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BENGAL

UNDER THE LIEUTENANT-GOVERNORS

BENGAL UNDER THE

LIEUTENAXT-GOYERNORS ;

ItRING

A NARRATIVE OF THE PRINCIPAL EVEN7S AND
PUBLIC MEASURES DURING THEIR PERIODS
OF OFFICE, FROM /Sj^ TO jSqS.

C. E. BUCKLAND, C. /. E.,

OF THE INDIAN CIVIL SERVICK.

" The poBltion of the Lieutenant-Govemor of Bengal has become by
much ttie most Important of any under the Supreme Government."

Sir O. Chphnky, " Indtan Polity ;' p. !>2.

'* The ftkct is that the Bensral Qovemment is in every way a orreat charsre
-ftir the greatest Local Government in india."

HiB G. Campbki.l, *'Mejiioin«, " Vol. 11. p. HH».

In Two Volumks ;

{With 14 lUustrations.)

Vol. II.

CALCUTTA ;

S. K. L A H I R I & C o.,
1901,

• -

CONTENTS OF VOLUME II.

CHAPTER VI.

THK RIGHT HON'BLE SIR RICHARD TEMPLE, Bar/.,

M. P., G. C. S. I., C. I. E., D. C, L., L. L. D., F. R. S.

1874-77.

Previous Career — The Bengal- Bihar famine of 1873-74— Minutes—
The Calcutta Market— Railways in North Bihar and elsewhere—
Canals — Emigration to Burma— Drainage schemes — The Burdwan fever
— Forest Policy, The Sundarbans and other areas — Development of
the resources of the country through Science — The Botanic Garden —
The Zoological Garden at Alipore — Re-arrangements of certain Commis-
sionerships— Cyclone of 1 5th-i6th October 1874— The Calcutta-Howrah
bridge — Gazetteer of Bengal — Primary Education — Technical Schools —
Education — Art Gallery— Proposal for a separate University in Bengal —
The Rent difficulties : agrarian disturbances — Indigo — Improvement of
the substantive law for determination of Rent — Visit of His Royal High-
ness the Prince of Wales to Calcutta— Bishop Milman — The Calcutta
Mutiicipality— J/w/iwjtf/ Municipalities — Sikhim Tibet trade-route— The
Excise policy — Intemperance among the Sonthals — Danger of their rising
— Reformatories— Legislation — Powers of the Bengal Council — Civil
Appeals and Appellate Benches — Economic Museum : Statistical Depart-
ment and Reporter : proposed Industrial Survey — The Civil Service in
Bengal : four new districts proposed : Natives in higher Executive
posts — * The Fuller case' — removal of a Magistrate— the Cyclone and
Stormwave of the 31st October 1876 in Backergunge and Noakhali — Mis-
cellaneous— Assumption of the Imperial title by Her Majesty the Queen
— Deputation to Madras and Bombay famine — Observations — Governor
of Bombay — Subsequent Career ... ... ... Page 573.

CHAPTER VII.

THE HON^BLE SIR ASHLEY EDEN, k. c. s. i.

1877-82.

Previous Career — A Character Sketch— The Annual Administration
Reports — Events of political significance and the famine— Result of the
famine— Extension of the system of Provincial Finance — The Bengal

437003

n CONTENTS.

License Act— Reconstitution of the Secretariat — Separation of the Civil
Service into Executive and Judicial branches — Retirements of Civilians-
Lotteries — The Order of the Indian Empire — Railways— The Darjeeling
Steam Tramway — The Railways In 1881-82 — Relations between landlords
and tenants in Northern Bihar — Indigo cultivation in Bihar — Proposed
legislation to facilitate the realization of Rents — Rent Law Commission —
A Landlord and Tenant Bill— Cinchona Febrifuge— Agriculture and
Horticulture — Hospital management and Medical expenditure — Settle-
ment Legislation — Education — The Engineering College ar Sibpur—
Education of poorer classes— Jails — The Vernacular Press Acts
of 1878 — Excise : the outstill system — The Army Commission -r-
Changes in the Executive administration — Proposed Divisional Appellate
Courts — Labour Emigration — Withdrawal of troops from outstations—
Legislation: Presidency Magistrates* Act (IV df 1877) — Act I (B.C.) of
1880, the Calaitta Tramways Act— .\ct VI (B.C.) of 1880, the Bengal
Drainage Act— the Cess Act IX (B.C.) of 1880— Calcutta Municipal
Act — Sanitary condition of villages— The Nadia fever Commission-
Retirement of the Nawab Nazim of Bengal — The Orissa and other
Canals — Attack on the temple of Jagannath in Puri by fanatics —
The Census of 188 1— Public Works— New Bengal Secretariat, in Writers'
Buildings — Provincial Finance : results of decentralization — Local Self-
Government — Archaeology : Indian Marine : The Eden Hospital : The
Lieutenant-Governor's Residence at Darjeeling — The Eden Sanita-
rium at Darjeeling — Other measures — Town Hall meeting on Sir A.
Eden's retirement — Observations — Unveiling of Statue — Speech by Lord
Northbrook. ... ... ••• ... ... Page 688.

CHAPTER VIII.

SIR AUGUSTUS RIVERS THOMPSON, k.c.s.i., c.i.e.

1882-87.

Previous Career— Provincial Finance— Inland Labour Emigration, and
from Bihar to Burma— The Indian Education Commission of 1882—
The Ilbert Bill — The Subordinate Executive and Judicial Services —
Opium Commission of 1883— Orissa Canals— Admission of females to
the Calcutta Medical College— Jury System — English and Native journa-
lism ^Judicial training of Civilians— Calcutta International Exhibition,
1883-84— The Bengal Agricultural Department— Legislation : Tramways :
Kidderpore Docks— Local Self-Government— The Municipal Act of 1884
—The Bengal Tenancy Act, VIII of 1885— Muzaffarpur Experimental
Survey— Calcutta Sanitary Commission of 1884-8$— Defences of the River

GONTINTS. HI

and Port of Calcutta— Calcutta Municipal Legislation— Village Police —
Divisional Appellate Benches— Mr. H. A. Cockerell, c s. i. Officiating
Lieutenant-Governor— Floods— Orissa Storm- wave of 22nd Septem-
ber i88$— £thnol(>gical Inquiry — The £xcise Comoiission—Rail-
ways— Archaeology — Celebration of the] Queen Empress's Jubilee —
Miscellaneous— Conclusion— Observations. ... ... Page 760.

CHAPTER IX.

SIR STEUART COLVIN .BAYLEY, k.c.s.i., c.i.e.

1887—90.

Previous Career — Provincial Finance — Cyclone of 25th. May 1887 •
loss of two steamers — Frontier tribes of the Chittagong Hill Tracts —
Lushai expedition — Sikhim affairs : Tibetan aggression and repulse
— The Indian Public Service Commission— The Dacca Tornado of 7th.
April 1888 — Excise — The Excise system and tea-gardens — Condition of

• the lower classes— Emigration to Burma— Calcutta Municipal Act of
- 1888— The Inland Emigrants' Health Act, 1889— Subordmate Executive
-Service— District Boards — Surveys and Settlements— Railways — Honor-
ary Magistrates— Famine and Flood relief— Visit of His Royal Highness
Prince Albert Victor— Holidays — Comprehensive scheme of local

• taxation proposed — The Pott of Calcutta — Police reforms — Miscellane-
ous—Observations—Statue in Calcutta : its unveiling — Subsequent

^^SFCCi* ••• «•• ••• ••• ••• ^^XC ^3' *

CHAPTER X.

SIR CHARLES ALFRED ELLIOTT, k.c.s.i.

1890—95.

Previous Career - Surveys and Settlements— Survey-Settlement pro-
gramme for 1892-93 to 1896-97— The Cadastral Survey in North Bihar—
-—Sir A. P. MacDonnell's Minute on the Bihar Cadastral survey
—Employment of Patwaris-^The Maintenance of land records—
Chief tracts under Survey and Settlement— Apportionment and re-
covery of costs in North Bihar— Question of extending Survey and
Settlement to South Bihar— Visit of the Cesarewitch— The Census of 1891

CalcutU water-supply— Lushai affairs— Sikhim— Keonjhur— Pauperism

among Europeans and Eurasians— Enlistment of Eurasians in British

IV CONTENTS.

regiments — Ethnographic researches— Prosecution of the Banj^obasi —
Village Police— The Regular Police— The Criminal Courts— Excise —
Scarcity — Physical training — Welfare of students— The Civil Engineer-
ing College, Sibpur — Primary Education generally— and in Municipalities
—Spelling of vernacular names— Distinctive features of the Provincial
Contracts of 1887 and 1892— First Financial Statement in the Legislative
Council — Five years' Provincial Finance — Railways — Rural sanitation
and water supply — Drainage and water-supply Conference — The Sanitary
Drainage Act — Kidderpore Docks— Tours of Officers— The Bengal
Legislative Council enlarged— Trial by Jury— Inland Emigration— Sir
A. P. MacDonnell, Officiating Lieuteaant-Governor — Exchange Com-
pensation— Anti-kine-killing agitation in Bihar— The Court language in
Bihar— Hemp Drugs Commission — Employment of Natives in the Ser-
vice—The Bengal Municipal Act, 1894— Maintenance of order at fes-
tivals—Archaeology- -Orissa Canals— Labour Inquiry Commission —
District and Local Boards— Legislation— Miscellaneous — Remarks— Re-
tirement. ... ... ... ... ... Page 886.

CHAPTER XI.

SIR ALEXANDER MACKENZIE, k.c.s.i.

1895—98.

Previous Career — Tours of Officers— Settlement operations in Qrissa
and Bihar- Recovery of costs of Survey and Settlement in North
Bihar — South Lushai Hills — Sikhim — The Bengal Municipal Act of
1896 — The Local Self- Government Bill — Disarmament of Backer-
gunge— The Presidency General Hospital— Sanitation of Calcutta —
Speech to the Calcutta Corporation — Calcutta Municipal Bill — Precau-
tions against Plague — The Famine of 1896-97 — Importance of the winter
rice in Bengal — Comparison of the Famines of 1873-74 and 1896-97 —
Famine statistics — Canal projects in North Bihar — Reorganization of the
Education Department — Sir A. Croft, Director of Public Instruction —
The Kidderpore Docks — Provincial Contract of 1897— The Earthquake
of 1 2th June 1897 in Bengal— Celebration of the Jubilee, 22nd June
1897 — Sir C. C. Stevens, K. o. s. i., Officiating Lieutenant-Governor —
Calcutta riots- Suppression of rain gambling — The Chota Nagpur Com-
mutation Act — Partition Act— Amendment of the Bengal Tenancy
Act— The Chittagong Cyclone of 24th October 1897 — Miscellaneous —
Review ... ..% ... ... ... Page 971.

CONTBNTO. V

Appendix I. Belveuerk ... ... ... 1012

Appendix II. Lives of some of the le.vding Mahara-
jas, Nawabs &c. in bengal in the period
1854—98.

Raja Sir Radha Kanta Deb Bahadur, k.c.s.i. 1022

Babu Ram Gopal Ghose ... ... 1023

Babu Ramtanu Lahiri ... ... 1026

Babu Prasanna Kumar Tagore, c. s. i. ... 1027

Nawab Sir Khwaja Abdul Ghani Mia,
K.C.S.I. and Nawab Sir Khwaja Ahsanullah

Bahadur, K. c. t. £. ... 1028

Maharaja Adhiraj Bahadur Mahtab Chand

Rai of Burdwan ... ... 1030

Pandit Isvar Chandra Vid)'asagar, c. i. e. ... 1032

Maharshi Debendra Nath Tagore. ... 1035

The Hon'ble Justice Dwarka Nath Mitra... 1037

Babu Keshab Chandra Sen. ... ... 1039

Raja Digambar Mitra, c. s. i.... ... 1042

Babu Bhudeb Mukerji, c. i. e. ... 1044

Babu Haris Chandra Mukerji ... 1047

Maharaja Rama Nath Tagore, c. s. i. ... 1049

Babu Joy Kishen Mukerji and Raja Piari

Mohan Mukerji, c. s. i. ... ... 1050

Maharaja Sir Jotindra Mohan Tagore

Bahadur, k.c.s.i. ... ... 1052

Nawab Sir Saiyad Hassan AH Khan Baha-
dur of Murshidabad, o.c. i.e. ... 1054

Rai Kristo Das Pal Bahadur, c. i. e. ... 1055

Rsija Rajendra Lala Mitra, c. i. e. ... 1058

Nawab Abdul Latif Bahadur, c. i. e.' ... 1060

The Revd. Dr. K. M. Banerjee, ... 106 1

The Maharani Svarnamayi, c.i.E. ... 1062

Dr. Mahendra Lai Sircar, c.i.e., m.d.,d.l. 1065

Raja Kali Krishna Deb Bahadur. ... 1067

Maharaja Sir Lachmesvar Sing Bahadur of

Darbhanga, K. c. I. E. ... ... 106S

Michael Madhu Sudan Dutt. ... 1069

Rai Hara Chandra Ghose Bahadur. ... 107 1

Tl CONTENTS.

Babu Piari Chand Mitra. ... ... 1073

Babu Kisori Chand Mitra. ... ... 1075

Rai Bankim Chandra Chatter ji Bahadur,

B.A., B.L., C. I. E. ... ... 1077

Raja Satya Charan Ghosal Bahadur of

Bhukailas .., ... ... 1078

Raja Pratap Chandra Sing Bahadur ... 1079
The Revd. Lai Behari De. ... ... 1080

Raja Sir Sourindro Mohun Tagore, Kt.,
CLE. (Mus. Doc. Oxen) ... ... io8t

Appendix III. Lists of the Chief Justices and

Judges, the Members of the Board of
Revenue, and the Secretaries to the
Government OF Bengal'... ... 1084

Appendix IV. List of the Members of the Bengal

Legislative Council ... ... 1090

Appendix V. Glossary ... ... ... 1095

Appendix VI. Books and works referred to and

quoted ... ... ... 1098

INDEX

ILLUSTRATIONS TO VOLUME II.

THE RIGHT HONBLE SIR RICHARD TEMPLE,

Bart,, M.P., G.C.S.I., c.i.E., d.c.l., l.l.d., f.r.s. lo face Page 573

THE HON'BLE SIR ASHLEY EDEN, k. c. s. i. ... 688

THE SHRUBBERY, DARJEELING ... ... 744

SIR AUGUSTUS RIVERS THOMPSON, k. c. s. i.,

^•l.Jii. I.. ••• ... ... f\j\J

SIR STEUART COLVIN BAYLEY, k. r. s. i., c. i. k. 837

SIR CHARLES ALFRED ELLIOTT, k. c. s. i. ... 886

SIR ALEXANDER MACKENZIE, k. c. s. i. ... 971

BELVEDERE: NORTH VIEW ... ... 1012

: SOUTH VIEW ... ... loai

ERR A TA.

In Volume I.

Preface, Page iv, nineteenth \\ne,/or * beast,' read least.

Introduction, last PaLge^/or xviii, read xxviii.

Page 21, last line /or * canno,' read cannot.

