(c) crown copyright
Catalogue Reference:CAB/24/214
Image Reference:0001
[This Document is the Property of His Britannic Majesty's Government.]
Printed
for the Cabinet.
August
1930.
SECRET.
C P . 2S9 (30).
^ ^,
CABINET.
The General Political Situation in India,
M E M O R A N D U M BY T H E S E C R E T A R Y O F S T A T E F O R I N D I A .
I circulate, for the information of my colleagues, t h e R e p o r t of the G o v e r n o r s '
Conference w h i c h was held at Simla on t h e 23rd J u l y . I t gives a r e c e n t a n d
authoritative account of t h e Civil Disobedience Movement. I t will be observed
t h a t the Governors of the C e n t r a l Provinces, the U n i t e d Provinces, a n d t h e
P u n j a b ask t h a t an O r d i n a n c e on the lines of a Defence of t h e R e a l m Act
should b e drafted r e a d y for use, and t h e Governor of B o m b a y would like such
a m e a s u r e imposed at once. T h e other points of interest in t h e R e p o r t a r e : —
(1) T h e c h a r a c t e r of t h e p o w e r s s u g g e s t e d b y t h e G o v e r n o r of t h e C e n t r a l
P r o v i n c e s in such a m e a s u r e , w h i c h i n c l u d e collective p u n i s h m e n t , the
d e p r i v a t i o n of civil r i g h t s a n d t h e forfeiture of p r o p e r t y .
(2) T h e g r o w i n g p a r t i c i p a t i o n of local bodies, as such, i n t h e movement a n d
t h e s y m p a t h y of H i n d u Civil S e r v a n t s .
(3) T h e complaint by t h e G o v e r n o r of t h e P u n j a b t h a t Appellate C o u r t s are
likely to t a k e a s y m p a t h e t i c view of the Civil Disobedience Movement, a n d
t h e s t a t e m e n t by t h e G o v e r n o r of t h e C e n t r a l P r o v i n c e s t h a t a n u m b e r
of Sessions J u d g e s are i n s y m p a t h y w i t h t h e m o v e m e n t .
1 circulate t h i s p a p e r so t h a t t h e Cabinet m a y b e informed of t h e g r a v e
c h a r a c t e r of t h e situation a n d t h e possibility t h a t unless some s e t t l e m e n t is
r e a c h e d four Provinces at least, w i t h a total population of almost 100 millions,
may be p u t u n d e r s o m e t h i n g c o m p a r a b l e to m a r t i a l law.
W . B.
9 t h A u g u s t 1930.
SECRET.
Conference held a t V i c e r e g a l Lodge on Wednesday, 2 3 r d July.
PRESENT:
H i s E x c e l l e n c y t h e Viceroy,
T h e i r Excellencies t h e Governors of all P r o v i n c e s ,
T h e H o n o u r a b l e Members of t h e Viceroy's E x e c u t i v e Council.
I - D i s c u s s i o n of t h e Political Situation.
1. H i s Excellency the Viceroy in o p e n i n g t h e Conference invited the views of t h e
G o v e r n o r s on t h e g e n e r a l situation in t h e i r provinces.
Bengal.
2. His E x c e l l e n c y t h e G o v e r n o r of Bengal said t h a t in his province t h e r e is good
r e a s o n to believe t h a t the m o v e m e n t is definitely on t h e decline. P i c k e t i n g is g i v i n g
a c e r t a i n a m o u n t of trouble, b u t t h e r e is n o t m u c h force b e h i n d it, a n d a l t h o u g h the
r e t u r n of s t u d e n t s from t h e i r vacations m i g h t g i v e a n i m p e t u s to p i c k e t i n g by
p r o v i d i n g m o r e volunteers, h e is not g r e a t l y concerned on t h i s account.
