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(47) 22ND M Y . 158 1947 - ^ ^ No ^ ' CABINET INDIAN POLICY Memorandum "by t h e P r i m e M i n i s t e r - T h e I n d i a a n d Burma C o m m i t t e e h a s h a d a s e r i e s o f d i s c u s s i o n s , f i r s t w i t h Lord Ismay ( C h i e f A d v i s e r t o t h e V i c e r o y ) and l a t e r w i t h t h e V i c e r o y h i m s e l f . 2, L o r d M o u n t b a t t e n ' s i n s t r u c t i o n s w e r e t o do h i s y ' utmost to s e c u r e g e n e r a l a c c e p t a n c e of t h e C a b i n e t M i s s i o n ' s plan.I f t h i s p r o v e d i m p o s s i b l e h e was t o r e p o r t b y t h e 1 s t O c t o b e r on t h e - s t e p s which he c o n s i d e r e d s h o u l d h e t a k e n f o r t h e h a n d i n g o v e r of power i n d u n e , 1948.. h 3. S i n c e h i s a r r i v a l I n I n d i a "Lord M o u n t b a t t e n h a s -­ had a p r o l o n g e d s e r i e s of c o n v e r s a t i o n s w i t h t h e l e a d e r s of C o n g r e s s and o f t h e M u s l i m L e a g u e a n d h a s a l s o c o n f e r r e d w i t h r e p r e s e n t a t i v e s of t h e S i k h s . - His c o n v e r s a t i o n s h a v e c o n v i n c e d him t h a t t h e r e i s no p r o s p e c t of a c c e p t a n c e of t h e C a b i n e t M i s s i o n ' s p l a n o r o f a U n i o n o f I n d i a o n a n y other basis. He i s a l s o c o n v i n c e d t h a t a v e r y e a r l y , announcement of H i s M a j e s t y ' s GovernmentVs i n t e n t i o n s as t o t h e m a n n e r i n w h i c h p o w e r w i l l b e t r a n s f e r r e d i n 1948 i s e s s e n t i a l i f w i d e s p r e a d a n d u n c o n t r o l l a b l e communal d i s t u r b a n c e s , e s p e c i a l l y in the North-West F r o n t i e r Province and t h e P u n j a b ) , a r e t o b e a v o i d e d . - T h e I n d i a a n d Burma Committee a r e f u l l y s a t i s f i e d t h a t t h i s diagnosis.. i s c o r r e c t a n d - t h a t f u r t h e r i n i t i a t i v e on our p a r t i s e s s e n t i a l . 4. The V i c e r o y h a s c o n v e n e d f o r 2 n d J u n e a s m a l l C o n f e r e n c e c o n s i s t i n g of l e a d e r s of t h e C o n g r e s s , t h e Muslim L e a g u e a n d t h e S i k h s a t w h i c h h e w i l l make a f i n a l e f f o r t t o g e t a c o m p r o m i s e on. t h e b a s i s o f t h e C a b i n e t M i s s i o n ' s p l a n . I f , a s h e e x p e c t s , he f a i l s t o do s o , he p r o p o s e s t o l a y b e f o r e t h e C o n f e r e n c e t h e t e x t of a S t a t e m e n t b y H i s M a j e s t y ' s Government. He w i l l i n f o r m t h e C o n f e r e n c e t h a t h e i s p r e p a r e d t o c o n s i d e r any m o d i f i c a t i o n s of i t which t h e C o n f e r e n c e m a y , a g r e e t o p r o p o s e t o him w i t h i n a s h o r t b u t stated period. The p r o p o s e d t e x t of t h i s a n n o u n c e m e n t , a s a p p r o v e d b y t h e I n d i a a n d Burma C o m m i t t e e ' i n c o n s u l t a t i o n w i t h t h e V i c e r o y , i s c o n t a i n e d i n t h e a n n e x t o t h i s memorandum. 5. The S t a t e m e n t a n n o u n c e s : - . \ ( i ) t h a t t h e a t t e m p t t o s e c u r e a U n i o n of t h e w h o l e of I n d i a on t h e b a s i s of t h e C a b i n e t M i s s i o n ' s p r o p o s a l s m u s t now b e a b a n d o n e d ; ( i i ) t h a t a r r a n g e m e n t s m u s t t h e r e f o r e b e made w h e r e b y p o w e r c a n b e t r a n s f e r r e d "to m o r e t h a n o n e authority; . , ( i i i ) ( i v ) a p r o c e d u r e whereby t h e d i f f e r e n t p a r t s of I n d i a can choose through e l e c t e d r e p r e s e n t a t i v e s whether t h e i r f u t u r e c o n s t i t u t i o n s s h a l l be framed by the e x i s t i n g C o n s t i t u e n t Assembly o r i n a new C o n s t i t u e n t A s s e m