„ 32, fifteenth line, /or ' mast,' read must.

»» 35> twelvth line, /or * thed ' read the.

„ 59, ninth line from bottom, y2?r * far' read for.

„ 64, first line, /or 1886 read 1856.

„ 66, last line, /or ^ might ' read might.

„ 130, eighth line, /or * Jalpaipuri ' read Jalpaiguri.

„ 213, ninth line, /or * or' read of.

„ 216, tenth line, /or * hat ' read that.

„ 224, last line, for ' rwith ' read with,

„ 238, seventh line, /or * njustice ' read injustice.

„ 246, paragraph 24, and elsewhere, y^r niz read nij.

„ 255, eleventh line from bottom, y2?r ' recommendation ' read re-
commendations.

„ 256, fourth line, parat ^i-^/or * ther' read their.
In Volume II.
P.ige 630, fifteenth line, read * of ' after Government.

„ 636, eighteenth Xva^/or ^enchanced' read enhanced.

„ 636, eighth line from the bottom, y5?r ' raiyats ' read riots.
647, sixteenth \\Xi€^/or * warter-supply ' read water-supply.
757, ninth line from bottom, y2?r * nothig' read nothing.
779, thirteenth line, for * joint ' recid Joint.

809, twelvth line,y^r ' Govsrnment' read Government.

810, nineteenth line,yi?r * bieng ' read being. I
821, last line,/ir/ a comma after * Cockerel I, ' and a full stop

after * c ' i

851, thirteenth line, for ' paralell ' read parallel.
869, eighteenth line, one ^ of should be omitted.
963, last line, last word, for * areas ' read acres.

I02I, third \\n^/or * aritcle' read article. j

1053, fourth line,yi?r * tittle' read title.
„ 1082, heading, y^r * Soundra ' read Sourindro.

I'hoio^ra'.iaT Sun-CTOlMndialhBcfS,CiJ™rt(i,Jajma.-

THE RIGHT HON. SIR RICHARD TEMPLE, BART. MP.
G.C S.I,C1.E..D.CL.L.LD.FR S.

CHAPTER VI.

The Right Hon'ble Sir RICHARD TEMPLE, Barl., m.p.g.c.s i.,

• \tmXm1S*»y Um\^»XJ»^ l^il^sU*} 1> iKaS*}

1874—77.

Ample materials would be available for a full account of Sir
R. Temple's distinguished career previous to his time in Bengal if
it were my intention to give complete lives of all the Lieutenant
Governors. The bare enumeration of his appointments is a
' record' list of services, which no other Civilian has equalled. One
or two brief allusions to his previous career must suffice. His first
important work was as Secretary to the Lawrences in the Panjab. It
was said of him that- he had ' made the Panjab ' by drawing the
attention of the public to that province by his well-known administra-
tion reports : and he was giventhe credit, even by an ill-natured critic,
of having conveiiled the Central Provinces from a Urra incognita
into one of the best-governed and most prosperous provinces
in India, ^nd a reviewer* of his book ' The Story of my Life *
wrote : ' He now in his retirement looks back with pardonable pride
On a career distinguished by success, justly attributable to zealj
loyalty, and capacity for using the heads and hands of other men,
a constant readiness to do good, and a singular absence of ill-
nature or vindictive passion." The autobiography just mentioned
renders it unnecessary for me to do more than mention the appoint-
ments held by him before 1873-74.

Richard Temple, of the Nash, Kempsey, near Worcester was
bom on the 8th March 1826; educated under Dr.

Previous cweer.

Arnold at Rugby, and at Haileybury ; arrived in
India 8th January 1847, &s writer on the Bengal establishment ; was
an Assistant to the Commissioner of Revenue, Delhi Division, 1847 >

*(MtMtUx RevUw, January 1807.
37

• ••

574 /BnOjUh' l^NO^KR THJE {.^BUTKNANt-

qoVernoks.

transferred to the Agra Division 1848; Assistant Magistrate-Collector
of Muttra ; in 1850 Assistant to the Commissioner of Revenue, Alla-
habad Division ; Magistrate and Collector of Allahabad: in 1851,
transferred to the Panjab as Assistant Commissioner in the Trans-
Sutlej Territory ; in 1853, Settlement Officer in the Lahore Division ;
and from July 1854 Secretary to the Chief Commissioner of the
Panjab : went on furlough in 1856, rejoining Sir J. Lawrence at Delhi,,
in 1858, when he resumed the Commissionership of Lahore. In
i860, he was Head Commissioner of Currency and Chief Assistant
to the Financial Members of Council, (Mr. James Wilson and Mr.
Samuel Laing) ; Member of the Bengal Indigo Commission and
of the Military Finance Commission, President of the Civil Finance
Commission, Member of the Commission for police organisation
in India, and deputed to Arracan, Pegu and Tenasserim to report
on the formation of a Chief Commissionership of Burma : he was
also deputed to Hyderabad and elsewhere on special financial
d^ty. In 1862 he was appointed Chief Commissioner of the
Central Provinces, (where he " initiated good Government,")
and was made a C. S. I in r866 : in 1867 Resident at
Hyderabad and K; C. S. I. : in 1868 Foreign Secretary to the
Gpve/nment of India : Financial Member of Council from April
•1868 to April 1874, and took pirt with Sir W. Mansfield in advocat-
ing a legal tender gold currency for India. In January 1874, he
was appointed by Lord Northbfook to superintend the relief opera-
tions in the famine-stricken districts of Bengal. He became Lieu-
tenant-Governor of Bengal on the 9th April 1874. I was his Private
Secretary throughout his time, except for 3 months in which
Surgeon-Major F. P. Staples officiated for me.

The famine so dominated Sir R. Temple's movements and
absorbed so much of his time during the first few

TheBengid- "

uuiftr Famine of months of his Lieuienant-Govemorship that an

1878-74. "^

account of it must necessarily take the first place
here. His connection with the famine relief operations has to some
extent been indicated in Sir George Campbell's narrative in the
preceding Chapter. As Financial Member of Council he had beeii
in charge (under the Viceroy) of the business relating to the famine
which came before the Government of India. On the 21st January
1874 he was, with the concurrence of Sir George Campbell,

SIR RlCttARb rKHPLE. ' '575

associated* by Lord Northbrook with the Government of Bengal
and deputed to visit the distressed districts, with full powers to direct
the relief operations under the rules laid down by the Governments
of India and Bengal, reporting his proceedings to the Lieutenant
Governor. Mr. G. Hart, of the Financial Department, and I were
deputed to accompany him. The physical labour which Sir Richard
Temple then endured, travelling, discussing, framing estimates,
writing Minutes, was enormous, and the position of delegate from
the Viceroy to the Local Government required much tact and
discretion. The knowledge of the country and the officers thus
acquired proved of the greatest use subsequently, so that, when he
succeeded to the sole command, as Lieutenant Governor, he had
little or nothing to learn in these respects.

On the 14th April, only a few days after assuming charge, he
went up to Bihar again for famine inspections and conferences, and
then for some months made his head quarters at the Karanchaura
house, Monghyr, an excellent situation as a base of operations, bemg
central, within easy reach of the worst localities, and removed from
the distraction of the routine work of Government. When the
rains commenced and the rivers had risen, Sir Richard moved about
constantly in the Rhoias wherever his presence was required for
famine work, or for other purposes, — such' as meeting Lord North-
brook at Dacca. (The Government of India did not move to Simla

.- 1 1

* NolificcUion. — *' The accoun to which the Lieutenant-Governor of Bengal
has commanicated to the Viceroy of the present condition of parts of Bihar,
make it, in His Excellency's opinion, essential that some high officer should
he present on the spot, with full power to direct and control the operations
in connection with the relief of. scarcity and distress under the general
instructions which have been issued hy the Government of India, and the
Laeutenant-Govemor of Bengal.

As it is impossible, under the existing circumstances that the Lieutenant-
Governor should himself proceed to Bihar, the Viceroy has agreed to
associate with His Honor, for the above purposes, the Hon'ble Sir Richard
Temple, who will first visit Bihar, and afterwards other parte of the country
where distress may exist, with full authority, to be delegated to him by the
Government of Bengal, jto direct the relief operations.

It has been arranged that the Lieutenant'Governor will give the necessary
orders to all officera concerned.

Sir Richard Temple will report his proceedings from time to time to tht
Gbvemment of Bengal'.'* ; . t..

576 BKNGAL UKDSR THE LIIUTKNANT-GOyERNORS.

1111874). He haa given his own account of these months on the
yacht.

" I went on board the Rhotas on the 15th of June on
the Granges within the limits of Bihar, lived in her for 3}
months, that is, till the beginning of October, and disembarked
from her with regret. She was a barge towed by a steamer
the Sir William Peely named after the Naval Commander who
did such good service in the war of the Mutinies; and she

belonged to a class of vessels called ''flats.'' Ty^t Rhotas

then a was barge with a large clear deck, at the end of which was a
dining saloon. Below deck she had a series of cabins for the
Lieutenant-Governor, his suite and guests. Steamer and barge
together made up a floating and movable Government House. As
the principal stations and towns are on the banks of the rivers, the
Lieutenant-Governor thus steamed at a quick rate from place to
place, 7 miles an hour against stream, and at a much quicker
rate with it. Indeed when the Brahmaputra was in flood and the
Rhotas was steaming full speed down stream, she would for several
hours cover the same distance as a railway train. But she must
always cast her anchor at sunset, and could hardly weigh it before
sunrise. Thus, arriving at a stafion the Lieutenant-Governor would
not only entertain, on board, the -European community of tne place,
but also hold a ceremonial reception (** darhar '') for t|ie Native
chiefs and gentry on the deck. Under several successive Lieutenant-
Governors on this very deck Proclamations ha\e bepn read to the
Natives, titles conferred, rewards declared, honors awarded."

Sir R. Temple's health suffered somewhat from the grea^
strain and exposure of the hot weather ' and rains, but was rapidly
restored by the climate of Darjeeling, where he wrote his final
famine Minutes in October. These were 3 in number. The prin-
cipal one was the general Report. The second was a record of the
services of officers arranged under special categories. . The third
acknowledged the services rendered by zamindars, landholders and
other native gentlemen, as well as by European non-official gentle-
men, indigo-planters, landholders and others. They were unusually
full and gave general satisfaction. Throughout the whole of the
year Mr. (now Sir) C. £. Bernard was the special Famine Secretary,
and on his leaving Bengal, in February 1875, after 4 years* service

SIR RICHARD TIMPLR. 577

iD^ the province, his ability, unwearying energy and fidelity were
specially acknowledged by the Government of Bengal. Some para-
graphs of the Report of the Famine Commission of 1878-80 com-
piled from the official records, (including Sir R. Temple's final
Minute), will, with some additions, present an adequate account of
the action of Government from the beginning to the end of the
operations. The condensed account of the famine above quoted
was supplemented by the Famine Commission by a more detailed
narrative. The following passages may be extracted from the
" Brief History".

Earliest Objective of the Local Government, — On the 22nd October,
the Lieutenant-Governor, Sir G. Campbell, sent his first letter of
warning to the Government, of India : in Bihar and North Bengal
the rains, late in coming, had been so heavy as to do great injury
to the hhadoi c^op, and they had stopped so prematurely that the
winter rice was almost all lost, and there was great fear that the
ground would be too dry to admit of the rahi being sown. In East
and Central Bengal the crops would be poor, but not extremely so :
in Orissa alone they were good. He asked that he might receive
authority, (i) to commence relief-works at once, (2), to make such
importations as are '' possible and not likely to be affected by pri-
vate enterprise," ani (3) that exportation of rice from India to
foreign countries might be stopped. With regarj to the manage-
ment of relief-works. Sir G. CampbeH's view was that — " to render
effectual aid to the people, it is of all things most necessary that
work should be offered in good time, so that the existence of public
works may be knoWn to the people at large, and those who stand
in need of work may find their way to the work and be suitably
provided fOr, before the greatest stress comes. All experience shows
that work is wanted to avert starvation rather than to save people
already half-starved and unfit for work, and that it takes time to
draw to public works people who are not accustomed to labour for
hire. In this view, iri'case of reasonable apprehension of scarcity,
we can hardly begin too soon. * * * • There can be no surer test
of the state of the country — no barometer, as it were, by which the
condition of the people can be belter gauged— than the degree to
which they seek employment on public works. As such works are
found more and more to attract classes usually self-supporting, so

.3.^8 BENGAL U1H9ER THE LIEUTBNANT-aOVERNORS.

we may judge that there is a want in the country ; that is, provided
that this test is established in sufficient time.

Principles of Relief prescribed by Supreme Government, -^Qn
the 7th November the Government of India published a Resolution
setting forth the principles on which it was proposed to administer
measures of relief to the distressed. The request for the pro-
ihibition of exportation was disallowed, but on the other 2 points
the desired authority was given, and certain large works were men-
tioned— thie Sone Canal, the Gandak embankment, and the Northern
Bengal State Railway — as suitable works for the employment, of
labour. ... .. ;

Grain was to be purchased only for the food of the labourers
•engaged on these works ; it was not meant to '' undertake the general
purchase and distribution of grain throughout large tracts of
country, or to regulate in any manner the prices of it in the
market. The justification of the principle adopted was thus stated.
Considerable bodies of men will be congregated, on 6c jnear
the works at a distance from their homes, and often in localities, re-
mote .from, the established markets. It will be necessary, therefore,
that sufficient supplies of food be collected ; for. their sustenance.
If the accumulation of such supplies be left to the ordinary course
of commerce, special pressure will be put on the grain-trade in certain
localities at the very time when all its resources are being taxed for
general supply of the province or district,. And if the wages were
•to be paid in cash to so large an aggregate of labourers, an extra-
ordinary rise of prices would be created by the action of Govern-
ment, thereby aggravating the crisis in districts already placed in
critical circumstances, and so far counteracting the benefit which
the works were intended to secure, namely, the mitigsction of the
effect of the scarcity.

Now in regard to those public works carried on under the
orders either of the Supreme Government or of the Local Govern-
ment, the State will be in the position of an employer of labour
on an unusually large scale, and is justified in doing that which all
other employers do, namely, selecting the mode of remunerating
its workpeople most acceptable to them and most suitable to the
surrounding circumstances. Such mode of remuneration will gener-
ally be payment in kind, that is, in food-(;rain. For this particular

&IR RICHARD TEMPLE" 579

purpose, then, sufficient supplies of grain will be purchased and laid
in both by the Government of India and by the Local Government
for the public works under their charge respectively. These supplies
will be obtained in such a manner as to interfere as little as .
possible with the trade in grain and with the supplies of food ordi*.
narily available for consumption in the neighbourhood of the works,,
or within the area of the distressed districts. ■

Advanees a.lso were to be given to landlords or tenants for
public improvement, and at sowing time for seed grain, and to non-
official gentlemen, zamindars, planters, traders, &c , who would
undertake the provision and distribution of grain in localities where,
from the difficulties of transport, the absence of traders or other
local circumstances, food cannot during the period of scarcity be
obtained by the people. • The railways were directed to lowe.r their
rate of freight on food grains by half, fixing it at i /8 of a pie
per maund (^li of a penny, or a little more than a farthing per ton)
per mile, compensation being paid them for the difference. Emigrai-
tipn was to be encouraged to the tea districts of A^sam and to British
Burn\a. Should the distress become severe, a Central Relief Com-
mittee would be formed in Calcutta and Local Relief Committees in
the districts, to be assisted by Government. The Committees should
organise a system of relief for those who may be threatened with
death or disease for want of food, by the distribution to them of
cash, grain, or cooked food, according to circumstances. Informa-.
tion should be published periodically and at short intervals regarding
t)ie state and prospects of the crops, the stock of food, the public
works in progress, the relief operations, and other circumstances
relating to the scarcity.