Funds
a p p e a r to b e decreasing, a n d t h e r e are s i g n s of lassitude. T h e position i n t h e r u r a l
areas is on t h e - whole n o t unsatisfactory. If t h e y a r e left alone, d a n g e r o u s
d e v e l o p m e n t s a r e likely to occur i n some districts ; b u t as soon as t h e y a r e vigorously
t a c k l e d conditions a r e soon restored to n o r m a l . T h e y h a v e n o t sufficient police,
however, to p e r m i t of vigorous action s i m u l t a n e o u s l y i n all districts. T h e police
force h a s b e e n increased by 500 a n d a d d i t i o n a l police h a v e also b e e n posted a t the
expense of t h e i n h a b i t a n t s i n t h r e e places, while proposals are u n d e r consideration
for similar action i n two o t h e r places. T h e y h a v e borrowed from t h e A s s a m
There is now u n d e r consideration a
G o v e r n m e n t 300 m e n of t h e A s s a m Rifles.
proposal" for t h e addition of one a r m e d b a t t a l i o n of police. His District Officers are
g e n e r a l l y hopeful. H e himself considers t h a t t h e t i m e is now o p p o r t u n e for vigorous
p r o p a g a n d a , a n d t h a t once t h e m o v e m e n t b e g i n s to go it will g o quickly.
I t is,
however, g e n e r a l l y recognised t h a t the failure of the civil disobedience m o v e m e n t will
be followed b y a n increase i n t e r r o r i s t activities.
Madras.
3. His Excellency the G o v e r n o r of Madras said t h a t in h i s P r e s i d e n c y t h e situation
h a s definitely i m p r o v e d a n d t h e m o v e m e n t is o n t h e decline. P i c k e t i n g is g i v i n g a
c e r t a i n a m o u n t of t r o u b l e . An increase of 500 i n the police force h a s b e e n sanctioned ;
b u t t h e whole of these a d d i t i o n a l m e n a r e not y e t f u n c t i o n i n g . P r o p a g a n d a is being
c a r r i e d on w i t h good r e s u l t s .
District Officers a r e d o i n g v a l u a b l e w o r k i n this
dh-eetion a n d non-officials are h e l p i n g a n d h a v e b e g u n to hold m e e t i n g s in opposition
to t h e Congress.
Bombay.
4. H i s E x c e l l e n c y t h e G o v e r n o r of B o m b a y said t h a t Sind h a s so far been very
little affected, except in K a r a c h i . T h e S o u t h of t h e Presidency h a s also g i v e n very
little trouble. T h e Deccan is w a t c h i n g Bombay, a n d the m o v e m e n t is g e t t i n g some
hold t h e r e . I n Bombay City a n d in Gujerat t h e situation is very bad. T h e r e are
some i n d i c a t i o n s that the movement is d i m i n i s h i n g a little in Gujerat, b u t he is
himself inclined to t h i n k t h a t t h i s is m a i n l y d u e to t h e monsoon. T h e m e a s u r e s so
far t a k e n by his G o v e r n m e n t have h a d t h e effect of k e e p i n g clown t h e level of
e n t h u s i a s m , b u t on the other h a n d have increased t h e size of the m o v e m e n t so far as
t h e n u m b e r of a d h e r e n t s a n d s y m p a t h i s e r s is concerned. Almost t h e whole p o p u l a t i o n
of Bombay is s y m p a t h e t i c , women and children i n c l u d e d . C o u n t e r p r o p a g a n d a has
so far n o t yielded any a p p r e c i a b l e results, except p e r h a p s in one district in Gujerat,
w h e r e t h e District Officer is i s s u i n g a news sheet. T h e conditions do n o t allow
c o u n t e r m e e t i n g s to be held. T h e P r e s s and U n a u t h o r i s e d News-sheets O r d i n a n c e s
have been valuable, largely because they increased t h e p o w e r s of tho executive. T h e
o t h e r O r d i n a n c e s h a v e not been of m u c h use, p r o b a b l y because they did not invest
t h e executive with sufficient p o w e r s .
Economic conditions have c o n t r i b u t e d l a r g e l y towards the movement. Business
is almost at a standstill i n Bombay City. T h e Stock E x c h a n g e i s rarely o p e n e d ; t h e
mill i n d u s t r y is in a b a d way ; some mills have already, closed down a n d o t h e r s are
likely to close. T h e r e is a d a n g e r that 100,000 mill-hands will b e out of employment
a t an early date. Most of these a r e i n very straitened circumstances, a n d t h e only
palliative he could see a t t h e moment, if t h e r e w e r e a g e n e r a l closure of mills, would
b e to send as m a n y mill-hands as possible b a c k to t h e i r homes on free passes. A t
t h e moment, the Congress are m a k i n g vigorous efforts to b r i n g t h e mill-hands over
t o their side, and t h e i r chances of success are n o t unfavourable. T h e l a b o u r e r s have
lost faith in their "Unions a n d Union leaders, a n d mill l a b o u r generally may easily be
worked u p into a n inflammable state. Congress have p l e n t y of funds a n d will b e
able to use t h e m for t h i s p u r p o s e .