b l y c o m p o s e d o f r e p r e s e n t a t i v e s of t h o s e a r e a s t h a t h o l d a l o o f from t h e main body; provisions for Assembly f o r action. s e t t i n g up s u c h new C o n s t i t u e n t t h e a r e a s t h a t opt for s e p a r a t i o n 6. The main p u r p o s e of t h e p r o c e d u r e p r o p o s e d i s t o t h r u s t upon I n d i a n s t h e r e s p o n s i b i l i t y of d e c i d i n g w h e t h e r o r n o t I n d i a s h a l l b e d i v i d e d a n d i n w h a t way. The e l a b o r a t e n a t u r e o f t h e p r o c e d u r e i s u n f o r t u n a t e l y made u n a v o i d a b l e . b y t h e complex c o n d i t i o n s e x i s t i n g in I n d i a , i f a r e a s o n a b l y e q u i t a b l e e x p r e s s i o n of I n d i a n o p i n i o n i n t h e a r e a s i n q u e s t i o n is to be obtained. T h e p r o b a b l e r e s u l t w i l l be--­ t h a t i n t h e N o r t h - W e s t S i n d , W e s t e r n P u n j a b , and p o s s i b l y a l s o t h e North.-West F r o n t i e r P r o v i n c e w i l l s t a n d o u t from t h e e x i s t i n g C o n s t i t u e n t Assembly.' In the North-East t h e r e i s some p o s s i b i l i t y o f B e n g a l r e m a i n i n g u n i t e d , b u t i f t h i s d o e s n o t h a p p e n E a s t e r n - B e n g a l , and t h e o n e p r e d o m i n a n t l y M u s l i m d i s t r i c t o f Assam a r e l i k e l y a l s o t o s t a n d o u t . 7. The V i c e r o y i n h i s c o n v e r s a t i o n s w i t h t h e p a r t y l e a d e r s h a s r e v e a l e d t o t h e m t h e m a i n o u t l i n e s of h i s p r o p o s a l s and i s s a t i s f i e d t h a t t h e y w i l l b e a c c e p t e d b y Congress. Mr. J i n n a h a c q u i e s c e d i n t h e m i n p r i v a t e c o n v e r s a t i o n a l t h o u g h i n a s u b s e q u e n t p u b l i c s t a t e m e n t he h a s p r o t e s t e d a g a i n s t any p r o p o s a l t o p a r t i t i o n B e n g a l and the Punjab. The V i c e r o y t h i n k s , h o w e v e r , t h a t t h e M u s l i m League i s l i k e l y t o c o - o p e r a t e i n working t h e p r o c e d u r e proposed. . ­ 8. T h e I n d i a a n d Burma C o m m i t t e e a r e s a t i s f i e d t h a t " these proposals' are the best a v a i l a b l e in the circumstances and recommend t h a t t h e V i c e r o y b e a u t h o r i s e d t o p r o c e e d accordingly. C.R.A. 10, Downing 2 2 n d May, Street, S.W.1. 1947. ANNEX I DRAFT ANNOUNCEMENT I. 1. On F e b r u a r y their intention 20th., INTRODUCTION 1947? H i s M a j e s t y ' s G o v e r n m e n t of t r a n s f e r r i n g I n d i a n h a n d s "by J u n e , 19^-8. it co-operate i n 'the w o r k i n g - o u t acceptable 2. power i n B r i t i s h I n d i a would he p o s s i b l e for of the major The m a j o r i t y concerned. of t h e a and t h e to Plan constitution T h i s hope has not b e e n representatives fulfilled. of the P r o v i n c e s M a d r a s , Bombay, t h e U n i t e d P r o v i n c e s , B i h a r , and B e r a r , A s s a m , parties had the Cabinet Mission's 19U6, and e v o l v e f o r I n d i a to a l l to H i s M a j e s t y ' s Government hoped t h a t of May i 6 t h , announced of Central Provinces O r i s s a and t h e N o r t h - W e s t F r o n t i e r Province, representatives of D e l h i , A g m e r - M e r w a r a a n d C o o r g h a v e a l r e a d y made p r o g r e s s in the t a s k of e v o l v i n g a new Constitution. On t h e o t h e r h a n d , , t h e M u s l i m L e a g u e Party, including a majority Bengal, in i t the Punjab and S i n d , Baluchistan, of the r e p r e s e n t a t i v e s as a l s o the representative has decided not t o p a r t i c i p a t e of of i n the British Constituent Assembly. 