Earliest instructions as to Relief Measures: — On the 17th
November the Lieutenant-Governor issued a circular of instructions
to his officers. He defined the famine tract as consisting of —

(i) All 7 districts of the Patna Division.

(2) All districts of the Bhagalpur Division except the Sonthal
country.

(3) The districts of Dinajpur, Rangpur, and Bogra, and part
of Rajshahi, Malda and Murshidabad, in the Rajshahi
Division.

In this area it was anticipated that the total outturn of food

580 BENGAL UNDKR THE LIEUTSNANT-OOTERNORS

in the year would be only 3/8 of an average crop, unless copious
ram should fall at an early date ; in other parts of Central Bengal
the outturn was expected to be half the average. He then recapi-
tulated the main heads of relief measures laid down by the Govern-
ment of India; dividing them into 5 classes. The first contained
the principles about private trade and advances to assist importation.
The second >\'as relief-works. Besides the large schemes already
mentioned, relief works were to be commenced wherever required,
paying the ordinary wages of the country ; earthwork on roads was
mentioned as the most suitalDle kind of work. Third, with regard to
laying in supplies of grain to pay the labourers with on these works,
the rules laid down were — (i) that Government officers must, as far
as possible, operate through the trade ; (2) that they must get
grain from a distance; (3) that they must only store grain where
the local supply cannot be depended on to suffice for the wants of
the labourers. But these are to be paid in cash as long as food is
cheap : when prices come to something like famine rates (fall below,
say, 10 seers per rupee), then food should be supplied by Govern-
ment^. Every effort must be strained to get ready store-houses and
provide transport for this grain. Fourthly, if events become un-
favourable, it may be necessary to distribute charitable relief to
the old, to children, to persons in reduced health, and to others
who may be unable to do a full day*s work. To do this would be the
charge of the Relief Committees : Government would give a grant
equal to the amount they raised by private subscription and may
when distress goes very far be still more liberal. Fifthly, loans would
be given to municipalities and landlords with which to carry on

public improvements of works beneficial to villages ; and in the case
of petty village works which directly improve the water-supply, or
are of direct advantage * to the general public. Government would
pay one third of the cost. In conclusion, weekly reports were to
be submitted by each district and the heads of the reports were
prescribed.

TAe Period of Preparation. — During the month of December the

(1) This was afterwards relaxed to some extent at the instance of the
Government of India, especially as regards Barma '* cargo" rice, which
was found to contain mach husk and was allowed to be sold cheaper than
Bengal rice.

SIR RICHARD TKMPLI. 581

fears regarding the winter rice crop in Bengal and Bihar were
realised. The rahi crops however sprang up much better than had
been expected, and in the end of January and beginning of February
the lohg-wished-for rain fell in such abundance as to secure a good
harvesti and considerably to contract the area and the degree of
extreme distress. Inquiry was pushed on regarding the deficiency
of supplies and the anticipations of famine ; information was collected
as to the extent and population of the parts where it would
be intense; and estimates were framed of the number of people likely
to need relief and of the food-grain which would have to be placed
in the country in order to provide relief.

The great anxiety of the Government now was to throw as much
grain and as early aa possible into the famine tract, so as to be
beforehand with the distress when it should break out, to take
advantage of the favourable weather before fodder and water became
scarce ; and to be free to act with vigour in case the rabi crops
should fail and the prospects of famine become more grievous. The
slowness of the progress made in transporting the grain caused con-
siderable anxiety. Out ol iZi lakhs oi maunds (or about 70,000
tons) which it was proposed to place in the distressed tracts by the
end of January, on the 3rd January only about 6 had been despatched
by railway from Calcutta and the North- Western Provinces, and only
3 or 4 lakhs had started from the railway stations for the interior,
very little of which had arrived.

At last in the end of January, the time having come when it was
expected that distress would be actively and keenly felt. Sir R.
Temple was sent to Bihar (he being then designated as successor in
the Lieutenant-Governorship to Sir G. Campbell, whose health was
so seriously affected that he was compelled to retire) to take charge
of all relief organisations; his principal duty being to frame in
communication with the local officers careful estimates of the
number of persons in each district likely to come on relief, of the
quantity of grain required for their food, and of the best meaiis of
providing transport for it into the interior of the district. About the
same time a Central Relief Committee was appointed and a public
meeting held (4th February) ; instructions were issued for the
guidance of the local Relief Committees, and gratuitous relief was
started all over the famine tract. By this time the numbers on

582 BRNGAL UNDBR THE LTKUTBNANT-eOVBRNORd.

relief-works lUtd risen to 113,000; but hardly any gratuitous relief
ivas given before February.

Import and Transport Operations, — The early part of this middle
peripd witnessed an immense increase of activity in the importation
and .transport of food. During the whole of February Sir R, Temple
was on tour in the famine tract, and, after visiting each district, he
framed estimates, in communication with the local officers (though
not always in agreement with them, for his estimates generally
exceeded theirs) of the numbers likely to require relief in any form,
whether in payment of wages, in gratuitously given food, in the shape
of advances of grain to be repaid afterwards, or the sale of grain
necessary. From Sir G. Campbell's first tentative estimate of 70,000
tons, subsequently raised to 150,000, the amount required now
mounted up to 404,000 tons, or, including reserves, 480,000 tons. To
carry this quantity from up-country and from Calcutta to the railway
stations of Bihar and Bengal taxed severely, but did not surpass, the
resources of the Railway Company, but to transport it from the rail-
way. stations to the interior of the counrry, and especially to the north
of the Bihar and Bhagalpur Divisions, before the rains should set' in
in June and make the roads impassable, was a Herculean task, which
nothing but immense energy* and gigantic preparations could have
surmounted. Water routes were used wherever it was possible, but
the dryness of the season impeded navigation. Steam ferries were
established to cross the grain over to the north of the Ganges, and
steamers were bought or built in the country, and ordered from
England; altogether 41 steamers and about 7,000 country boats and
canoes were employed on the ferries and the water routes. A tempo-
rary railway, which was constructed to Darbhanga, at the rate of one
mile a day, and at a cost of /"s 30,000, (of which /"i 4 5,000, was
ultimately charged as the excess cost due to hurried execution on
account of the famine), was opened on April 17th, and it alone
carried 31,213 tons of grain, and 8,031 of fodder, before it hacf to
be taken up in consequence of the fioodsiin the second week of June.
But the chief reliance had to be placed on country carts, and it was
found necessary to abandon the system of hiring these direct from
the cartowners, and to give contracts, at enormously enhanced rates,
for the conveyance of large quantities. These contracts were mostly
taken by companies of indigo-planters. For fear of these arrange*

SIR RICHARD TEMPLE. : 583

ments breaking d6wn, a reserve transport train was organised at
Allahabad and sent down under the command of military officers^
and, in case an epidemic should break out among the cattle, a quan-
tity of camels, mules, and ponies were purchased from all parts of
Northern India. About 100,000 carts and 230,000 draught or pack
animals were at work' in March. Altogether the casualties of the
season amounted to 14,000 carts and 28,000 bullocks; a loss which
might have seriously crippled the operations, had it not been for the
Reserve Train, the whole of which was in effect brought into action
as soon as it was got together and! arrived on the scene. Altogether
34C,uoo tons were carried from the north bank of the Ganges to the
interior, by the middle of June.

Increase 0/ numbers in March. — Early in March there was a
sudden rush of vast numbers on to the relief-works in the Darbhanga
and Madhubani sub-divisions. About 400,000 persons came troop^
ing in from the villages around and settled down on certain lines of
relief roads. Almost all were in destitution, most- were in very poor
strength and co.n,dition, many were emaciated, and some were near
starvation The rush was so sudden that the local officers were
taken by surprise and for a time the crowds defied all discipline and
management. Sir G. Campbell recorded in his Minute of March
28th that up to that time there had been no such lack of food as had
been dreaded.. Active private import was going on^ and food, though
dear, had not reached extreme famine prices. The bazars were well
supplied with grain, principally pulses, rice being scarce and dear.
The time had not come for sales to the public, but he directed that
the stores should be opened for the relief labourers, and rice sold
them at 10 seers per rupee : it could not be sold cheaper (at 12 seers,
as had been proposed) without deranging a still active private trade.

Close of Sir G. CamphelVs tenure of Office.-^On the 8th April,
Sir G. Campbell made over the office of Lieutenant Governor to
Sir R. Temple. In the last letter written during his tenure of
that post, dated April 6th, the following description of the pros-
pects of the season is given. '* The present season so far promises
very well. There has been a beneficial fall of rain in Northern
Bengal, and if the ensuing months are showery the Lieutenant-
Governor would hope that, after the provision which has been made
for supplying the distressed districts and maintaining a reserve, the

584 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

condition of the people in the greater part of Bengal Proper may
not be greatly changed for the worse.

*' In the parts of Bihar where the rabi harvest hs^s for some weeks
given employment to the people, we must expect a large accession
to the numbers for whom employment and relief provision must be
made between the end of the rd^i' harvest and the rains. But if the
unusual drought is followed by early rains, as is frequently the case
that period will not be very Ipng ; and when good rains commence,
we may expect that, in all districts not reduced in an extreme degree,
the people will of their own accord betake themselves to agricultural
pursuits."

April esiimafe of the requirements of relief, — In April, sufficient
knowledge having been gained regarding the state of the country,
Sir R. Temple framed the following estimate of the area of suffering
and the amount of relief required : —

■

Area in
square
miles.

Population.

Number
expected
to require

relief at
the worst

season.

Per-cent.

Quantity
(in tons)
of grain
allotted.

Very distressed
tract ...

Partly distressed
tract

29,950

10,700,000
7,064,650

2,805,080
918,484

26'2

11-5

330,000
74,000

Total ...

40,169

17,764,650

3,723,564

209

404,000

This quantity was exclusive of the reserve which the Government
of India desired to maintain at Calcutta, to meet possible contin-
gencies : the total quantity including the reserve was 480,000 tons.
The very distressed tract contained a large portion of the Districts
of Saran, Champaran, Tirhut, Bhagalpur, Pumea, Dinajpur, Rangpur
and Bogra : the partly distressed tract contained portions of Shaha-
bad, Gaya, Monghyr, Sonthalia, Malda, Rajshahi, Pabna, Murshida-
bad, Jalpaiguri, Bardwan, Birbhum, Bankura and Manbhum.

Condition of the country in April, — The following passage shows
Sir R. Temple's view of the condition and prospects of the country
in the middle of April, shortly after he assumed the reins of govern-

SIR RICHARD TMHPLfi. 585

ment " There yras, on the whole, every reason to fear that the larger
portion of the people in the worst tracts would be forced to look to
the State for assistance, more or less until August. The official
investigation had penetrated to every village. It was proved that
the class of destitute poor and beggars, ordinarily supported by
private charity, could no longer be sustained by these means, the
donors of such alms being themselves in straits. It was found that
the non-agricultural classes — ^weavers, workers in metal of all kinds,
carpenters, artizans of all sorts, fishermen, menials and others-
had nothing to eat, and|were wholly out of work ; that the extensive
class next above these, namely, the field labourers, and the small
cultivators who occupy some land and eke out their livelihood by
working on the land of others, had eaten up their little stores and
were bereft of employment. It was further apparent that destitution
was gradually creeping over other classes, such as the cultivators
generally (with the exception only of the occupancy tenure-holders)
and such as the Brahmans, whose habits and notions unfitted them
for active work. Although the distress had been successively checked
in most places, the cases of starvation being very rare, yet in some
places distress was discovered to have reach^ a critically dangerous
degree, relief arriving only just in time to restore the emaciated,
to resusciate the fainting^ and to avert considerable mortality."

It was then decided that all gratuitous relijef should be given, and
all relief wages paid, in grain, and that sales to the public might
be much more generally authorised.

Close of famine. — In Bihar the rains began early in June and
fell in a very favourable manner, and the numbers on relief-works,
which had reached their climax in the first half of June, fell rapidly
in June and July as the people dispersed to agriculture. An un-
usually large area was sown with the early crops, millets, &c., which
ripen in August and yield the speediest return. The number on
charitable relief, however, went on increasing, '^ because distress is
extending over those of the lowest classes who cannot work, and
upwards among those ordinarily above work, and because the whole
class of professional beggars is thrown on the hands of Govern-
ment." The men labouring on relief-works had also supported
infirm dependents with their surplus wages, and when they dispersed
to agriculture they left these people to be supported by Government,

666 BKNOAL UNDSR THE LIBD^BNAM-GOVKRNORS.

In August the numbers of these classes also began to diminish,
and in September relief was almost at an end. In Lower Bengal,
however, the case was slightly different, for there a second failure
•f rain was threatened, none having fallen in August. But the
destruction of the winter rice was averted by a timely downpour
after the first week of September. During this time of suspense
the numbers on relief mounted up rapidly, but they declined again
when the rain fell and relief was administered with somewhat greater
stringency. By the end of October, the special establishments and
the large organisation collected together for the relief measures,
were broken up ; all but the accountants and auditors who were still
busy in settling and posting the accounts.

Calculations as to numbers relieved at different times. — The
number of persons who were receiving assistance from Government
on the 15th June were thus calculated : —

'' In order to make the estimate we have the following data to
form a basis: —

Total number of relief labourers ... 1770,732

Total number pf persons on charitable

relief ... ... ... 401,959

Total grain expenditure, in maunds, of first

half of June ... ... ... , 843,000

Thus we have 2,172,691 persons receiving relief, quite irrespective
of those who are living on advances or purchases of Government
grain. The amount of Government grain disposed of during the
fortnight would give three-fourths of a seer a day to 3,401900
persons for a fort-night. But among the people who consumed
Government grain were all the persons on charitable relief, and a
large portion of the labourers. The district narratives 3how that,
by the end of the first fortnight of June, the practice of paying all
labourers in grain, though largely introduced, had hot been fully
carried out. The Bhagalpur return is the one which best distinguishes
between sales to the public and those to labourers; and that
shows 98,228 maunds sold to the public, as against 25,628 maunds
sold to the labourers. All the district narratives show that the. non-
labouring public are the chief customers at our granaries.

" It would therefore be probably within the truth to take one-half

Sm RICHARD TRMPLK. 587

of the persons supt>orted by Government grain as being outside
the relief labour and charitable relief lists. By this reckoning, the
total numbers receiving assistance in one shape or other would be —

Labourers and paupers as above ... 2 , 1 7 2 ,60 r

One-half the consumers of- Government
grain ... ... ... 1,700,950

Total ... 3,873,641
" The best estimate that we can now frame shows that the number
at the worst period was 3,900,000 persons receiving assistance of
some sort.