H e is anxious r e g a r d i n g the future a t t i t u d e of t h e r u r a l population. P r i c e of
cotton h a s seriously fallen, a n d h e is afraid t h a t t h e cultivators will h a v e g r e a t
difficulty in selling t h e i r p r e s e n t crop w h e n it m a t u r e s . T o a very small extent they
c a n s u b s t i t u t e other crops for cotton, b u t this- would t a k e time, a n d in a n y case t h e
s u b s t i t u t i o n would n o t be. on a large scale. E c o n o m i c conditions i n t h e villages are,
therefore, likely to b e very unfavourable a n d in consequence one h a s to expect g r e a t
discontent a n d c o n s e q u e n t opportunities to Congress to create feelings hostile to
Government. H e is n o t very hopeful t h a t t h e financial losses w h i c h the m o v e m e n t is
causing, and will continue to cause, to Bombay City will p r o d u c e serious r e a c t i o n s ­
against the Congress: Many of t h e industrialists a n d business m e n who a r e - s u p p o r t i n g ,
t h e m o v e m e n t do n o t m i n d if they are broken, provided t h a t G o v e r n m e n t is b r o k e n
also. A certain n u m b e r of l e a d i u g i n d u s t r i a l i s t s would n o doubt Tike to s e e , t h e
m o v e m e n t come to a n end, b u t t h e i r employees are all in it and they insist on business
b e i n g closed clown w h e n e v e r an excuse offers. W h i l e h e t h o u g h t t h a t t h e occupation
of the Congress House would h a v e some moral effect on the situation, h e believed t h a t
a n y n u m b e r of o t h e r houses would be m a d e available for Congress p u r p o s e s .
T h e police h a v e been excellent, a l t h o u g h occasional mistakes h a v e been m a d e .
H i s Government have sanctioned an increase of 2,400 m e n , b u t t h e whole of t h i s
n u m b e r have n o t yet been r e c r u i t e d ; a n d a l t h o u g h at first t h e r e h a d been n o
difficulty in o b t a i n i n g recruits, r e c r u i t i n g h a s recently slackened a n d i t h a s b e e n
necessary to extend the period of t e m p o r a r y service to one year.
H e considered it most desirable t h a t an O r d i n a n c e should be p r e p a r e d w i t h a s
little delay as possible on the lines of Defence of R e a l m Act. T h e chief object to
b e aimed at would b e to give wide p o w e r s to local executive officers i n those a r e a s
w h e r e a n e m e r g e n c y existed, and, in p a r t i c u l a r , to invest District Magistrates w i t h
t h e power to m a k e regulations. He would like to h a v e a n O r d i n a n c e of this k i n d
at once, b u t realised t h e difficulty of p r o m u l g a t i n g a n O r d i n a n c e g r a n t i n g s u c h
drastic powers if i t w e r e r e q u i r e d in one province only. H e , however, u r g e d t h e
necessity of p r e p a r i n g one with as little delay as possible.
Central Provinces.
5. His Excellency t h e Governor of t h e C e n t r a l Provinces said t h a t t h e m o v e m e n t
is g a i n i n g force i n h i s province. I t is s w e e p i n g u p from B o m b a y into B e r a r a n d
M a h r a t t a country.
T h e p o p u l a r a t t i t u d e t o w a r d s it is semi-religious, a n d to a
considerable extent ignores considerations of personal loss. W o m e n a n d c h i l d r e n
a r e t a k i n g a n e n t h u s i a s t i c p a r t in it, a n d o w i n g to t h e terror of social boycott few
non-official leaders h a v e t h e courage to come forward on t h e side of G o v e r n m e n t . I t
is s p r e a d i n g into t h e villages, a n d h e also is greatly^boncerned r e g a r d i n g t h e f u t u r e
economic prospects. H e t h o u g h t t h a t N o v e m b e r a n d December would b e critical
m o n t h s . Cotton would t h e n come on the m a r k e t a n d if the g r o w e r s could n o t sell
it, there would b e a g r e a t deal of r u r a l discontent.