3... It has always been the d e s i r e t h a t power s h o u l d be t r a n s f e r r e d of H i s M a j e s t y ' s G o v e r n m e n t . i n accordance w i t h .the of t h e I n d i a n p e o p l e t h e m s e l v e s . greatly facilitated Indian p o l i t i c a l agreement, if This t a s k would have t h e r e had been agreement parties. In the absence t h e t a s k of d e v i s i n g of among such political Government. a method by which t h e leaders decided t o adopt in India, for After f u l l consultation the plan set H i s M a j e s t y ' s G o v e r n m e n t w i s h t o make i t no i n t e n t i o n of a t t e m p t i n g to frame clear the wishes on with His M a j e s t y ' s Government thi.s purpose been an of t h e I n d i a n p e o p l e c a n b e a s c e r t a i n e d h a s d e v o l v e d His Majesty's wishes have out below.' that they any u l t i m a t e have Constitution for I n d i a ; Nor i s this there is a matter for anything in t h i s the Indians plan to preclude between communities f o r . an u n i t e d ' I I . h. It the work of t h e How t h a t p r o v i s i o n those Provinces participating In it trust w i l l now t a k e it is their of t h e p e o p l e Constitution (a) of such a r e a s i s ' t o be in.the that practical as a consequence representatives apply that any His the procedure i s s u e whether the . not the wishes their framed:­ or ( b ) i n a new a n d s e p a r a t e C o n s t i t u e n t A s s e m b l y . of o u t l i n e d below e x i s t i n g C o n s t i t u e n t Assembly; of t h e its Majesty's m e t h o d of, a s c e r t a i n i n g on t h e already Constitution to those parts it. of are due s h a r e i n clear country which are u n w i l l i n g ' t o accept are s a t i s f i e d specified of w h o s e r e p r e s e n t a t i v e s same t i m e , embodies the b e s t that, to Assembly. Provinces t h e Muslim League framed by t h i s Assembly cannot Government Government existing Constituent a majority At t h e of H i s M a j e s t y ' s Government announcement, labours. India. i s made f o r c e r t a i n below, His M a j e s t y ' s of t h i s negotiations THE ISSUES TO BE DECIDED i s not the i n t e n t i o n interrupt themselves. representatives to p a r t i c i p a t e of consisting t h o s e a r e a s which in the existing decide Constituent Assembly, When t h i s h a s b e e n d o n e , i t authority or a u t h o r i t i e s I I I . 5. w i l l be p o s s i b l e to determine t o whom p o w e r s h o u l d b e transferred. BENGAL ^ND THE PUNJAB The P r o v i n c i a l L e g i s l a t i v e A s s e m b l i e s of B e n g a l a n d Punjab ( e x c l u d i n g t h e European m e m b e r s ) w i l l therefore a s k e d t o m e e t i n two p a r t s , the majority the districts and t h e one r e p r e s e n t i n g other the rest of t h e the each be Muslim Province. for India; Nor i s this there is a matter anything in this "between c o m m u n i t i e s f o r II. It k- i s not interrupt Now t h a t below, of the the provision is announcement, those Provinces labours. the in it Government trust Constitution (a) is in the ( b ) i n , a of not Government that, specified as a consequence representatives of whose r e p r e s e n t a t i v e s w i l l now t a k e it cannot their Is clear apply the share that to to accept that due in any His procedure its of the Majesty's outlined method of, a s c e r t a i n i n g such areas on t h e i s s u e Whether below the wishes their framedt­ existing Constituent new a n d s e p a r a t e the already Constitution practical to be of are those parts it. to Assembly. Provinces t h e Muslim League satisfied of of H i s M a j e s t y ' s same t i m e , embodies the b e s t people negotiations India. certain country which are u n w i l l i n g of t h e to preclude made f o r framed by t h i s Assembly are themselves. existing Constituent a majority At t h e Government plan an u n i t e d intention w o r k of participating the Indians THE ISSUES TO BE DECIDED His Majesty's this for Constituent representatives to p a r t i c i p a t e Assembly; of in the those or Assembly areas existing consisting which decide Constituent Assembly. When t h i s h a s b e e n authority or a u t h o r i t i e s I I I . 