" As stated at the time, this statement, though very large, may
have been slightly under the truth, certainly not above it. It appar-
ently agrees, as nearly as could be expected, with the estimated
numbers given at the beginning of April. The general percentage
of this number on the population affected was seen to be 26
per cent in the most distressed districts and ii^ in those
less distressed. The ratio of course varied considerably, being in
many places less than that above stated, but in the worst tracts of
North Bihar it stood as high as from 50 to 70 per cent.

" But there wins a further mode whereby assistance was rendered
by Government which could hardly be included in any particular
statement presented at that ^time, namely, the cash advances made
by Government to individuals, European planters, native traders,
and others for the importation of grain ; and to landholders and
zamindars for agricultural improvement. These advances of cash
went on month by month, till they reached the sum of 46 lakHs of
iiipees, or close upon half* a million pounds sterling. How many
persons virtually derived their subsistence from this source it is
impossible to say. But the sum was enough for feeding 500,000
persons for 7 months, and that number ought at least to be
added to the 3,900,000 given in the above statement. On the whole,
then, nearly four and a half millions of souls must have been
receiving assistance directly or indirectly from the State at the worst
period. Under this view of the case, it must be admitted that the
actual distress did exceed the estimate. But, in reference to the
uncertainties of the case, the difference between the estimate and
the probable actual is not great."

588 BENGAL UNDJfiR THB LIEUTfiNANT-GOV£RNOBS.

A similar estimate was made for the numbers on relief on the
15th August —

Labourers on relief-works ... ... 426,738

Persons in receipt of charitable relief ... 647,550

Persons living on purchases of Government grain,
being the number of people that would be
supported for one month by the grain sold
between the 15th July and 15th August, at the
rate of | of a seer per day per head ... 1,282,464

Persons living on advances of Government grain,
being the number of people that would be
supported for one month by the grain advanced
between the 15th July and 15th August ... 1,697,936

Add for persons still deriving support from ad-
vances of money made to zamindars and other
residents ... ... ... 200,000

Total ... 4,249,688

At the end of October about 150,000 were in receipt of Govern-
ment assisance, and these were principally in the Burdwan Division.

*' The only district north of the Ganges which' ^ows any appre-
ciable number of such persons is Saran. This most fortunate
decline has occurred from the middle of September onwards at a
quicker rate than was anticipated when the estimates of distress were
first formed. Those estimates provided for 520,000 persons needing
assistance during October, and 316,000 in November. Experience
on former occasions showed that considerable distress occurred in
the autumn. It seemed proper to assume that the same thing would
happen on this occasion. In many of the worst districts the autumn
crops were known to be small in ordinary years. It was therefore
feared that such tracts would not receive a new supply in sufficient
quantity till December. As it has happened, however, the distress
at this season has proved very slight in most districts, and has so far
most agreeably disappointed expectation. The cause is to be found
partly in the administration of relief which had been going on
during the previous months, which maintained the people in fair
condition during the crisis, and so facilitated their discharge towards
the end, but chiefly in the abundant produce of the early autumn

81B RICHABD UMPLE.

589

crops, which, as already described, had been sown over so much
larger an area than in ordinary years."

The cost incurred in the famine relief operations was computed
by the Famine Commission of 1878-80 as follows.

Siaiisiical Summary of Expenditure and Relief, — The following
statement shows the cost of the famine according to the figures
drawn up by Sir R. Temple on the 31st October 1874, and a
columns have been added to compare therewith the estimates which
were made at 2 intermediate periods. It is instructive to observe
how the expenditure increased as the principles of relief relaxed
and the measures adopted grew in liberality and breadth. The
figures in the column for actuals are taken from the Budget State-
ment of 1875-76, except those for advances recovered. The
Budget Statement takes no notice of advances on either side of the
account, but notes that about half a million further was expended
out of Provincial or Local Funds.

EXPINDITURK.

Batimate

Sir R.

ActualB

iTsais.

of 4th

of 18th

Temple'8

(M far as

Miirch.

Rs.

April.

figures.

known.)

Special establish-

Rs.

. Rs.

ments •••

5,00,000

13,50^000

12,00,000

25,00,000

Promotion of pri-

vate grain trade

1 5,oo,ocx>

34,00,000

45,30,000

45,60,000

Relief-works ...

1,00,00,000

2,53,00,000

1,28,00,000

1,10,80,000

Relief-works ex-

cluded from

local or private

funds

•••

«.•

•••

65,60^000

Grants in aid of

private works...

5,00,000

5,oo,ocx>

1,00,000

•*•

Darbhanga State

•

Railway

...

20,00,000

10,00,000

14,50,000

Government grain

purchase

3,00,00,000

3,78,40,000

4,40,00,000

4,47,06,000

Government grain

transport

1,44,50,000

1,75,00,000

1,76,00,000

1,76,28,000

Government re-

serve transport

train

•«•

18,60,000

31,40,000

31,50,000

Charitable relief

10,00,000

20,00,000

28,00,000

31,71,000

Advances to za-

mindars^ tra-

ders, &c.

50,00,000

46,00,000

31,71,000

Unforeseen

1 5,00,000

•••

• *•

...

Total expenditure

6,44,50,000

9,67,50,000

9,17,70,000

9,94,05,000

590 bingal undkr the libutinant-govkrnors.

Receipts.

Bstimate

Xfltimate

Sir R.

Actuals

Itbms.

of 4th

of 18th

Temple's

(as far as

Marah.

April.

figures.

lUlOWD.)

Sales of grain to

labourers and

the public

1,83,30,000

95,00,000

Sales of grain to

Relief Commit-

tees

) i,5o,oo,ooo(|

15,00,000

27,00,000

2,62,40^000

Sales of reserve

c ,

grain in Calcutta

7,00,000

Sales of surplus

^ 37,8o,oDO

grain in the in-

•

t 30|00,ooo;

terior

/ v

Recoveries of cash

advances to tra-

ders, samimiarsy

&c.

• ••

45,00,000

46,00,000

31,00,000

Recoveries o f

•

price of grain

advanced t o

raiyais

..•

71,40,000

62,50^000

• ..

Miscellaneous ...

...

• .•

5,00,000

...

Increased Rail-

'way profits ...

. «•

....

63,23,000

401,00,000

Total receipts •••

1,50,00,000

; 3»52»5o*<»o

3i35.73iOOo

3,33,40^000

Net expenditure

5,00,00,000

5,15,00,000

5,82,00,000

6,61,00,000

At this cost 735,000 labourers were employed for 9 months :
452,000 were gratuitously fed for 6 months; 118,000 tons were
sold during a period of 7 months (April to October) ; and assum-
ing that each person bought i^ lbs. a day or 315 lbs. during
the 7 months, this quantity would supply 870,000 persons with
food. If, again, a quarter of the labourers on relief-works were pur-
chasers, there were about 700,000 of the public who benefited
by the sale of Government grain at } of the cost price. The
number who received advances of grain has been estimated at
about 400,000 cultivators, or, including their families, 3,000,000
souls ; and the number who benefited by the advances of cash to
zamindarst tradersi &c., was roughly estimated at 500,000. The
following, therefore, is the number who in one form or another
received relief : —

8m RICHARD T£MPLK. 591

Number Period

By relief-works 73 5,ooo 9 months.

„ gratuitous relief 452,060 6 ,,

„ sales of grain 700,000 7 .,

,, advances of grain . . . 2,000,000

„ „ cash 500,000 7 „

ToUl 4,387,000

or about 35 per cent, of the population of the famine tract, as esti-
mated.

The Government of India reviewed the Famine reports in a Reso-
lution dated the i8th. February 1875 ^^^^ recorded their conclusions
for the guidance of future famine administrators from the experience
gained in 1874. It is hardly worthwhile to state their conclusions
as, so far as they have .been superseded, they would be of compara-
tively little interest, whereas those which have survived have been
incorporated in the Famine Codes. But a few paragraphs may be
quoted as containing statements of importance and of permanent
value.

4. On November the 7th. 1873, ^he Secretary of State was informed
that "Her Majesty's Governmsnt might rely upon the Government of
India using every available means, at whatever cost, to prevent, as far as
they could, any loss of the lives of Her Majesty's subjects in consequence
of the calamity which threatened Bengal." The result has shown that
the resources of the country and the energy of those who were entrusted
with the conduct of the relief operations have been sufficient, by the
blessing of God, to secure success.

5. The measures that have been taken have not only prevented the
extensive mortality which must otherwise have occurred, but the general
productive power of the country has not been allowed to deteriorate,
and there is no reason to believe that any demoralization has followed
from the relief operations. The strongest assurances of the gratitude of
the people have been received, and it may confidently be expected that
the assistance which has been given by the State during a time of
calamity will be long remembered and appreciated, not only on the scene
of the distress, but throughout the whole of Her Majesty's Indian
Empire.

6. The cost of the relief operations cannot as yet be accurately
stated ; but it may safely be assumed that the total net cost will not

592 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

exceed the sum of ;^6,5oo,ooo, which was the estimate given in the
Budget for the current year.

1 8. It will be seen from Sir Richard Temple's Minute that a balance
of about 100,000 tons of rice remained after the relief operations had
been concluded. To this extent the measures taken have been in excess
of the requirements of the case. The responsibility for this excess rests
entirely with the Government of India. Having to deal with so vast a
population, whose support depended upon many uncertain contingencies,
it would have been imprudent not to have been prepared to meet larger
demands than those which were actually made upon the Government. If
a substantial reserve had not been provided, the success of the relief
operations would properly have been attributed rather to good fortune
than to foresight.

The experience of last year shows the necessity of such a reserve. In
the beginning of September 1874 very great apprehensions were felt that
the scarcity would be prolonged. This was only averted by a fall of rain
at the very last moment when it could have been of use to allow the
winter crops to be sown ; and, if the rain had not then fallen, the rice in
reserve would have been urgently required. It must not be forgotten that
on previous occasions it has occurred that a second year of drought has
followed the first.

19. The food-supplies of India, including British Burma, proved amply
sufficient to meet the demand occasioned by the failure of the rice crop.
Out of the total quantity of grain purchased by the Government, which
amounted to 479,696 tons, only 54,300 tons were obtained from beyond
British India. The rice exported from British Burma in the year 1874
amounted to about 815,000 tons. Of this quantity about 290,000 tDns
were sent tp Bengal, and about 470,000 tons to Europe, — the exports to
Europe have been only 33,000 tons less than in the previous year. The
import of food-grains by railway from the North-Western Provinces and
the Panjab is calculated by Lieutenant- Colonel Taylor to have amounted
to 289,000 tons. This large export from Upper India did not greatly
affect prices in the producing districts. The total quantity of food-grain
carried into the distressed districts can hardly have been mich less than
1,000^000 tons. *♦*♦♦♦

30. The Government of. India desire, in conclusion, to convey to Sir
Richard Temple their recognition of the distinguished services which he
has rendered to the people of Bengal and Bihar during the time of
difficulty through which the Province has passed. As a Member of the
Council of the Governor-General, Sir Richard Temple was from the first
intimately associated with the policy adopted by the Government of India

SIR RICHARD TKMPLK. 993

in respect to the scarcity. He took a prominent part in carrying that
policy into effect under Sir George Campbeirs administration : and, since
he assumed the office of Lieutenant-Governor of Bengal in April last, he
has unremittinPy devoted himself to the personal direction and superin-
tendence of the relief operations, which owe their complete success
mainly to his exertions.

The ' Times ' summing up the famine operations, wrote : '* The
Lieutenant-Governor of Bengal may take all credit to himself for
hard work, faithfully done, and so may district and famine officers,
while to Lord Northbrook will belong the high honour of com-
manding in one of the purest and noblest campaigns ever fought in
India."

The Famine Commission of 1878-80 recorded the fact that
'' there was absolutely no mortality from starvation:" " at the outside
not more than 22 deaths could be said to have even been accelerated
by hunger. Another point which may be noticed with satisfaction
is that there seems to have been no permanent evil effect left on the
minds and habits of the people.'' At the same time they did not
conceal their opinion that the means employed were disproportioned
to the end : in other words, that the forecast of the famine was
erroneous, its extent and degree overrated : and that the new
principles adopted in giving relief were mistaken.

Some years after, in 1882, Sir R. Temple wrote a brief account of
this famine ('' Men and Events of my Time in India,'' pages 399-
408) which sums up its whole history : —

** On entering the Northern part of Bihar at the end of January
1874, 1 was struck by the difficulties affecting the transport of grain
in large quantities during the dry season, which had already begun
and would become drier still as the' months rolled on. The traffic
of the country was ordinarily carried by boats on the many navigable
streams which flow from the Himalayas to join the Ganges ; but
these streams were now almost devoid of water. Wheeled carriage
for commercial purposes did^ not exist in any considerable quantity,
and thus trade was for a time paralyzed. The only persons, possess-
ing carts and draught bullocks in large numbers, were the European
indigo planters who used these vehicles for their manufacturing work.
Their business was so slack, partly by reason of the famine, that they
could spare their carts, which were accordingly hired by tens of

594 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

thousands, and the transport of the Government grain was so far
secured. The organization of this enormoua amount of hired trans-
port was placed under Colonel (now Sir Charles) Macgregor of the
Quartermaster-Gene ral's department, a public servant of high capa-
city and unsurpassed energy^ with a large staff of military officers.
But, as the security of the transport was vital, it ^as decided to con-
struct a temporary railway from the Ganges to one of the points
where distress threatened most. This work was. under the vigorous
supervision of Captain Stanton of the Engineers, constructed at the
rate of a mile* a day. Further, a special transport train, consisting
of carts, bullocks, mules and ponies, was obtained from northern
India, and organized by Mr. Harry Rivett Carnac, of the Civil Service
with much promptitude and ability. Thus the several hundred
thousand tons of Government grain were, despite the burning
heat and the dust- laden tracks, conveyed to the remote villages
with absolute punctuality and without failure even in a single
instance.

At this time special correspondents deputed by some of the
London newspapers had begun to arrive upon the scene. First and
foremost among these was Mr. Archibald Forbes, on the part of the
Daily News, who spared no effort of mind or body to probe the
reality of the distress and to understand the measures adopted for
its relief. He pourtrayed with graphic force and* absolute fidelity,
for the information of the English public, the mortal peril to which
the people were exposed, and from which they could be rescued only
by the utmost exertions of the Government. He discharged his
professional duties with signal success, and also rendered much ser-
vice to the general administration.

The transport for the Government grain having been secured, my
object was to observe personally the physical condition of the people.
For this purpose the able-bodied employed on relief works, and the
infirm receiving gratuitous relief, were mustered at convenient spots
for inspection. Thus tens and hundred^ of thousands of poor people
. at different times and places, passed under observation, whereby a
check was imposed on idleness or imposture. Often too, when

* Thia railway, from Champta ghat to Darbhanga, was commenced on the
23rd Febrnary, and the first train ran through on the 17th April : 53 miles
OQnstniote4 in 53 days.