T h e police, w h i c h h a d previously been a little below s t r e n g t h , h a v e b e e n b r o u g h t
u p to n o r m a l ; b u t difficulty of r e c r u i t m e n t r e p r e s e n t s a serious obstacle to a n y
considerable increase i n t h e s t r e n g t h of the force.
H e is strongly i n favour of a n Ordinance on the lines of D.O.R.A. T h e O r d i n a n c e
should create special t r i b u n a l s , for a l t h o u g h our difficulties in d e a l i n g w i t h t h e
m o v e m e n t have so far been g r e a t l y r e d u c e d b y the refusal of accused to p l e a d or t o .
file appeals, their policy m i g h t change, a n d t h e n t h e a t t i t u d e of t h e appellate courts,
especially of sessions courts, would be a serious m a t t e r . I t m a y b e assumed t h a t a
n u m b e r of Sessions J u d g e s are in s y m p a t h y with. the. movement. Other m a t t e r s for
w h i c h t h e O r d i n a u c e should p r o v i d e are :—
(a) Collective p u n i s h m e n t on a village t h a t h a d misbehaved.
(b) Suspension of local bodies.
(c) Deprivation of civil r i g h t s , e.g. eligibility to s t a n d for legislative or local
bodies.
(d) Forfeiture of p r o p e r t y in certain cases.
H e attached p a r t i c u l a r i m p o r t a n c e to o b t a i n i n g powers of control over local bodies.
:Some of these are t a k i n g a n active a n d very effective p a r t i n t h e m o v e m e n t a n d the
p r e s e n t legal p r o c e d u r e is c u m b e r s o m e and p r o t r a c t e d . I a the m e a n t i m e m u c h h a r m
is b e i n g d o n e .
United Provinces.
6. H i s Excellency the Governor of t h e U n i t e d P r o v i n c e s said t h a t in his province,
-as elsewhere, t h e m o v e m e n t is mainly u r b a n a n d H i n d u . H i n d u s generally s y m p a t h i s e
with it, i n c l u d i n g most H i n d u G o v e r n m e n t servants. T h r e e weeks ago t h e r e was a
lull, w h i c h h e hoped r e p r e s e n t e d a definite decline,' b u t since t h e n the situation
h a s tended to revert to its former state, a n d he could not say w i t h certainty t h a t
t h e r e are now definite indications of a lull i n t h e situation as a whole. T h e r e h a s , '
however, been no intensification in t h e towns, a n d t h e r e are signs of weariness.
I n r u r a l areas, r e v e n u e a n d r e n t s are c o m i n g i n fairly well, h a v i n g r e g a r d to t h e '
economic conditions, a n d t h e r e has been n o t h i n g serious in t h e way of a no-tax or
no-rent c a m p a i g n . I n fact, t h e Congress leaders h a v e temporarily g i v e n u p t h i s idea,
b u t they are h o l d i n g out h o p e s for:-next harvest. . I n t h e w e s t e r n districts of t h e
province t h e r e h a v e recently been i n d i c a t i o n s t h a t villages a r e affected' to some
extent, a n d small p r o p a g a n d a p a r t i e s a r e d o i n g some h a r m . D i s t r i c t Officers,
however, are not seriously concerned a t p r e s e n t . T h e m o v e m e n t h a s u n d o u b t e d l y
excited g r e a t e r e n t h u s i a s m a n d emotion t h a n was expected, a n d t h e o r g a n i s a t i o n i s
good. Some local bodies h a v e been troublesome, a n d a few of them, c o n t a i n i n g a
majority of Swarajist m e m b e r s , use t h e staff, especially educational, for C o n g r e s s
p u r p o s e s . S t u d e n t s and schoolboys are willing r e c r u i t s . P i c k e t i n g h a s been b a d i n
a few towns. T h e a t t i t u d e of District Officers t o w a r d s p i c k e t i n g a n d t h e use of t h e
P i c k e t i n g O r d i n a n c e varies considerably. T h e g e n e r a l policy, h a s b e e n to give
p r o t e c t i o n to those who w a n t it and, in particular, M u h a m m a d a n s h a v e been g i v e n
protection. Boycott of officials has been n e g l i g i b l e a n d t h e police h a v e b e e n v e r y
good.