5. done, (excluding t o whom p o w e r Legislative the European a s k e d t o meet i n two p a r t s , majority w i l l be p o s s i b l e to should be determine the transferred. BENGAL .aND THE PUNJAB The P r o v i n c i a l Punjab it districts and t h e Assemblies members) of B e n g a l will one r e p r e s e n t i n g other the rest of and therefore the each the Muslim the Province. be For the 19h1 purpose of census f i g u r e s majority districts Appendix to 6. determining this w i l l he in separately Province either these the w i l l he decides 7. Before that the. r e p r e s e n t a t i v e s and a r r a n g e m e n t s such a vote it preliminary to joint ( other decision on t h i s 8. ,of In the above t o 9. of meeting issue of division will of w i l l be as members is desirable should c l e a r l y knp-w a whole would Therefore, if there Assembly, join, is a a of e a c h L e g i s l a t i v e w i l l be held at which - a taken. partition being Assembly it the L e g i s l a t i v e all the accordingly. however, the Province of or not will, decided upon, on b e h a l f of alternatives each the areas in paragraph part they k adopt. immediate the and t h e Punjab purpose members will districts Muslim m a j o r i t y of sit (as temporary purposes of detailed investigation laid nature the Governor-General, down i n This as i t is partition of b o u n d a r y a decision either Province, deciding i n two p a r t s a definitive as soon as of the Legislative districts.. a purely for Assembly partitition, each Province d e c i d e w h i c h of. t h e partition, and, the of place, than Europeans) event For.the majority out i n majority remain u n i t e d . the Legislative -represent, set the Muslim a simple w i l l h e made b y a n y member Assembly are The of e a c h L e g i s l a t i v e If of takes which C o n s t i t u e n t Assembly demand f o r districts, empowered t o v o t e w h e t h e r in favour place decided of authoritative. two P r o v i n c e s should he p a r t i t i o n e d . part they as two p a r t s take if taken population Announcement. T h e m e m b e r s of sitting the on t h e assemblies according to the Appendix) is only evident of of that and for these Provinces w i l l be partition of Bengal Muslim non- a preliminary questions involving issue step of the a neededj has been taken a Boundary Commission w i l l be s e t up by the membership and terms of reference of which w i l l he It w i l l he parts of instructed the Punjab contiguous will to demarcate on t h e b a s i s majority a l s o be Similar settled, in consultation areas instructed instructions will be Commission. Until been put effect, into take the the Appendix w i l l be on t h e will at 11. exceptional.. are Assembly. part of Province of the three it is clear, factors. Boundary a Boundary Commission has indicated Sind (excluding also in take its the European own decision; above. representatives in considerations, decides not will be necessary the of the present Province to to the its that to give w i l l be h e l d under Constituent the whole existing or Constituent Frontier a r e f e r e n d u m w i l l b e made they wish the aegis any position. L e g i s l a t i v e Assembly m e n t i o n e d i n p a r a g r a p h 1+ a b o v e this the North-West its is geographical if c h o o s e w h i c h of and i n c o n s u l t a t i o n of existing join the to reconsider i n s u c h an event^, General the Bengal i n v i e w of Accordingly, West F r o n t i e r other the Norths/Vest F r o n t i e r Province an o p p o r t u n i t y electors to in paragraph k and o t h e r it referendum of already participating the Punjab Assembly, Assembly Two o f But