SIR RICHARD TIMPLK. 595

inarching through a village we would assemble all the men, women
and children in it, so as to note any signs of emaciation or of dis-
tress. In short, no pains were intermitted to ascertain from personal
observation 111 particulars regarding the physical condition of the
people.

A system then was organized whereby, as the famine became
worse, a visitation should be periodically, instituted from house to
house in every village, so that no case of individual distress could
possibly escape observation. The >¥hole country having been parcell-
ed out into groups of villages, a relief centre and field-hospital were
established in each group.

I had been in constant communication with the Lieutenant-
Governor, Sir George Campbell, in conjunction with whom I was
working in Bihar, but I was now obliged to proceed on similar duty to
northern Bengal. As the famine in Bihar was coming on apace,
Campbell himself proceeded thither after my departure, despite his
failing health, and supervised the details of the relief operations.*

Having studied on the spot the condition of all the distressed
districts, I transmitted to Campbell an estimate of the financial cost
of the proposed relief operations on the assumption that the rains
would fall propitiously in the coming season, also of the reserve
stocks of grain to be provided in event of the rains again failing.
He forwarded this to Lord Northbrook, who after a time required us
both to revise it by the latest information.

In April Sir George Campbell proceeded to England, and I
received charge of the Government of Bengal. The first step was
for me to submit to Lord Northbrook my final estimate of the cost
of the relief operations, before I quitted my head-quarters and pro-
ceeded to the field to personally superintend all the work. This
estimate amounted in round numbers to 9 millions sterling in the
gross, but then there were to be large recoveries consisting chiefly
of the proceeds from the sale of Government grain to the people
in the distressed districts, so that the net cost would be only 6^
millions. Even this amount was seriously large and I was thankful
for the opportunity thus afforded of obtaining sanction for the esti-
mate from the highest authority. I knew that, even if under Pro-
vidence these great operations should be blessed with success and
should fulfil the hums^ne purpose for which they were designed.

596 BENGAL UNDER THE LIBTrTENANT-OOYERNORS.

critics would cavil at the cost and perhaps demand inquiry. In that
case it would be a source of satisfaction to know that the expense
had been thoroughly considered beforehand in each and all of its
bearings. Afterwards, when this affair had ended with a success exceed-
ing our most sanguine hopes, and exception was taken to the outlay,
we congratulated ourselves on having followed the financial maxim
of undertaking nothing without an estimate beforehand. In fact we
managed to keep the ultimate expenditure just within the estimate.

The month of May had now set in, and the famine bad thorough-
ly declared itself. Employment, agricultural and other, was at a
standstill, and there were no wages for the poor to earn. No sup-
plies of grain were brought out and the corn markets were all closed.
The Government, before opening its stores, waited to the latest safe
day, in order to afford every possible chance to the trade. Its
officers were however obliged to sell their grain in vast quantities,
the prices being fixed at what were •regarded as famine rates. Still
starvation stared the people in the face, unless the Government
should give them employment and pay their wages in grain. Accord-
ingly many hundred thousand persons were thus employed and paid ;
their employment consisting chiefly of road making. Those who
could not work were fed gratuitously, and search was made in every
village, house to house, for the infirm and helpless, so that no deser\'-
ing person should fail tQ receive succour. The strain in this contest
for life or death became more and more intense as week after week
rolled wearily on — ^as in certain battles it has been said that the struggle
is even, and it remains to be seen which side has the stiffest back — till
the middle of June, when the rain fell with a propitiousness beyond
our hopes. A change for the better was felt at once, and tens of
thousands of relief labourers went off to their fields. Still the famine
must continue for some weeks till the new grain should begin to
come in, and the majority of the poor people thus remained on our
hands. Soon, too, the authorities found that those who had gone to
till the fields had not the means of sustaining themselves when there,
until the new harvest should begin to come in. So it was necessary
to make large advances of grain to them on their engagement to
pay for it after the next harvest. The value of the grain thus ad-
vanced was duly recovered after the termination of the famine
when plenty had returned.

SIR UCHARD mCFLS. 597

The rains, having begun well, became suspended for a time,
and the worst fears for the future were resuscitated. At the eleventh
hour they again descended favourably, before any irreparable harm
had been done by their temporar}- suspension, and hereafter conti-
nued propitiously till in the autumn a good harvest was reaped.
Thus week after week the poor people who had been for several
months on the hands of the Government were discharged, till by
the middle of October few of them were left.

The recipients of charitable relief from Government had been
chiefly persons who in ordinary times subsist on the private
charity of the village folk. The charity, which is thus dispensed
in years of average prosperity, redounds to the honour of the Native
community. But it is unavoidably suspended during famine, and
the many thousands who depend on it must perish unless sustained
by Government. These poor people had accordingly been thrown
on the hands of the relief offices for several months. But now
with returning plenty after the autumn harvest they were sent back
in some hundred thousands to their villages, where they began once
more to receive charitable support as formerly.

The greater part of the grain procured by Government was
used, but a considerable portion remained unused. This was the
reserve which had been provided in event of the rains failing for
the second time, a failure which, though at one time apparently
imminent, had been mercifully averted. The reserve grain then
had to be sold, and as by that time the new harvest was coming
in abundantly, the sale proceeds proved to be but a small recovery
as against the cost which had been incurred.

Some angry criticism soon arose upon the fact of this grain thus
having to be sold, as proving that, from some faults in the original
calculations, there had been an excess provision. It was imme-
diately shewn that there had been no error whatever, but that as a
matter of deliberate policy a reserve had been proyided. This
reserve, indeed, was not wanted owing to the happy course which
events had taken. But if any objections were urged against the
policy of adopting this essential precaution, in a case where the
lives of millions of people where at stake, they were hardly
deserving of refutation.

The people, in the mass, behaved well throughout these critical

598 BENGAL UNDER THB LIEUTENANT-GOYKRNORS.

trials. They proved themselves to be neither demoralised nor
pauperized by the receipt of relief. Their zeal and anxiety never
slackened for restoring the cultivation and making the most of even
momentary opportunities which might offer. Patient courage,
unflinching endurance, self-help in exremity, were the honourable
characteristics of their general conduct.

In most of these arduous operations for the relief of famine the
chief executive officer was Mr. (now Sir Steuart) Bayley, the Com-
missioner of Bihar, who admirably discharged his difficult duties,
and next after him in honour and responsibility was Mr. C. T.
Metcalfe. The Secretary to the Government 6i ■ Bengal in the
Famine Department was Mr. C. E. Bernard (a nephew of John
Lawrence) ; and from him I derived most valuable assistance. The
local officers on whom the brunt of the work fell most heavily were
Mr. A. P. MacDonnell and Mr. C. F. Magrath. All the officers
mentioned above were members gf the Covenanted Civil Service.

Many European officers of the Army were employed in this work
with the utmost advantage. Native officers also were selected and
placed at our disposal by the Commander-in-Chief, Lord Napier of
Magdala, in order that they might render aid in the administration
of relief. Their military discipline and training rendered them
extraordinarily apt in this work. After the conclusion of the opera-
tions, their good conduct was acknowledged publicly.

It became my pleasant duty to prepare a long list of the' names
of those non* official gentlemen, European and Native, landlords or
residents of the distressed districts, who by charitable munificence
or unrewarded labours had contributed essentially to the relief of
distress.

Conspicuous service was rendered by tbe servants of the East
India Railway Company ; indeed without that railway the Govern-
ment grain could hardly have been conveyed to its destination in
time ; a more signal instance could scarcely be afforded of the value
of Railways to India.

Thus the famine of 1874 was over; the deaths from starvation
were so few compared to th^ many millions concerned that practi-
cally there had been no loss of life. The health of the people had
been sustained, agriculture was unimpaired, the sources of the
country remained uninjured, even the revenues w^re nearly all

SIR RICHARD TEMPLE. 599

realized. But there had been a large expenditure, which however
had been exactly foreseen, and to which the Government had made
up its mind beforehand.

But when the immunity from loss of life is chronicled it mustbe
thankfully remembered that there was no epidemic of cholera,
small-pox, fever, or the like. Indeed throughout this trying time the
public health was remarkably good. This is very unlike the experi-
ence of other famines, when these fell diseases have come to aggra-
vate the misery arising from want. Such freedom from collateral
or concomitant calamity cannot be wholly explained by any known
circumstances. <Dne fortunate cause however was this, that in Bihar
the streams rising in the lower ranges of the Himalayas, while no
longer navigable, had yet a good supply of drinking water. The
fact, that in time of drought the water supply often becomes impure
is one reason why cholera prevails usually during famine.

Despite success which, owing to the mercy of Providence, had
been unique in the history of Indian famines, and exceeded any
hopes we ever dared to entertain, there emanated from some quarters
an unaccountably bitter criticism, directed chiefly against the expense.
By an irony of fate it-was actually argued that the danger of famine
could not have been extremely urgent because it had been success-
fully overcome. This argument was hardly worth considering in the
face of the patent, indeed the notorious, facts of the time as known
to a host of witnesses. It were bootless perhaps to divine the
reasons of that hostility ; the criticism possibly arose from the dis-
appointment felt by some traders who thought that if the Govern-
ment had not interposed so effectually some further opportunities
might have presented themselves to trade. In fact, however, the
Government had offered every chance to trade, and had interfered
only when, under the peculiar circumstances of the threatened or
distressed country, the commercial resources were demonstrably
insufficient or wholly impotent. It was observable also that, during
this time, trade had been extraordinarily active in all the districts
which it could reach, and where, but for it, there would have been
scarcity. It was indeed most unfortunate that the drought visited in
its worst form the densely peopled tracts which were far away from
the nearest railway. These tracts depended for their communication
upon the very water carriage which from the nature of the Qase ws^s

600 BENGAL UNDVR THE LIEUTENANT-GOVERNORS.

cut off on this dire occasion. Thus it happened that the trade
became powerless and Government was obliged to supply the need-
ful. The lesson to be learnt therefrom was this, that such tracts
must not be left without communication by rail. Had a railway
existed in Bihar and northern Bengal in 1874, countless cares and
labours . would have been avoided, and a large part of the relief
expenditure saved. The lesson has indeed been learnt with effect,
for those tracts of country now (1882) have their railways, which
advantages, they doubtless owe to the famine of 1874.

Afterwards in 1880, when the Indian Famine Commission was
sitting, the evidence shewed that had railways existed there in 1874,
offering due facilities to trade, perhaps half of the total expenditure
incurred by Government on that occasion might. have been obviated.

It may indeed be conceded to the critics that the relief given to
the distressed was liberal and unstinted, that the object was to secure
effectually the preservation of life, and that for the complete attain-
ment of this object neither labour nor expense was spared. This
was. the policy which, to the best of our understanding, we were
ordered to pursue and which we unhesitatingly pursued. The object,
then, was absolutely attained ; a contest with famine was undertaken
and was won conclusively. Whether any lesser resistance to so dread
an enemy as famine would have sufficed is doubtful ; and the doubts
which teight be felt on this point will have been increased by subse-
quent experience. Whatever may be the merits or demerits of
particular measures it must be acknowledged that in some other
instances large expenditure has been humanely allowed by the State
and yet there has been loss of life. In this instance the money was
liberally spent indeed, but then all the lives were saved. If there
are to be great expenses, it is well to make sure of success for the
sSike not only of the material results^ but also of the moral advan-
tages. Not only were the lives of the people saved, but also their
lasting thankfulness was earned. Such national gratitude must add
fresh stability to the foundations of British rule.

The manifestation of their gratitude by the people was conspicu-
ous in various ways. The Native press, both English and vernacular,
teemed with commendations of the policy prescribed by the Govern-
ment and of the proceedings taken by its officers during the famine
from first to last At every place I ever visited in the provinces

SIR RICHARD TKMPLS. 601

under the Government of Bengal during the year of the famine, or
in subsequent years, whether within or beyond the area which was
then distressed — there were addresses presented which included,
among many other things, strongly worded allusions to the measures
adopted for averting the consequences of famine. Too much stress
must not indeed be laid on such addresses, but, inasmuch as they
contained remarlics on local topics, — which topics varied in each locality
and consequently in each address — the fact of the happy prevention
of famine being the one and only constant theme proved that it was
uppermost in the popular thoughts. On my return to Calcutta after
the conclusion of relief operations, the Native chiefs and gentry of
Bihar presented a congratulatory address specifically alluding to each
step which had been taken and every measure adopted. If it were
supposed that Bihar Native gentlemen were naturally disposed to
entertain and express favourable sentiments on the policy which
Government had followed, still that supposition cannot apply to the
British India Association which represents the zamindars or landlords
of Bengal. These Bengali Native gentlemen are notoriously out-
spoken and independent in their utterances, so much so that they
have often been blamed for evincing an undue willingness to criticise
the Government^and its officers. Yet they also presented an address
declaring in the strongest and warmest terms their gratitude on
behalf of the Natives, their belief in the necessity of what had been
done and their appreciation of the manner in which it had been
effected."

While the famine relief operations were in progress, Sir R.

Temple's time was so much absorbed by them that
he could do little in the direction of developing the
province in other matters. It was his custom to record Minutes on
every subject which, in his opinion, called for the personal attention
of the Lieutenant-Governor. There lie before me 2 volumes con-
taining 184 of these Minutes dated from the 26th of May 1874 to the
loth of January 1877. Two of this number were the summaries pre-
fixed to the Provincial Administration Reports of 1874-75 and 1875-76.
Only 1 1 of these Minutes were recorded during the progress of the
famine, and some of the 1 1 were connected with it. He began by
taking up the threads of the administration as Sir G. Campbell
left them, and called for the papers on a number of pending subjects.

602 BENGAL UNDEIt THE LIBUTENANT-GOTERNORS.

It has indeed been said that it was fortunate for Bengal that Sir
G. Campbell was succeeded by another Lieutenant-Governor who,
like him, had not served in the Lower Provinces, so that a fair
chance was given to Sir G. Campbell's innovations to take root
and come to maturity where they deserved to succeed, instead of
their being ruthlessly cancelled as they might have been if the suc-
cessor had been an officer of the old Bengal school. When a further
period had elapsed, the innovations had shown their value, or the
contrary, so that they had to be maintained or could more properly
be set aside. From these volumes of Minutes then, as well as from
the Annual Reports, it will he possible to give extracts which will
present an adequate view of the main features of Sir R. Tepiple's
work in Bengal*

And Sir R. Temple himself (Men and Events &c. p. 440) has
briefly enumerated the other chief official matters of his time as
follows :— During these years the various things relating to the ad-
ministration had been claiming attention — the progress of canals
already under construction and the elaboration of new projects for
irrigation — the preparation of plans for branch railways — the repair of
embankments — the execution of drainage works — the designs for
the reclamation of swamps — the assessment and levy of cesses al-
ready authorized by law for roads and schools — the founding of new
colleges, the opening of additional medical schools and the develop-
ment of primary education — the legislation regarding the land, the
partition of joint undivided estates, the registration of possessory
titles, the determination of agrarian disputes — ^the extension of the
forest laws to many hundred square miles of woods and jungle — ^the
organization of the rural post— the improvement of the village police
— the development of the statistical department — the constitution of
the Municipality at the Capital on the basis of the elective franchise —
the modification of the procedure in the department of civil justice —
and the limitation of the license of appeal by providing new appel-
late courts in the interior of the^ country with power of deciding
finally.