Counter p r o p a g a n d a is b e i n g vigorously carried on i n various ways, e.g. articles
in n e w s p a p e r s , i t i n e r a n t p r e a c h e r s a n d loyalist associations. I n some districts­
anti-Congress m e e t i n g s a r e successfully h e l d a n d in t h e A g r a district Congress
p a r t i e s are now u n a b l e to go into t h e villages. H e attached g r e a t i m p o r t a n c e to
t a k i n g u p a t once t h e q u e s t i o n of local bodies a n d to p r o v i d i n g b y O r d i n a n c e
a d e q u a t e powers of suspension. I n h i s province t h e h a r m d o n e b y Municipalities
-and District Boards is serious, especially in o u t l y i n g districts w h e r e c o u n t e r influences
a r e not effective. T w o District Boards, for instance, a r e u s i n g e d u c a t i o n a l institutions
for Congress p r o p a g a n d a a n d are t r y i n g to enforce the w e a r i n g of Miaddar b y the
-staff and p u p i l s .
H e considered t h a t Defence of R e a l m Act should b e drafted a n d k e p t in readiness,
b u t t h a t it is not r e q u i r e d at the m o m e n t .
On t h e whole h e t h o u g h t t h a t if t h e M u h a m m a d a n s k e e p on t h e r i g h t side, a n d we
continue steady p r e s s u r e , t h e feeling of l a s s i t u d e a m o n g t h e p u b l i c will increase, t h a t
discontent a m o n g p a r e n t s will develop, a n d that after two or three m o n t h s t h e
m o v e m e n t will definitely be beaten.
-
Punjab.
7. His Excellency t h e G o v e r n o r of t h e P u n j a b said t h a t w i t h t h e exception of
A m r i t s a r City the situation h a s generally i m p r o v e d in his province. At one t i m e t h e
Congress h a d been active in all districts, b u t s t e a d y a n d continuous p r e s s u r e h a d
completely worn down t h e m o v e m e n t in some places. In some of the s m a l l e r
districts it is at a standstill. T h e s u p p l y of v o l u n t e e r s is d r y i n g up. No-tax
c a m p a i g n s were tried in one t o w n a n d in one r u r a l district, b u t failed.
Similarly,
efforts have been m a d e to boycott schools, b u t this also h a s failed. At t h e same t i m e
t h e r e is a good deal, of economic u n r e s t d u e to low prices of a g r i c u l t u r a l produce, a n d
this is b e i n g exploited b y t h e Congress. I t m i g h t be necessary for his G o v e r n m e n t
seriously to consider w h e t h e r an all-round reduction in l a n d r e v e n u e should be­
m a d e . H e believed t h a t if this were done, the r u r a l p o p u l a t i o n would recognise t h a t
G o v e r n m e n t h a d played its p a r t a n d t h e economic stress would not t h e n create­
feelings hostile to G o v e r n m e n t . T h e Sikh position is unstable a n d is a p o t e n t i a l
danger. I t m i g h t spread a n d become a source of s u p p l y of volunteers to t h e
Congress. T h i s at p r e s e n t is the m o s t anxious feature"of t h e situation. A p a r t from
that, t h e m o v e m e n t is very definitely declining a n d the situation is m u c h b e t t e r t h a n
a month ago.
In A m r i t s a r City t h e position is unsatisfactory. I n t e n s e p i c k e t i n g of cloth shops­
is g o i n g o n a n d six crores of goods a r e locked u p . I n J u n e t h e sales of piece goods
d r o p p e d from a n average of 2b l a k h s d u r i n g the past two years to two l a k h s only.
T r a d e is practically at a standstill. L e a d i n g m e r c h a n t s a r e s u b s c r i b i n g to theCongress funds a n d p a y i n g the p i c k e t e r s who picket their shops. - T h e sale of I n d i a n ­
m a d e goods is restricted, because m e r c h a n t s cannot get t h e m on credit and t h e i r
capital is locked u p . T h e r e a r e s i g n s t h a t t r a d e r s are g e t t i n g tired of this state of
affairs, a n d they m a y p e r h a p s a p p r o a c h G o v e r n m e n t for assistance.
