montagu-Chelmsford report
xlv - Reserved powers safeguarded by Selborne Committee, xlv -Com-
mittee's amendment criticized, xlv - How governors might improve on
the procedure prescribed, xlvii - Danger of governors failing to exert
their powers, xlvii — Need for better social relations, xlix - Examples of
overbearing conduct, xlix- The roots of anarchy, 1 Social as well as
constitutional reform essential, li — Attitude of the English to coloured
races, li-Caste, lii- Anti-European feeling, liii — Case for expulsion of
Europeans guilty of offensive conduct, liii-Conditions under the Company
liv Company's powers should be revived, lv - How the advent of full
responsible government may be hastened, lv - Effect of responsible government in Italy, Ivii - Responsibility of leaders in a democratic state, Iviii Dyarchy on its trial, lviii How the Indian reform question was
handled in England, lix - India's opportunity of wider service, lx.
Introductory_note, 1 CHAPTER I. Existing system described, 3
Government of India, 3 - The Provinces, 4- Bengal. The executive, 4
The legislature, 6- Relations to Indian Government, 6- Demand for
further reforms in provincial governments, 7-Note on councils, 8.
CHAPTER II. Changes within existing frame, 11-Indian element in
executive, 12-in legislature, 13- Direct election, 14 Increase of
powers, police, 15 - Financial control, 16— Advisory committees, 16 —
Limits to such reforms, 17.
CHAPTER III. Alternative scheme, 18- Dyarchy suggested, 18
Consistent with reforms already proposed, 19-Dual executives, 20-
Transferred powers, 21 Education and local government, 22— Sanita-
tion, registration, and co-operative credit, 23 — Agriculture, forests, and
public works, 24.
CHAPTER IV. Finance, 25 - Difficulty of dividing revenue, 25 - Heads
of revenue, 26 New sources, 28 — Division of officials, 29
and audit, 30.
CHAPTER V. Local self-government, 31
32 Village unions, 32.
CHAPTER VI. Criticisms and difficulties, 33-Inefficiency, 33 — III-
treatment of officials, 33-Friction, 34- Financial difficulties, 34
Redress of grievances distinguished from constitutional reform, 35
Dangers of present system, 36- Advantages of dyarchy, 36-Its progres-
sive character, 36-Social reform, 37 - Political training provided, 37.
Charges based on a private letter, 38 - Round Table movement, 38-
Connexion with Sir J. Meston and Mr. Marris in South Africa, 39-South
African Union, 40 Position of British citizens in South Africa, 40-
Extension of movement to Canada, 41 -Indian question discussed with
Mr. Marris, 41 Visit to Canada, 42 Round Table founded, 43 - The
Dominion groups and their work, 43- First results, 43-The Agra
group, 44 - Growth of Canadian groups, 44 - Imperial problem analysed,
45 Character of movement, 45- Conclusions accelerated by war, 46-
'The Problem of the Commonwealth,' 46 - The Dominions revisited 1916,
47 Foreword to Australian edition, 48 Indian problem excluded, 48-
Visit to India advised, 49 — Arrival in India, 49 - Rearrangement of
plans, 50-Text of letter which occasioned the charges, 51 Why the
letter was printed for private circulation, 57 - Why Sir J. Meston and
Mr. Marris never saw it, 58 - Its private character, 59 - A misstatement
explained, 59-Answer to charges contained in the letter, 59-Two
points emphasized, 62- Relations with officials, 62 Press attacks at
Lucknow, 63- Circulation of the letter at Lucknow, 64- Its publication,
64-Some Indian opinions on the letter, 66-Its effect on Hindu-
Moslem relations, 66 An English opinion, 67 The ethics of privacy,
67 The language difficulty, 68-Question of Round Table groups in
India, 69 Value of group methods, 70- Creation of Indian groups and
its failure, 71- Attacks on the Round Table and Mr. Kerr, 72 Attitude
of Nationalists towards British sympathizers, 75 — Attitude of Dominions
towards Indian reform, 76 — The Indian and Imperial problems inseparable
77-Treatment of this subject in the problem of the Commonwealth, 77
Misrepresentation in Indian reviews 78- Respect for Indian suscepti-
bilities, 79-'Self-government has a formula analysed, 80 — Reasons for
substituting Responsible government', 81- The post-war settlement,
83-Financial consequences of war, 83-Imperial problem explained,
84-Its solution as involving separate parliaments for Imperial and
British affairs, 85- India's choice between the two, 85- Representation
of India in Imperial Parliament, 86-Position of Islam in the Upper
House, 87 — In the Lower House, 87 — The question before India summar-
ized, 88 - Plea for reverting from personal to public issues, 89.
APPENDIX. The Congress League Scheme, 90.
Prefatory note, 96 - Inter-relation of Indian with Imperial problem, 97
Value of direct inquiries by Parliament, 98 Result of congestion of
business, 98 - Failure of Parliament to instruct its agents, 99 The cure
a separate Imperial Parliament, 99- Appropriate place for India's
Charter, 100-British objection to declaration of principles, 100-e. g.