By Act VIII (B. C.) of 1871 the Justices of the Peace for
The dOeutta Calcutta had been enabled to purchase a plot of

Market. ground near the site of the. old Dharmtolla Market,

and carry on a market there themselves for the benefit of the rate-

SIR RICHARD TlBMPLK. 603

payers^ besides better supervising and regulating all the markets of
Calcutta. It was however ascertained that, on the true construction of
the Act of 1 87 1, th» powers of the Justices were limited to the
establishment of a market, and did not extend to its management
on behalf of the public. Doubts were raised as to the power of
the Justices to spend money from their revenues for the purpose, and
it was found that, in order to give the new market a fair chance of
success, it would be necessary for the Justices to acquire the existing
Dharmtolla market. To give them power to legally carry . on the
business of the new market, and to indemnify the Chairman in
respect of certain sums which he had expended with this object^ a
brief Act was passed, II (B. C.) of 1874, conferring the requisite
powers and authorizing the Justices to borrow a further. sum of 7
lakhs of rupees to pay for the old Dharmtolla market. By the begin-
ning of 1874 the southern block was completed and opened to
the public. The whole subject created some temporary excitement.
One lesson learnt from the famine of 1873-74 was the importance

of .railway communication on the north of the

RallwaTB in

North BUiar and Ganges. The Government of India desired to be put

elsewhere. ^

in possession as soon as possible of Sir R. Tem-
ple's views, so that he was unable to wait for complete information :
but with the personal knowledge that he had acquired by travelling
over the country he was in a position to formulate his views in a
Minute dated the 9th July 1874. He recommended 5 projects in
the order of their importance as they appeared to him.

1. A line leaving the Ganges at Hajipur opposite Patna, and
passing through Tajpur and Darbhanga to Supaul (no miles) with a
branch from Darbhanga to Sitamarhi (45 miles).

2. A line crossing the Gandak from Hajipur, and proceeding
through the district of Saran by Cbapra and Sewan to Mirpur {§0
miles).

3. A line from the Ganges opposite Mokameh to Tajpur and
Muzaifarpur, and thence through the district of Champaran to Moti-
hari, Segowlie and Bettia (150 miles).

It was roughly estimated that the cost of these lines would be
about 2\ millions sterling.

The principal point Sir R. Temple had in view was the con*
nection of MuzafiEarpur and Darbhanga, the principal trade centres

604 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

in Tirhut, with the Ganges. He pointed out that the best line of
railway for Tirhut should start from Hajipur, on the other side of
the Ganges opposite Patna. The question was whether this line
should be taken via Taj pur to Darbhanga, or whether it should not
run from Hajipur to Muzaffarpur, and thence to Darbhanga. The
Government of India were not prepared to contemplate the construc-
tion of 2 lines through Tirhut to the Ganges, and the relative
advantages of the Mokameh line or the Hajipur line were therefore
to be considered.

The Government of India was also inclined to consider that it
was premature to discuss any plans for the extension of railways
beyond Muzaffarpur and Darbhanga, or for a line of railway from
Hajipur through the district of Saran. The one point upon which^
orders were passed by the Supreme Government was ^the connection
of Muzaffarpur and the Ganges at one point ; and surveys of the
country with this object were sanctioned, and estimates were prepared
for the best lines to connect Muzaffarpur with the river and the main
line of the East Indian Railway. During the year 1875, ^^^ li^c to
Darbhanga was made permanent and an extension from Samastipur
to Muzaffarpur was sanctioned by the Government of India. This
was only one of the several schemes whtch Sir R. Temple pro-
posed as temporary measures to meet the scarcity that was expected
at the end of the year. Those schemes were as follows : —

Miles
approximately.
I. From Darbhanga via Mudhapore to Gopal

^Atf/ on the river Tiljuga 32

II. From Samastipur on the Boor Gandak

to Muzaffarpur 30

III. From Muzaffarpur to a point close to Sahib-

ganj near the old bank of the Gandak 25

IV. From Darbhanga to Sitamarhi ^ 25

Total ... 122

The project of a light railway from Bankipur to Gaya also came
under discussion. It was contemplated that Government might con-
tribute a certain sum yearly to the payment of interest on capital if
the District Road Fund Committees of Patna and Gaya would under-

SIR RICHARD TBMPLS. 605

take to pay the remainder. The application for the project was
refused by the Government of India on the ground that the traffic
returns were not likely to be large enough by themselves to make the
outlay remunerative. In the same year also Sir R. Temple was asked
by the Government of India to give his opinion regarding possible
lines of light branch railways in these provinces, the construction
of which might be arranged by the help of local or provincial re«
sources. He found that there were no lines to be recommended in
eastern or south-western Bengal, or in Orissa; but in Central and
Northern Bengal he suggested the following projects for considera-
tion, as being branches to the trunk lines of railway already existing.
In Central Bengal, — lines to be arranged by local or provincial

resources : —

Miles.
From Kanaghat, on the Eastern Bengal Railway, vid

Krishnagar and Murshidabad, to Bhagwangola on

the Ganges ... ..• ... ••• ... 86

Chakdaha, on the Eastern Bengal Railway, to Jessore ... 50

Barrackpore to Barasat 8

Sealdah (Calcutta) to Diamond Harbour ... ... 30

Rajbari (near the Goalundo terminus of the Eastern

Bengal Railway) to Faridpur r 19

Total i 93
Lines in Northern Bengal, proposed to be undertaken

by the State Railway Department : —

Rangpur to a point opposite Goalpara, in Assam 99

Parbatipur, on the Northern Bengal State Railway, to

Dinajpur ... ... ... ... ... ... 20

To be arranged from local or provincial resources : —
From Nator, on the Northern Bengal State Railway, via

Rampur Boalia, to a point opposite Bhagwangola ... 50
Siiltanpur, on the Northern Bengal State Railway, to

JjUkI <1 ... *«* ... .1. ... ... ... 2\/

From Jalpaiguri, on the Northern Bengal State Railway,

vH Kuch Bihar,. to meet extension towards Assam ... 55

From Purnea to Karagola, on the Ganges, opposite

Sahibganj, on the East India Railway .... ... 28

Total ... 159

606 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

A line from Raniganj (on the East India line) to Sambalpur to
join the line projected eastwards from Nagpur, and so to produce
a straight line of railway between Calcutta and Bombay, had come
to be regarded as a matter of special interest.

A line from Ranaghat in the direction of Murshidabad was
actually commenced and some length of embankment thrown up, but
the scheme was subsequently abandoned. Before Sir R. Temple
left Bengal, he was able in November 1876 to traverse the line of
the Northern Bengal Railway, then under construction and complete
(with the exception of 4 bridges) from Sara to Jalpaiguri, and it was
expected to be open to traffic in the following year.

In connection with the same subject, that is, the importance

of protecting the country from a recurrence of
the troubles of 1866-67 and 1873-74, Sir R*
Temple locally examined the question of constructing irrigation
canals from the river Gandak. Of the 2 places where it was
considered possible to make a weir or headwork across that river,
namely Tribeni ghai and Butsura (near Bagaha) 34 miles lower
down the river, the latter was selected as the most favourable. Sir
R. Temple recommended the scheme in the following order, stating
the probable cost so far as could be ascertained without complete
estimates : —

Miles. Cost.

I. Weir on the Gandak at Butsura... £ 41 1,800

IL High Level Canal from Butsura

to the Bhagirathi ... 105^ £ 11524,315

III. Extension from the Bhagirathi to

the Kamla ... ... 50 £ 566,225

IV. Canal from Butsura vid Sureya to

Muzaffarpur ... ... 75 £ • 497,887

V. Navigable branch from Muzaffar-
pur to Hajipur ... 37 £ 187,831

Total ... 267A £ 3,1880,58

He wrote also — **Iii my judgment all these works are very
desirable, if the Government of India can afford means for their

SIR RICHARD TEMPLE. 607

execution ; and it is difficult to say that one part is more important
than another. But if the whole cannot be taken in hand at once, and
one part must be selected for precedence, then I distinctly recom-
mend the High Level Canal with extension to the Kamla. From the
foregoing abstract it will be seen that the length of this piece would
amount to 155I miles of main canal, exclusive of distributaries, with a
probable cost (including the Butsura weir and distributaries) of
^"2 ,803,3 40. I ^^st ^^^ ^^is ^^^^ appear as moderate a proposition
as could be made. In round numbers, it is proposed to irrigate all
North and Norh-West Tirhut at a cost of 2 J millions. This seems
to be a minimum recommendation, if anything is to be recommend-
ed at all.'' At the same time a system of irrigation schemes in the
Saran district was suggested. The project was to take off a supply
of water from the proposed weir at Butsura, and turn it into certain
old channels through the old branch of the Gandak. Much progress
was made in working up these projects : Sir R. Temple, foreseeing
that all the schemes put forward could not be accepted for want of
money, specially recommended : —
(i) A High Level Canal in North Champaran from
Butsura on the Gandak, to the Kamla in North
Tirhut, with weir and distributaries, probable

cost ... ... ... ... ... .../" 2,500,000

(2) A Railway from Hajipur, in South Tirhut,
through Darbhanga, East Tirhut, to Supaul in North
Bhagalpur ... ... ... ... /* 66o,ooc

Total... £ 3,160,000
In Orissa also Sir R. Temple recommended the extension
and completion of the canal system at a total outlay of nearly 264
lakhs of rupees, or of certain works to cost nearly 1 96 lakhs. The
measures were expected to fairly protect the Cuttack district, and
part of Balasore, in the event of famine ; at the saine time establish-
ing through canal navigation between Cuttack and the Hooghly
below Calcutta. . As the Government of India deferred the project
of the weir across the Gandak at Butsura and the High Level Canal
in Champaran, and the irrigation schemes put forward for North Bihar
were definitely abandoned as being too expensive, Sir R. Temple
continued to press the minor schemes of irrigation to utilize the

608 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

existing numerous small rivers and drainage channels in North
Champaran, and the minor projects of irrigation from the streams
of North Tirhut and Saran.

Surveys were sanctioned, to be undertaken with a view to propos-
ing (i) inundation channels from the Gandak in Saran and
Champaran in connection with the Gandak embankments, (2) the
construction of minor irrigation works in Ramnagar and Madhubani,
(3) further investigations of facilities for minor irrigation works in
districts most exposed to future danger. When the winter rice
harvest failed in 1875-76 in the Sitamarhi and Madhubani sub-
divisions of North Tirhut, Sir R. Temple urged the commencement
of earth work on the Bhagmati and Kamla projects.

State emigration from the distressed tracts of Bengal to British
Emigmtton Burma was undertaken in 1874, partly as a means

"^™*' of alleviating the effects of the scarcity and partly

to promote the cultivation of the waste lands in that province. The
year was deemed peculiarly favourable for the experiment, not only
by reason of the greater willingness on the part of the population
to emigrate on account of the scarcity, but also because the transport
of the emigrants could be readily arranged by the vessels employed
in importing rice from Burma to Bengal : a Superintendent of State
Emigration to Burma was appointed, and an allotment sanctioned
towards the furtherance of the project. Favoiirable terms as to
wages were guaranteed for 3 years to the emigrants. The total
number of emigrants up'_to the close of November 1874 was 5,389 :
a small number comparatively, but it was hoped that the experiment
would prove advantageous to British Burma, where the demand for
labour and colonists was yearly increasing.

The subject of the drainage of the country was fully examined
Drainage ^V Sir R. Temple, as some of his long Minutes

schemes. show. He wrote in one of them : — " The drainage

of land in Bengal, and the law relating thereto, next claim notice.
The protection of cultivated or culturable lands from injury by
water, and the control "of floods in the rainy season, have always
been objects of solicitude to the Government and to the people in
these provinces. In Bengal the embankments constructed in old
times, and maintained for many years either by Government or
under State control, cover a length of 1,176 miles» In Bihar the

SIR RICHARD TBMPLB. 609

course of the Gandak for 130 miles presents a remarkable instance
of embanking on both banks. In Orissa there are extensive em-
bankments on the sides of the rivers Mahanadi and Brahmini. Of
late years the inquiries which ensued upon the breaking out of the
destructive fever in Burdwan caused attention to be further drawn
to the advantages of draining and embanking, all which has resulted
in the preparation of several schemes.

By Act V (B. C.) of 1 871, it was laid down in regard to certain
specified works in two districts — Burdwan and Hoogbly — that a moiety
of the proprietors of the lands concerned might assent to the drain-
age works, whereon the whole proprietary body would be obliged
to combine to cause execution of the works, to obtain the necessary
advance of money from Government, and to apportion among them-
selves the liability for the recovery of the advance. In fact, however,
two thirds of the proprietors assented, and the project (Dankuni) was
accordingly executed. The works are now in successful operation ;
swamps covering an area of 27 square miles, of which 10 square
miles had never been cultivated, have been thoroughly drained and
are under cultivation.

This principle was carried still further in the Embankment Act
(B. C.) VI of 1873, ^^^ provisions of which Act are so framed as to
comprise drainage works of all sorts. By that Act power is given to
the land revenue authorities of causing the execution, from Govern- *
ment funds, of works necessary for the protection of lands from
injury by water, and of recovering the cost from the landowners and
tenureholders of the lands benefited or protected by the works. It
would be preferable that the people should themselves come forward
and ask the Government to advance the funds on the security of the
lands to be benefited, and to cause the necessary works to be execut-
ed. If the landholders generally of any neighbourhood should
desire the execution, on these terms, of any projected drainage or
embankment, and if the revenue authorities should agree in its expe-
diency, it would not be in the power of any individual, or any
minority among them, to effectually object in the present state of

the law^.

Again, drainage falls within the scope of the Land Improvement
Act, XXVI of 1871, according to which any landlord or tenant may,
on giving security, obtain from Government an advance of money

610 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

for this purpose. The people, however, have but little availed them-
selves of this provision.

As already seen, one drainage project on the right bank of the

'Hooghly (known as the Dankuni project) has been carried out with

great advantage. It has been proposed that 3 similar projects

(formed some time ago) on the right bank of the Hooghly, near the

confluence of the Damodar, should be taken in hand. These are

known as the Rajapur, the Amta, and the Howrah projects. I have
ordered the project for the drainage in the Midnapore district to be
proceeded with, a part of the cost being chargeable to Government,
in proportion to the benefit accruing to the canals, and the
remainder to the zamindari estates, in proportion to the benefits
accruing to them. We hope also to be able to undertake a project
near Calcutta (known as the Bulli project), whereby the^area of a
large State property, about eight and a quarter square miles, may be
rendered productive, instead of being, as it is now, not only
valueless, but positively noxious.