situation, account It NORTH-WEST FRONTIER PROVINCE The p o s i t i o n Province and n o n - M u s l i m s . SINE a special' meeting alternatives V. of two used. The L e g i s l a t i v e members) into the the the provisional boundaries IV. 10. of of a s c e r t a i n i n g given report those'concerned. the boundaries of M u s l i m s to with the in the the with the Provincial North- alternatives to adopt. of to The GovernorGovernment. VI. 12. British Baluchistan taken his of B R I T I S H BALUCHISTAN its given seat geographical the to reconsider Though Assam I s of S y l h e t of the that Bengal in Sylhet and i n to predominantly partition decide whether of If the Eastern Bengal, demarcate the district results Ik. If it partitioned, is it the of S y l h e t or the Punjab of t h e A s s a m P r o v i n c e VIII. of areas will of t h e in that, if in of is decided held Government, should continue to amalgamated if that of amalgamation Province terms of S y l h e t of with reference set existing Constituent up to and districts, to Eastern Bengal. continue with agrees. district adjoining any c a s e the amalgamated it and B e n g a l w i l l b e areas the Governor-General should be in favour then be t r a n s f e r r e d the proceedings can is a referendum will be of E a s t e r n B e n g a l , c o n t i g u o u s Muslim m a j o r i t y in choose adopt. should be Accordingly, aegis t h e Muslim m a j o r i t y which w i l l to a.demand w i t h t h e Assam P r o v i n c i a l for and t o to Bengal a Boundary Commission w i t h to those be a non-Muslim P r o v i n c e , Sylhet partitioned, the referendum similar of B e n g a l , t h e Assam P r o v i n c e t h e new P r o v i n c e also view, e x a m i n i n g how t h i s has been of B e n g a l . should be consultation is contiguous There d i s t r i c t , under form p a r t i n p a r a g r a p h k above which i s w i t h the Muslim p a r t position In ASSAM predominantly Muslim. event its will not done. VII. district Assembly. this Province the Governor-General appropriately be 13* a member b u t h e h a d existing Constituent alternatives His Excellency elected situation, an o p p o r t u n i t y w h i c h of most in the has to The rest participate Assembly. REPRESENTATION I N CONSTITUENT ASSEMBLIES decided that Bengal w i l l be necessary . -V­ and t h e Punjab to hold fresh should elections be to choose their million representatives of p o p u l a t i o n according 1 the Cabinet Mission s elections will its decided being Bengal. that would be e n t i t l e d Province is concerned, either join Constituent the to this as follows"Sikhs k the mandate given to East area 17 12 them by the the various Constituent of of 3 19 Nil Nil 2 2 12 of event Total mi k 29 the existing in the t o which each 2 in Similar Sylhet Muslims ' every s h o u l d form' p a r t representatives representatives areas areas Assemhly will or form the new Assembly. Negotiations possible 19^-6. for district of one f o r principle, contained of IX. 16. the to be held 1 15 12 3 6 According to scale o f May 1 6 t h , General Sylhet D i s t r i c t W e s t B e n g a l East Bengal West P u n j a b East Punjab 15. Plan a l s o have The n u m b e r on t h e ADMINISTRATIVE MATTERS will have t o be I n i t i a t e d on a d m i n i s t r a t i v e may h a v e b e e n d e c i d e d ( a ) B e t w e e n the successor w i t h by consequences as soon as of any p a r t i t i o n the prospective that upons­ representatives authorities the C e n t r a l of about all Government, subjects now including dealt Defence, P i n a n e e a n d C ommunic a t i o n s . ( b ) B e t w e e n d i f f e r e n t Majesty's matters ( c ) I n the to Government arising case successor out as t h e division police and o t h e r of of treaties of t h e of P r o v i n c e s administration provincial for authorities all services, institutions, may b e provincial