Asiatic emigration to Dominions, 101-This analogy disputed, 101
Reasons for defining goal, 102—Federalized countries to be imitated
rather than United Kingdom, 102-Reform must begin in provincial
governments, 103 — Indian and Federalized systems contrasted, 103 —
Hence the need of dyarchy, 105 — Division of functions between popular
and paternal governments, 105 Failure to distinguish central from
provincial functions in India, 106-Peculiar position of the I. C. S., 107 -
Need for vertical as well as horizontal divisions, 108- Each province must
advance at its own pace, 108 No element of responsible government in
Congress-League scheme, 108 - Importance of working theories out in
schemes, 109 - Mischievous results of official vote, 109-Value of real
party-government, 110- Retention of official speakers, 110- Tax on
time of official members, 111 - Legislative council to advise on but not
control all functions, 111 - Importance of direct election, 111 - List of
powers for transfer to exclusive control of elected councils, 113 - Dual
capacity of councils, 114 - Elasticity of plan proposed, 114 - Creation of
ministry described, 115- Increase of transferred powers by special
legislation, 118—e. g. in social reform, 119 — Progress by results, 119–
Difficulties of dyarchy. Dualism, 120- Financial friction, 120 - Advan-
tages of dyarchy, 121 - Progressive results. Education in responsibility,
121 — Eventual application of responsible government to central authority
at one step, 122 Advantage to India of a true Imperial government,
122 Importance of Parliamentary inquiries, 122-These suggestions
sketched to elicit criticism, 123.
Appended criticisms, 124 Prefatory note, 125.
Comments by Indian Non-officials
No. 1. From an advocate, 126-Objections to official majority, 126
Inter-relation of functions, 126-Transfer of primary education advised,
127 Personal character of Indian elections, 127 -Governments with
fixed terms advised, 127 — Friction over taxation feared, 128 — Propa-
ganda by officials 129 A modification of dyarchy suggested, 129-
Franchise qualifications, 130.
No. 2. From an advocate, 130. Reasons for immediate reform in central
government, 130 Against nominating legislators, 131 Hostility of
I. C. S. feared, 131 Democratization of Indian legislature must be
simultaneous, 132 - Otherwise it will block progress of electoral govern-
ment in the provinces, 132.
No. 3. From an educated member of the depressed castes, 133. Political
training should begin in village and other local bodies, 133 - Conclusions
summarized, 134.
No. 4. From a teacher, 135. Proposals generally approved, 135
Danger from Dominions to Indian interests in Imperial Parliament as
proposed, 136 Principle of progress by steps approved, 136— Difficulties
inherent in dyarchy, 137 -e. g. relations of civil servants to elective
governments, 137 Dyarchy already exists in sphere of local government,
138 Reform should begin at the bottom and work upwards, 138
Direct representation approved, 138.
No. 4a. A group discussion. 138. Danger of over-taxation under reformed
Imperial Parliament, 138 — Other dangers discussed.
No. 4b. Separate note by one of the group. 140. Supplementary sugges
tions. Indianization of services. Commissions for Indians, 140-Imperial
reform approved, 140.
Comments by Non-official Europeans
No. 5. From a teacher, 141. Position of commentator described, 141
Makeshift policy of Indian Government, 141 - I. C. S. criticized, 141
Scheme approved in outline, 142 Education should be transferred, 142
Imperial reform approved, 142 — Indian representation must be genuine,
142 Asiatic migration question discussed, 143 - Colonial officials in
India, 144 — Inherent disunity of India, 144 - Dyarchy discussed, 145 —
Imperial civil service suggested, 145- Definition of sphere of central
government essential, 145 - The District Officer, 145 - Official vote must
be eliminated, 147 — Difficulties of party government in India, 148
Questions of representation, 149-Disturbing effect of elections on
colleges, 150 Transferred functions discussed, 150 Indian control of
education, 151 Ministerial control of officials, 152 Period of experi-
ment, 152-Taxation difficulties, 153 Military questions, 153-
Extension or withdrawal of transferred powers, 153.
No. 6. From missionaries, 153. Backwardness of native states, 154
Elementary education recommended for transfer, 154 - Importance of
a wide electorate, 154 — University representation, minority representa-
tion, 155.
No. 7. From a teacher. 155. Difficulties of Imperial reform, 155 Need
for a declaration of Indian policy, 156 Difficulty of abolishing official
vote, 156 — Difficulties inherent in dyarchy, 157 - Especially in provincial
governments, 157 Taxation difficulty, 158 - Gradual association pre-
ferred, 158.
No. 8. From a European engaged in commerce. 158. Objections to scheme
of British Community, 158 - Importance of British Community, 158 -
Must be protected by sufficient representation, 161-Difficulty of pro-
viding such protection, 161-Objections to electoral government in
Bengal, 162 Methods of gradually educating an electorate, 163
Responsible ministries premature, 163- Alternatives suggested, 163
Need for decentralization, 164 Dangers of over haste, 164.
No. 9. From a missionary teacher, 165. Opium and factory control, 165
- Importance of rural vote. Caste difficulties, 166.
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