The drainage of land in Bengal is certainly one of those pro-
blems nearly affecting the physical and material welfare of the
people. Representations in various shapes are constantly made in
respect to malarious swamps formed by the silting up of streams,
the natural drainage of the country being stopped, old beds of
* rivers becoming receptacles for stagnant water, hollows in the
surface of the country being filled with drainage that cannot escape.
In central Bengal, the tracts traversed by the rivers Bhagirathi,
Jalangi, and Mathabhanga, are year by year subjected to destructive
inundations. The official flood map shows the whole area oT these
tracts as liable to submergence more or less at one time or other.
These and other cognate circumstances must injure the health and
strength of the Bengali population. And it is to be remembered
that the numerous swamps which remain undrained, breeding fever,
might not only be drained for the benefit of health, but might also
be reclaimed for the spread of cultivation. In a province under
permanent settlement, the Government can seldom undertake such
work at its own charge. It can indeed advance funds to the owners
on the security of the lands to be benefited, and it can give pro-
fessional and engineering aid. It can also, in cases where the
combined action of many proprietors is necessar}', compel the

SIR RICHARD TKMPLB. 611

minority to contribute towards a scheme which the majority desire
and the authorities approve. For all this ample provision has been
made, and considerable results will hereupon accrue in course of
time. But the active and universal co-operation of the classes
Interested in the land is still wanting."

The Government of India accepted the principles so strongly
advocated by Sir R. Temple that drainage schemes, when
there was no doubt as to their immediately remunerative character,
should be fostered and extended by the advance of funds from
Government, as was done in the case of the Dankuni project.
Accordingly plans and estimates were prepared for the projects at
Rajapur, Howrah and Amta in the Howrah district, and the Beel
Bulli project ^ear Calcutta. The result of the Dankuni drainage
works, which were finished In 1873-4, proved to be excellent both
as regards cultivation and ^nitatton. Much complaint having been
made to Sir R. Temple by Raja DIgambar Mitra and other
well-informed native gentlemen regarding the disastrous fever
frequently prevalent in the districts round Calcutta and aitributed
by them to the obstruction caused to the natural drainage of the
country by the construction of railways and roads, he appointed
a special Committee to examine the localities specified and
any other fever-stricken villages which the complainants might indi-
cate.

The report of the Committee submitted to Sir Ashley Eden left
matters exactly in the position where they were. The inquiry
showed that the artificial obstructions to which the Raja referred
had little connection with the outbreak of fever in those localities.
On the other hand the Committee could not dispute the position
that the saturation of the subsoil in the deltaic districts of Bengal
was one chief cause of fever, or that this saturation might have
been aggra\'ated of late years by both natural and artificial changes.
But even, were the measures which Government ought to adopt
clear and indisputable, the financial condition of the province pre-
vented it from undertaking anything like a general system of district
drainage at the cost of the public revenues. The attention Qf district
officers and municipalities was directed to the laws which provided
the means of improving the drainage of towns and village sites.

The Burdwan fever, which had so long prevailed, necessarily

612 BENGAL UNDSR THE LIEUTENANT* GOVERNORS.

came under Sir R. Temple's observation. When it was at its
TbeBiirdwan height in 1 873 an opinion was expressed to the
fever. effect that the prevalence of the disease was in part

due to the physical depression of the people by reason of insuffi-
ciency of food. An inquiry was ordered by the Government of
India: the reports received did not support the theory. Sir R.
Temple recorded his views as follows :--

" The BurdiNran fever, which is so painfully remembered, has
for the most part ceased. After afflicting or desolating large tracts
of country for several years, it seems to have worn itself out; and
it has left us, after much scientific and professional inquiry, still
ignorant of its causes. Nothing could exceed the zeal and devotion
of the local authorities during these years in coping with the unseen
visitant. There seems to have been nothing peculiar in the form
of the disease. It was the ordinary f^ver of the country. The
peculiarity consisted in its extent, severity, and persistency. The
lower classes in that part of the country are more than ordinarily
poor, but poverty could hardly have been the cause of the extraordi-
nary prevalence of this fever ; for the victim^ were found in all
classes — the affluent, the well-to-do, the workers, and the paupers.
It is hard, too, to argue that hunger, or physical depression from
want of food, could have been the causes ; for when the scarcity
began in 1873, ^^^ fever, instead of becoming worse, became better,
and further improved during 1874. No doubt the population in
those localities is remarkably dense for the food-producing area ;
but then the people have markets for their labour close at hand, and
ample granaries filled with surplus produce of* other districts whence
to buy food with their wages. Defects in drainage will naturally
suggest themselves as causes, but then the fever prevailed in the high
and dry lands as well as in the swampy tracts. If, however, defective
drainage be an element in the causation, as I suspect it is, though
there is not clear proof, then that will be advantageously affected in
future by the several drainage schemes which have been set on
foot.'*

Apart from such schemes and such general remedies as improving
the condition of the peasantry by good laws, — irrigation projects, — vil-
lage sanitation — Sir R. Temple could propose nothing that had not been
thouq^ht of during the many years this fever had afflicted the country.

SIR RICHARD TUfPLI. 613

The Forest Department was greatly developed in Bengal by Sir

R. Temple. His policy was first declared in dealing
Tbe8undart>uis With the Sundarbans. Revised rules for the

and other areftii

sale of waste lands had been issued in February
1874, but, with the formation of the Chief Commissionership of
Assam, the districts in which the chief transactions in waste
lands occurred passed out of the Lieutenant-Governor's control.
A question soon arose regarding leases of lands in the Sun-
darbans, as the sale rules were found to be inoperative, the terms
of sale being such as to prevent purchasers from coming for-
ward. Sir R. Temple visited the Sundarbans, and examined the
physical character and natural productions of this tract, and con-
sidered its relation to the surrounding districts and to the country
at large. He found himself unable to accept the view that it neces-
sarily was, or should be, a public object to get the whole of the
Sundarbans gradually reclaimed and brought under cultivation. In
his opinion the public interest might be supposed to lie in the very
opposite direction as regards a very large part of this tract. *' The
Sundarbans include not only a mass of sundri trees of comparatively
higher growth^ but also masses of trees and shrubs of lower growth.
The former are used for carpentry and timber work ; the latter for
fuel. The area of both is very considerable. The relation of the
tract to the surrounding districts also was not to be lost sight of. The
sundri forests supply wood for boat-building to the z^-Parganas, to
Jessore, to Backergunge, to Noakhali, and to other districts, and also
furnish wood for many purposes of domestic architecture.'' An ex-
periment was also being tried for employing the sundri \Amhtx in the
manufacture of railway sleepers. The other, or lower trees, supplied
fire-wood and fuel to Calcutta and to many other towns. The needs
could hardly be supplied otherwise than by the Sundarbans. Thus
the country at large had the strongest interest in the Sun-
darbans being preserved as a source of timber, wood, and fuel
for the use of southern Bengal, so that reclamation, as such,
was not Wanted there. In some parts of this tract the substitution of
rice-fields or jungle might be desirable ; but in most parts of the tract
the ground already bore produce which was more valuable to Bengal
than rice.

Sir R. Temple wished to restrict reclamation until it could

614 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

be established by adequate inquiry whether the Sundarbans could
meet these wants and still afford room for reclamation. It was
admitted that in every tract some portions must be cleared in order
to render the remainder accessible to man and available for his use.
Whatever reclamation might be permitted or encouraged in the
Sundarbans should, in Sir R. Temple's opinion, be arranged solely
with the above view, and to this end the selection of patches of
ground should be carefully made.

Already much of the Sundarbans had been reclaimed, and Sir
R. Temple thought that the time had come when the position
should be reconsidered. Complaints were made to him in the
Backergunge district that sundri logs of the best quality were more
rarely seen in the market than formerly. There was not sufRcient
security against the best kind of j«;i(/r/ trees being cut down in the
same reckless and wasteful manner as that which \\'as known to have
prevailed in many parts of India before the institution of the
forest system. Holding these views, therefore, he considered that
the public interests required that no new negotiations of any kind
should be opened for disposing of unclaimed land in the Sun-
darbans till it was decided by what rules Government could
best maintain the principle that reclamation in this tract must
be subordinate to forest conservation and he deputed the Con-
ser\'ator of Forests (Dr. Schlich) to proceed to the spot and make
inquiries.

The cessation of the famine enabled Sir R. Temple to devote
more attention to the working of the Forest Department than
he had previously been able to give to the subject, and his
efforts for its improvement were effectively seconded by the Conser-
vator and subordinate officers of the department. The result vfzs
that, at the close of the year 1874-75, there were 5 forest divisions,
Darjeeling, Jalpaiguri, Palamau, the Sundarbans, and Chittagong ;
and 2 more in course of formation, vis,, Saranda and the Sonthal
Parganas, Additions, amounting to 1,347 square miles, were made
during the year to the reserved area, bringing up the total to 1,467
square miles. Of these additions, 115 square miles were in Jalpai-
guri, 885 square miles in the Sundarbans, and 347 square miles in
Chittagong. Besides these, 151 square miles of forests in Palamau
.were selected as reserves. Further progress was made in 1B75-76 in

SIR RICHARD TKMPLIC. 615

the formation of reserved State forests. Their area in square miles

was thus tabulated : —

DiviQinnQ

At the beginning

Adde^

I during

Total at the end

mJ I V I9I\/I19«

1875-76.

the

year.

1875-76.

Darjeeling

106

Jalpaiguri

129

159

Palamau

151

Sundarbans

885

1,199

Chittagong

347

223

570

Singbhum

400

Total ... 1,467 1,118 2,585

Thus two new divisions —Palamau and Singbhum — were formed in
the course of the year, and the reserved area was increased by 1,118
square miles. These figures did not include the Shahabad and Son-
thai Pflrganas reserves, which were gazetted after the year had closed.

The area of the reserved forests which remained to Bengal in
Kuch Bihar and Chittagong after the separation of Assam had been
120 square miles. During Sir R. Temple's Lieutenant-Govern-
norship the reserved forest area was thus increased to above 2,585
square miles in 6 forest divisions. Five of these divisions were
being worked at a good profit on the expenditure, and in future years
a still larger surplus was confidently expected. But the immediate
pecuniary returns were regarded as of small importance, compared
with the permanent benefit w^hich thete provinces would derive from
the judicious protection of their principal forest areas. The primary
work of the department was to afford this protection, and thereby to
ensure a continuous supply of timber and other forest produce, which
would speedily be destroyed if the consumption of it were altogether
unchecked.

Besides these great additions to the Government reserved forest
area. Sir R. Temple concerned himself in the conservation of
the forests in Sikhim which had come under his notice. He
caused the Sikhim Darhar to be addressed, and when touring in that
State personally communicated with ihe Sikhim authorities. He
similarly initiated proposals for bringing some private forests in the
Chota Nagpur province under Government management for the
benefit of the proprietors, the object-being, not to make any profit

616 BENGAL UNDBR THB LISUTKNANT-GOVBRNORS.

for Government, but to preserve a sufficient number of trees for re-
production in order that the timber supply might be permanently
maintained.

Apart from his forest policy Sir R. Temple aimed at de-
Devoiopment of ^cloping the resources of the country by scien-
thJcJSJ^Tro^h tific methods. He regarded the real need of the
acionce. ^^y ^^ y^^ ^^^ gradual education of the rising genera-

ration in all that relates to scientific agriculture, agricultural chemis-
try and the like. '* It had been found necessary, " he wrote, " to close
theseveral model farms which had been temporarily established in
Bengal because |it was found that success could not be attained with-
out scientific means and appliances much beyond any resources which
we have at our command. The aim was to introduce new and
foreign staples which may or may not prove suitable to this climate —
a very difficult task, for the successful accomplishment of which the
best talent procurable from Europe would be needed. But another
object more immediately important seems to me to be this — to
examine scientifically and botanically the physiological characteris-
tics of all our principal indigenous staples, and the chemical
properties of our soils, with a view to improving the fertility
of our fields and the yield of our produce. In this, of
course, the sciences of physiological botany and agricultural
chemistry are concerned. Experiments in regard to these matters,
in order to be at all conclusive, must be conducted and continuously
watched by men of high scientific aquirements. With our limited
resources this can be done only in a few selected areas. The lands
belonging to the abolished Stud department at Pusa, in Tirhut, and
a part of the large area belonging to the Botanic Gardens at
Calcutta, are suitable for such a purpose, and in each case some
trained scientific officers could be employed."

The Pusa estate was retained in the hands of Government for
the undertaking of experiments in the raising and curing of tobacco,
and possibly also for the establishment of an Agricultural college
for Bihar. The latter scheme was in abeyance, as an Industrial
school had been opened at Patna. In the same spirit he sanctioned
expenditure for the improvement of 'the Royal Botanic Garden at
Sibpur, Howrah, and for the formation of a Botanic Garden at
Rangarun near Darjeeling : the intention was to have trees and

SIR RICHARD TBMPLE. Gl7

plants suitable to the Eastern Himalayas cultivated there for the
advancement of practical science and for the public benefit. The
soil and climate of Rangarun being found to be unsuited for such
a garden, the project was abandoned. In its place a branch Botanic
Garden was established at Darjeeling, where a good site was secured
by Sir A. Eden through the liberality of a private gentleman (Mr.
W. Lloyd) and where many useful experiments could be undertaken,
more especially in connection with the proposal of the Home
Government to grow in India as many as possible of the drugs used
in medicine and imported from England at great expense. Similarly,
in support of systematic botany, Sir R. Temple encouraged the
collection of specimens for the Herbarium at the Botanic Garden,
by exchanges with other institutions and visits to other parts of India
at the same time he indicated the direction which inquiries and ex-
periments in the physiological branch of botany should take. The
experiments which had been instituted for the purpose of discovering
some preparation of the medical alkaloids of cinchona bark were
also pressed on, with the object of substituting a cheap febrifuge
for the expensive quinine alone available previously. The cinchona
plantations near Darjeeling were extended and it was at fir^t
intended that the bark should be sent to Calcutta for manufacture,
but subsequently a factory was erected at the plantations. In
all these matters Sir R. Temple had the invaluable aid of
Dr. King, Superintendent of the Botanic Garden. When
he, (then Sir George King, k. c. i. e.) retired from the public
service in March 1898, the excellent work he, " one of its most dis-
tinguished and valued servants," had done for Bengal and India
was highly appreciated by Government in a farewell notice. ** Sir
G. King's labours in the fields of morphological and systematic
boUny have greatly extended our knowledge of tbe flora of India
and the Malay Archipelago, and have established his reputation as a
botanist throughout the scientific world. Nor was he less successful
as a practical administrator. The striking improvements that have
been effected during the past 25 years in the BoUnic Garden at
Sibpur are due to his business capacity and his talent for landscape
gardening. By developing the Sikhim cinchona plantations and
introducing the manufacture of quinine by a cheap process he render-
ed it possible to introduce and extend throughout the province and in

618 BENGAL UNDER THE LIEUTENANT -GOVERNORS.

Other parts of India the system of selling quinine by the dose, and
thus placed within the reach of the poorest peasant a remedy for the
malarial fever that prevails in so many districts."

The Botanic Garden at Sibpur, Howrah, opposite Calcutta, had
Tho BoUnic Suffered greatly from the destruction of its large

Gardon. t^ccs in the cyclones of 1864 and 1867. Sir R.