H e considered t h a t D.O.R.A. should be drafted and held in reserve. H e attached
special i m p o r t a n c e to tribunals, since some of the Appellate Courts are likely to t a k e
a view very s y m p a t h e t i c to the civil disobedience m o v e m e n t a n d to reduce sentences,,
if appeals are filed before t h e m . G e n e r a l l y he does n o t t h i n k t h a t we can count on
an early cessation of the movement, a n d fears -that there may b e a recrudescence­
after t h e R o u n d - T a b l e Conference.
Bihar and Orissa.
8. H i s Excellency the Governor of B i h a r and Orissa stated t h a t with t h e exception
of three districts his officers believe t h a t the corner h a s b e e n definitely t u r n e d .
P e o p l e a r e g e t t i n g tired of p i c k e t i n g a n d so a r e . t h e picketers. T h e boycott of police­
h a s now practically ceased, a n d i n this connection e i g h t or nine successful
prosecutions h a v e h a d an excellent effect. At one time h e was anxious about students­
a n d schoolboys j o i n i n g the m o v e m e n t in l a r g e n u m b e r s , ' b u t this d a n g e r h a s n o t
materialised largely owing to the a t t i t u d e taken b y the Provincial Congress l e a d e r s .
I n B i h a r a n d Orissa the semi-religious hysteria manifest in Bombay and t h e C e n t r a l
P r o v i n c e s is absent, a n d the m o v e m e n t is regarded r a t h e r as a m e a n s to annoy and
i r r i t a t e G o v e r n m e n t . T h e Legislative Council h a s behaved well. B y a majority of
3 to 1 it passed a d e m a n d for additional police and a n o t h e r for p r o p a g a n d a p u r p o s e s .
Some of t h e l e a d i n g zamindars are playing' u p , and p r o p a g a n d a is p r o c e e d i n g
satisfactorily. T h e c a m p a i g n a g a i n s t t h e Chowkidari T a x has achieved very little
success a n d is not now b e i n g seriously prosecuted.
Several Municipalities a n d
District B o a r d s passed resolutions in favour of hoisting t h e national flag.
The
resolutions were cancelled a n d the flags pulled down . by executive action. Three­
districts are still t h e source of some anxiety, namely, Balasore, B h a g a l p u r and
M a n b h u m . I n these, volunteers a r e doing p r o p a g a n d a i n some villages, a n d the
general situation is affected by conditions in adjacent B e n g a l districts.
Assam.
9. His Excellency the Governor of Assam explained t h a t the conditions in his.
province were exceptional. T h e province is almost entirely a g r i c u l t u r a l , and t h e r e
are very few towns. Some p a r t s of t h e province h a v e been infected from Bengal.
D u r i n g t h e non-co-operation m o v e m e n t t h e chief source of trouble was agitation in
t h e tea g a r d e n s , b u t these so far h a v e given little trouble, although the price of tea
h a s fallen. T h e y tackled the p r o b l e m of students, a n d schoolboys by the issue of a.
circular, which r e q u i r e s an u n d e r t a k i n g by p a r e n t s t h a t t h e i r sons will not participate
in^ a n y political movement.
T h i s created loud protests, b u t in spite of these
u n d e r t a k i n g s have been given in r e g a r d to 75 per cent, of t h e p u p i l s . T h e reply to
t h i s action by G o v e r n m e n t h a s been incendiarism, a n d t h r e e i m p o r t a n t schools have
been b u r n t down. I n r e g a r d to one of these institutions, an i n d i g n a t i o n m e e t i n g of
p a r e n t s was held, b u t was b r o k e n u p by schoolboys. A fall in the price of j u t e
m i g h t cause;economic difficulties a n d a g g r a v a t e the situation, b u t otherwise h e feels
fairly h a p p y r e g a r d i n g the future.
10. His Excellency the Viceroy, in s u m m i n g u p the discussion, explained the
a t t i t u d e of G o v e r n m e n t towards t h e efforts of Sir Tej B a h a d u r S a p i u and Mr. J a y a k a r
t o obtain a solution. His Excellency explained t h a t t h e initiative had come entirely
from them a n d t h a t he h a d refused to give a n y a s s u r a n c e b e y o n d w h a t he h a d s t a t e d
in h i s a d d r e s s to t h e L e g i s l a t u r e on the 9 t h J u l y . T h e G o v e r n m e n t of I n d i a - h a d
g i v e n facilities for interviews w i t h G a n d h i , ore. b e c a u s e t h e y felt, firstly, t h a t they
would not have been justified in i n t e r p o s i n g obstacles, a n d secondly, t h a t if G a n d h i ,
& c , were unreasonable, this would p e r h a p s help the m o d e r a t e s in their decision to
g o to t h e H o u n d - T a b l e Conference.