assets His in regard transfer that and of power. partitioned subjects and l i a b i l i t i e s , the High etc. to Courts, as such the X.' THE TRIBES OF THE NORTH-WEST FRONTIER 17* Agreements with India will tribes of the North-West F r o n t i e r h a v e t o "be n e g o t i a t e d b y the appropriate of successor authority. XI. 18. His Majesty's decisions their Government towards I n d i a n XII. In order to prepare all the that States take and t h e p r o c e e d t o frame territories! remains that India the and that unchanged. authorities over power, should be To a v o i d d e l a y , - t h e will only to B r i t i s h successor to of different this Plan, new C o n s t i t u e n t Constitutions they will of the may h a v e is as q u i c k l y a s f?,r as existing (if time important Provinces Assembly for course it completed proceed independently the conditions Assembly own the above p r o c e s s e s of P r o v i n c e s clear NECESSITY FOR SPEED themselves possible. within w i s h t o make i t announced above r e l a t e policy i9. THE STATES that as or parts practicable Constituent formed) their respective be f r e e t o frame will their rules. XIII. 20. time His Excellency the Governor-General make s u c h f u r t h e r regard above FURTHER ANNOUNCEMENTS BY GOVERNOR-GENERAL to procedure arrangements. announcements or any other time to a s may b e n e c e s s a r y in matters will for from carrying out the ANNEX II C e r t a i n minor m o d i f i c a t i o n s of t h e d r a f t Announcement c o n t a i n e d i n Annex I h a v e b e e n a g r e e d by t h e I n d i a and Burma C o m m i t t e e i n c o n s u l t a t i o n w i t h t h e V i c e r o y . Lord M o u n t b a t t e n w i l l e n d e a v o u r t o s e c u r e t h e a g r e e m e n t of the Indian leaders to these changes. If, however, t h e y should p r e f e r the o r i g i n a l t e x t , t h e Committee thought t h a t i t should be adhered t o . The amendments p r o p o s e d Paragraph 7 s h o u l d be r e d r a f t e d are to as follows reads­ "Before the question a s . t o the p a r t i t i o n is d e c i d e d i t i s d e s i r a b l e t h a t t h e r e p r e s e n t a t i v e s of e a c h p a r t s h o u l d know i n a d v a n c e w h i c h c o n s t i t u e n t assembly the P r o v i n c e as a whole would j o i n in t h e e v e n t o f t h e two p a r t s s u b s e q u e n t l y d e c i d i n g t o remain united. T h e r e f o r e i f a n y member of e i t h e r L e g i s l a t i v e A s s e m b l y so demands t h e r e s h o u l d b e h e l d a m e e t i n g o f a l l members of t h e L e g i s l a t i v e Assembly (other t h a n Europeans) at which a d e c i s i o n w i l l b e t a k e n on t h e i s s u e as t o which ' . c o n s t i t u e n t assembly the Province as a whole would j o i n i f i t w e r e d e c i d e d b y t h e two p a r t s t o r e m a i n - u n i t e d . " P a r a g r a p h 9; The word " f i n a l " s h o u l d b e s u b s t i t u t e d word " d e f i n i t i v e " i n the second s e n t e n c e . " for the Paragraph 18; P a n d i t N e h r u a n d Mr. J i n n a h h a v e a g r e e d t o a s u g g e s t i o n by t h e V i c e r o y t h a t , as a means of a s c e r t a i n i n g t h e w i s h e s of B r i t i s h B a l u c h i s t a n , a Commission composed of one C o n g r e s s and one M u s l i m L e a g u e r e p r e s e n t a t i v e w i t h a B r i t i s h Chairman should consult each J i r g a . A reference t o t h i s p r o c e d u r e s h o u l d b e made i n a n a d d i t i o n a l s e n t e n c e in this paragraph. Paragraph 15 s h o u l d b e r e d r a f t e d to reads­ " I n accordance with the mandates g i v e n t o them, t h e r e p r e s e n t a t i v e s of t h e v a r i o u s a r e a s w i l l e i t h e r j o i n t h e e x i s t i n g C o n s t i t u e n t Assembly o r form t h e new C o n s t i t u e n t A s s e m b l y . "