His Excellency observed t h a t if t h e civil disobedience m o v e m e n t were n o t called
off, the conclusions r e s u l t i n g from t h e discussion a p p e a r e d to be t h a t G o v e r n m e n t
should continue steady p r e s s u r e on existing lines, take u p at once t h e question of
p r o m u l g a t i n g at an early date an O r d i n a n c e to deal effectively with local bodies a n d
also p r e p a r e for use, if r e q u i r e d , an O r d i n a n c e on t h e lines of D.O.R.A.
II.—Question of A m n e s t y .
1. His Excellency t h e Viceroy t h e n invited t h e views of t h e Governors r e g a r d i n g
t h e question of an amnesty. H e explained t h a t i n r e p l y to t h e personal a n d p r i v a t e
l e t t e r h e h a d addressed to t h e m , t h e Governors of M a d r a s a n d P u n j a b h a d r a i s e d
certain objections of p r i n c i p l e , while the o t h e r Governors h a d on the whole a g r e e d to
t h e necessity at some t i m e or a n o t h e r of release of p r i s o n e r s , while e x p r e s s i n g in some
cases some differences of opinion r e g a r d i n g details. H i s E x c e l l e n c y m a d e no m e n t i o n
of t h e m a t t e r in his a d d r e s s to the C e n t r a l L e g i s l a t u r e , because he felt t h a t it w o u l d
do little good at t h a t m o m e n t a n d m i g h t c r e a t e difficulties. I t is, however, obvious
t h a t the question m u s t b e considered if the efforts for p e a c e show s i g n s of l e a d i n g to
a n y results.
2. His E x c e l l e n c y t h e G o v e r n o r of t h e P u n j a b said t h a t h e feels c o n s i d e r a b l e
difficulty in finding a satisfactory formula. T h e r e are associations, s u c h as t h e N a u
J a w a u B h a r a t S a b h a a n d t h e K i r t i Kisan, whose a t t i t u d e is definitely a n t i - G a n d h i ,
b u t who h a v e n o n e t h e less t a k e n p a r t in t h e civil disobedience m o v e m e n t w i t h t h e
r e s u l t t h a t m a n y of t h e i r m e m b e r s a r e uow in p r i s o n . A good n u m b e r of these a r e
revolutionaries a n d C o m m u n i s t s , a n d they a r e unlikely to follow G a n d h i if h e called
t h e m o v e m e n t off. T h e s e a p p e a r to r e q u i r e different t r e a t m e n t from t h a t given to t r u e
followers of G a n d h i . A g a i n , t h e Provincial L e g i s l a t u r e s h a v e on the whole s u p p o r t e d
G o v e r n m e n t , a n d the m e m b e r s deserve consideration. So far, a t any rate, as t h e P u n j a b
i s concerned, a fair n u m b e r of C o n g r e s s leaders now in j a i l would, if released, s t a n d for
election a n d t h e i r self-imposed m a r t y r d o m w o u l d b e a n asset. T h e i r c a n d i d a t u r e
would b e e m b a r r a s s i n g to p r e s e n t m e m b e r s who stood b y Government, a n d t h e i r
release from jail a t p r e s e n t w o u l d be resented. Again, t h e feeling of t h e police deserves
c o n s i d e r a t i o n . T h e prisoners i n c l u d e m a n y w h o h a d openly s y m p a t h i s e d w i t h
revolutionaries a n d h a d joined in m e e t i n g s e u l o g i s i n g B h a g a t S i n g h and D u t t .
On
t h e other b a u d , t h e r e are m a n y prisoners, s u c h a s p i c k e t e r s , m e m b e r s of unlawful
assemblies, p e r s o n s p u t on security u n d e r section 108, C r i m i n a l P r o c e d u r e Code, i n
r e g a r d to w h o m t h e r e would be n o objection to t h e i r early release, if t h e civil
disobedience m o v e m e n t definitely ended.
3 . His Excellency t h e Governor of M a d r a s p o i n t e d o u t t h a t t h e r u m o u r t h a t
G a n d h i wo\ild shortly be let out of j a i l h a d e n c o u r a g e d m a n y to court a r r e s t in o r d e r
to obtain c h e a p m a r t y r d o m . H e said t h a t those who h a v e been imprisoned h a v e
d e l i b e r a t e l y defied t h e law a n d deserve little consideration. T h e i r release w o u l d
h a v e a b a d effect o n o u r friends, who would b e r e l u c t a n t to h e l p u s on t h e next occasion.
4 . H i s Excellency t h e Governor of the U n i t e d P r o v i u c e s a s s u m e d t h a t there is n o
question of an unconditional a m n e s t y , such a s was g i v e n on t h e occasion of Plis Royal
H i g h n e s s t h e D u k e of C o n n a u g h t ' s visit to I n d i a , but t h a t t h e proposal is r a t h e r t h a t
no release of prisoners will be sanctioned u n t i l G o v e r n m e n t a r e satisfied t h a t —
(a) t h e m o v e m e n t h a s b e e n definitely called off, a n d
(6) t h e ' p e r s o n s w h o give a s s u r a n c e s to this effect can a n d will carry t h e m out.
H e also t h o u g h t t h a t release should be conditional on a n assurance of f u t u r e g o o d
behaviour, a u d h e instanced w h a t was clone in t h e P u n j a b i n t h e case of p r i s o n e r s
convicted i n connection w i t h t h e Akali agitation.
5. H i s Excellency t h e G o v e r n o r of Assam observed t h a t tho a m n e s t y w o u l d
p r e s u m a b l y be accompanied b y the w i t h d r a w a l of exceptional measures, b u t i n t h i s
connection he u r g e d t h a t t h e powers of t h e P r e s s O r d i n a n c e should be r e t a i n e d .
Sir Malcolm Hailey a n d Sir C h a r l e s I n n e s p o i n t e d out t h e difficulties of this.
6. His Excellency t h e Governor of Bombay said that, as far as h e ' is concerned,,
t h e "calling off of the movement b y G a n d h i would give i m m e d i a t e relief to the­
situation, since h e believes t h a t t h e vast majority of a d h e r e n t s of t h e m o v e m e n t i n
t h e Bombay Presidency would follow G a n d h T s lead.
7. Sir Charles I n n e s observed t h a t it a p p e a r e d almost essential t h a t t h e calling off
of t h e civil disobedience m o v e m e n t by G a n d h i should be accompanied b y some k i n d
of concessions i n r e g a r d to prisoners, otherwise t h e r e would be no effective calling
off. I t would in practice n o t be possible for G o v e r n m e n t to give a b l a n k refusal.
T h e practical problem, therefore, was to obtain a suitable formula.
8. H i s Excellency the Viceroy i n s u m m i n g u p t h e discussion agreed w i t h w h a t
Sir Charles I n n e s h a d said, a n d observed t h a t if G a n d h i at some time or a n o t h e r did
definitely call off t h e movement, it would not be possible for G o v e r n m e n t to r e m a i n
u n r e s p o n s i v e . H e g a t h e r e d t h a t t h e g e n e r a l feeling of the Conference w a s t h a t there
should not be any unconditional a m n e s t y , b u t t h a t discretion should be left to Local
G o v e r n m e n t s to review sentences a n d to release prisoners conditionally. W h i l e
a c c e p t i n g t h i s formula h e expressed t h e hope t h a t Local G o v e r n m e n t s would, w h e n
t h e t i m e came, apply it as liberally as conditions would p e r m i t .
9. T h e Governors generally a g r e e d w i t h t h e formula above stated.
III.
Before t h e Conference closed, H i s Excellency Sir Malcolm Hailey expressed to His
Excellency t h e Commander-in-Chief t h e g r e a t appreciation of h i s G o v e r n m e n t a n d
officers for the ready a n d valuable assistance given by t h e military authorities on all
occasions. T h e o t h e r Governors endorsed t h i s appreciation. His Excellency t h e
Commander-in-Chief, in t h a n k i n g them, referred to t h e g r e a t h e l p the civil a u t h o r i t i e s
h a d g i v e n in g e t t i n g clown troops from the hills on t h e occasion of G a n d h i ' s arrest.