Temple sanctioned a very liberal grant towards the improvement of
the garden, to be expended in adding to the number of plant houses;
in levelling and turfing the eastern portion of the garden ; in laying
out and paving some of the new roads, of which the earthwork had
been previously done : in removing the labourers* huts to the
northern part of the garden, and in improving the condition of the
several pieces of water. At the same time he thought it would be a
mistake to treat the garden only or principally as a pleasure-ground,
or a mere ornamental specimen of landscape gardening. The main-
tenance of the garden as a centre of Botanic Science in Bengal was
the first object to be carried out ; and with this view he contemplated
increasing the number of plant-houses, and if possible allowing the
Superintendent the temporary assistance of a Botanic collector, who
might be deputed to localities in the interior of the country to collect
plants of scientific interest. Special attention was to be paid at the
garden to the culture of herbaceous plants in the conservatories,
and to the collection of orchids and flowering plants. Sir R.
Temple thought the Botanic Garden should be and might be made,
not only a place of economic value and scientific importance, but
also an ornament in the suburbs of Calcutta.

Sir R. Temple also did something for the' science of Zoology,
loirioai though more for the amusement of the public.
Garden of Aiipore. by the establishment of the Zoological Garden
at Calcutta. This has sometimes been spoken of as one of the most
enduring results of his Lieutenant-Governorship. He wrote thus in
September 1875 • —

'* It is not necessary to set forth in any detail the reasons which
render it desirable to establish a Zoological Garden at Calcutta, the
capital city of Bengal. There are great advantages for maintaining
such an institution in Bengal, as very many varieties of animals are
procurable readily and inexpensively. The natives of Bengal have
a taste and aptitude for natural history^ the teaching of which science

SIR RICHARD TEMPLE. 619

is manifestly facilitated by the display of living specimens. A per-
manent exhibition of this sort will have, therefore, a good educa-
tional effect.

'' A particular difficulty, however, has alwiays been felt in respect
to the selection of a site, for which a considerable area of ground is
required, in a situation, |on the one hand, not so near to the populous
part of the city as to cause inconvenience, on the other hand, suffi-
ciently near to afford due facility for popular resort.

" In order to select the best available site, I appointed a Commit-
tee and their attention was drawn to the several situations from which
apparently a selection might be made. After considering all the
alternative sites, they chose the site which lies to the left bank of
Tolly's naia close to the Zeerut Bridge, In this choice I fully
concur, after having carefully examined the spot in reference to the
special purpose of a Zoological Garden. From this point of view,
indeed, the ground seems to me to possess a remarkable combination
of advantages, as regards accessibility, water-supply, shade from
trees, and other necessaries.

'' Further, it happens that this ground is at present occupied by
a large village which is in a very insanitary condition, and in which
sanitation after long trial is pronounced to be extremely difficult.
On sanitary and municipal grounds it had been decided to clear
this locality on an early opportunity, and to use the land for some
public purpose. Afterwards the project of a Zoological Garden
presented itself as a most fitting object. Irrespectively of this
project, however, the clearance of this ground had long been desir-
ed as constituting a considerable public improvement.

•' Thereupon orders were given to take up the land for public
purposes, with the award of compensation under the law.

" Complete and general plans and estimates will be deliberately
prepared for the whole garden, on the understanding that the work
must be undertaken in the simplest and most economical manner,
and must be designed so that it can be gradually executed, piece by
piece, according as funds shall be available.

'' It is probable that in the first instance we shall be able to lay
out only a part of the grounds, and to erect only a few cheap aud
temporary structures for the reception of the animals. I will sanction
an amount of Rs. 5000 for this immediate purpose^ For this a

620 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

special estimate should be taken in hand under the] direction of the
Chief Engineer.

" The present time is specially suitable for opening the garden,
inasmuch as we shalLhave a handsome collection to begin with by
reason of the munificence of Mr. Schwendler, who has been so good
as to place his numerous and interesting specimens at the disposal of
the Government of Bengal, thereby conferring a benefit on the public
which will, I am sure, deserve and receive general appreciation. We
hope also to obtain specimens from other quarters and to add to the
collection from time to time.

" If, as I hope, we shall succeed in opening the garden by an
early date, there is hope that some support may be received from the
public in the shape of subscriptions or donations. Admission fees will
hereafter be charged, and if the visitors, European and Native, shall
be as numerous as we hope, the moneys thus received will -help in
defraying the cost of maintaining the institution/'

Subsequently a Committee of management was appointed, under
the Commissioner of the Presidency Division, assisted by selected
officials ; large subscriptions were obtained from the native nobility
and gentry, and Europeans ; and the garden was sufficiently advanced
by December 1875 ^o admit of H. R. H. the Prince of Wales being
asked to inaugurate it on the occasion of his visit to Calcutta. Sir
Ashley Eden recorded that ** these gardens have been most successful.
A foul insanitary native village has been replaced by a much appre-
ciated place of public amusement and instruction.''

The transfer ot certain districts from Bengal to the new Chief

Commissionership of Assam rendered it necessary

llearmn^inentii

of certain Com- to readjust scvcral of the Civil Divisions of Bengal.

mlsftionershipfl.

Sir R. Temple accordingly carried out the following
changes. The district of Tippera was transferred from the
Chittagong to the Dacca Division: the Chittagong Commissioner
was reduced to the rank and salary of a Non-Regulation Commis-
sionership, with powers as a Judge : the Kuch Bihar Division was
abolished, and its remaining districts placed in the Rajshahi Division :
Murshidabad was transferred from the latter to the Presidency
Division. About the same time the district of Tirhut, with 4^
millions of inhabitants, was divided nearly equally into the 2 districts
of Muzaffarpur and Darbhanga. In 1880 the former status of the

SIR RICHARD TBttPLB. 621

Commissioner oC Chittagongf was revived and a separate Judge was
reappointed. Tippera was also restored to the Division.

The violent cyclone which occurred on 1 5th- 1 6th October 1874

cydone of isth- Selected the Burdwan Division as one of the princi-

16th October 1874. ^^^ scenes of its devastation. • It seems to have

been formed in the Bay of Bengal ; it raged from noon to midnight
of the 15th in the north of Balasore, desolating the country : a storm-
wave came ashore not far from Contai, on the Midnapore coast, and
the storm travelled with the usual rotatory motion along a course
from about S. W. to N. £. across the district of Midnapore with a
diameter of about 20 miles, so that the whole country coming under
its influence was wrecked, its intensity far exceeding that of the
cyclone of 1864. The station of Midnapore was very severely injur-
ed ; the loss of life in the to^n was great, and in the whole district
amounted to 3,049, while 17,500 cattle perished. From Midnapore
the storm passed over Ghatal and Jahanabad to the station of
Burdwan, where it raged with great violence and committed an
amount of destruction among the trees and houses which was very
alarming, but by no means equal to the injury done at Midnapore. The
Church tower was blown down at Burdwan, and the down-passenger
railway-train was blown over near the Khana Junction. The
Burdwan district suffered severely: more than 21,000 houses were
destroyed. In the Hooghly district 9 deaths were reported, 29 from
Burdwan, 27 in the Murshidabad district, 7 in Nadia, 4 in Rajshahi.
The effects of the cyclone were also felt to a slight degree in
the districts of Bankura and Birbhum. At the stjition of Suri, in
2 or 3 places, isolated groups of trees were attacked and blown
down, as if they had come under the effects of a cannonade, whilst
other groups of trees close.to them were uninjured. The rainfall was
extraordinary : namely, 10 inches in Midnapore, 16 at Murshidabad ;
at Burdwan 74 3 ; during the storm, at Berhampore 6, and at Rangpur
7. The cyclone was at its highest in the Murshidabad district
between 8 a.m. and 4 p.m. on the i6th, crossed the Ganges, and spent
itself in the Rajshahi district. A large number of boats, with their
cargoes, were more or less injured on the river Hooghly. While
3392 persons were reported to have been killed on land the actual
number of deaths was probably far more numerous. The Calcutta
Central Committee sent a iakA of rupees for the relief of the sufferers,
40

622 BENGAL UNPKR THE LIEUTENANT-GOVERNORS.

The construction of the Calcutta-Howrah floating bridge over
The Calcutta, the Hooghly was completed in 1 874 under the super-
dge- vision of Mr. (Sir) Bradford* Leslie, c.k. (k.c.i.e.).
An unfortunate accident, by which 2 sections of the bridge were
destroyed, occurred on the 20th March 1874. The steamer Egtria
broke from her moorings in the river, and came into collision with
the bridge, damaging and sinking 3 pontoons and completely
destroying 200 feet of the superstructure of the. bridge, especially
the main truss-girders, which were twisted and torn to pieces. The
sunken pontoons were recovered ; but a good deal of expenditure
was incurred in clearing the wreck, and great delay was caused.
Altogether the cost of repairing the damages caused by this accident
was estimated to have been over Rs. 80,000. Had not this accident
happened, and much valuable time been lost owing to materials
not being supplied within contract dates, the bridge would have
been completed between ist January 1873 and June 1874. It was,
however, opened for traffic on the 17th of October, and after that
date proved to be a work of great utility, some 40,000 or 50,000
foot passengers crossing it daily. It was described at the time as
a structure of much novelty and originality in its design. Its length
was stated to be 1528 feet between abutments, and its cost to have
amounted to about £220,000. The Port Commissioners accepted
the duty of collecting the tolls and maintaining the bridge in repairs.
Sir R. Temple wrote of it : —

"I am advised that the bridge is very strong, and probably
strong enough to stand even a severe pressure from cyclones and
storm-waves. Its strength, indeed, has been calculated and fixed
with this view. I apprehend, however, that a guarantee cannot be
absolutely afforded as to the bridge withstanding the utmost pressure
that might be reasonably conceived as arising from such physical
disturbances.

*'But if, on the occurrence of such a cyclone and storm-wave,
or from the force of an extraordinary tidal wave, the ships in the
Port were to break away from their moorings and to be driven against
the bridge, the structure must give way. And although a portion
of the materials might be saved and be put together again, the
temporary destruction of this fine bridge would be added to the
list of casualties which must occur on such a grave occasion.''

SIR RICHARD TEMPLE. 623

He urged therefore that every precaution should be taken in
strengthening the moorings and the ships' chains. After some
years the lev}' of tolls on the bridge was stopped.

Mention has previously been made of the inception of the
Gasetteer of Gazetteer and Statistical Account of Bengal by
'^*^- Sir W. W. Hunter. Late in the year 1874, the

Government of India inquired into the present condition of the
work and the Lieutenant-Governor's views as to the future conduct
of the operations. Seventeen districts had already been printed off
in 6 volumes and 30 districts remained to be completed. To
expedite the progress of the work, Sir R. Temple arranged that
5 junior Civil Servants should be appointed as Assistants to Sir
W. W. Hunter in the Bengal branch of his work for a period of
15 months from January 1875 to April 1876. Several of the districts
were allotted to each officer, the remaining number, with the super-
vision and responsibility for the whole, being retained in the hands
of Sir W. W, Hunter. He was to direct the conduct of the work,
receive and pass the manuscript, and be responsible for its final form,
literar}' execution, and the whole technical details connected with
printing and publication. By these means, local knowledge and
practical efficiency were combined with uniformity of execution, and
thei work was finished in the shortest time compatible with its
satisfactory execution.

The work was to be completed in England within 23 months,
and it was wholly in type within the time, in 20 volumes. The
thanks of the Government of Bengal were offered as emphati-
cally due to Sir W. W. Hunter for the vigour and energy with
which he accomplished the collection of such diverse and varied
information, and for the ability and literary skill uniformly dis-
played in dealing with the materials supplied to him from
many quarters. The Statistical Account of Bengal has always
been regarded as a standard work of reference, redounding to
the credit and reputation of its distinguished author. The statis-
tics have necessarily been superseded in many respects by more recent
figures.

Early in 1875, Sir R. Temple stated his general views on

Pri Bduca- ^^^ subjcct of Primary Education, in which term he

**«"• included the village schools designated depart-

624 BENGAL UNDKR THB LI KUTEN A NT-GOVERNORS.

mentally the **E. Schools," and the village schoolmasters styled
locally as ^' gurumahashays ", *' abadhans ", and other names. He
entirely shared the views of his predecessors regarding the extreme
importance of fostering this part of the national education. During
his time the impulse given by Sir G. Campbell to primary instruc-
tion in Bengal was maintained strenuously, yet steadily. He
thought that the local management of primary schools by the
district authorities was essential to their success, and preferable to
their more symmetrical control by the Education department. He
wrote as follows — '' Our aim has been not only to augment the
quantity of this instruction in vast fields as yet imperfectly occupied,
but also to improve its quality without making it too high for the
purpose in view. At the outset large numbers of pupils in old village
schools were brought under Government inspection, and appeared
for the first time in the public returns. Hence it was remarked by
some critics that the change was more apparent than real. Neverthe-
less there was a reality from the first, which, if unavoidably weak at
the very commencement, is becoming stronger year by year. The
inspecting machinery is gradually organised more and more, and
the continuance of State aid is made with increasing strictness
conditional upon the results of the inspection. The present curri-
culum, reading without any, even the simplest, book, rude writing,
and rudimentary arithmetic, is the lowest possible. Even this is a
gain to many classes of the people. Even though all the poor and
humble who are now learning by this lowest standard were to be
advanced to a somewhat higher standard (as I hope indeed they may
be), yet that lowest standard should be continued for the sake of
scholars poorer and humbler still. The analogy of a constantly
widening circle seems to be applicable to this case. That which is
now the outer circumference, represented by the lowest standard, will
soon be occupied by something better ; then the lowest standard
will be pushed out to an additional circumference, embracing more
thousands of scholars ; that circumference will hereafter yield to a
better standard ; once more the lowest standard will, be moved
onwards to a new circumference, until at last the circle of education
comprises the entire mass of the poorest classes.

With a view to enforcing some improvement in ttie curriculum
of some at least of the primary schools, I have ordered the standard

SIR RICHARD TEMPLB. 625

of the examination for the primary schofarships to be raised to the
following points : —

(i) Writing the vernacular of the district and reading it in
printed books as well as in manuscript ;

(2) Arithmetic up to the first 4 rules, simple and compound ;

(3) Bazar and zamindari accounts, and simple mensuration;
it is to be remembered that the primary instruction is entirely in the
vernacular/'

By the end of 1875-6 there were 15,960 schools (with 495,585
pupils) aided and inspected under Sir G. Campbell's scheme, and
of this number 376 schools were added during that year.

While mindful of the wants of Primary Education, Sir R.
Temple attached no less importance to making a

Technical Schools. * ^

commencement with the work of Technical instruc-
tion. It seemed to him that the rapid expansion of the field of
employment in the various mechanical arts and the want of natives
qualified for this employment, so remunerative to the employes
themselves and «o valuable to the country, afforded a good opportu-
nity for such an experiment. He contemplated the establishment
in Calcutta of a Government institution to be called a Mechanical
School and Factorv, for natives onlv, in immediate connection with
the Public Works Department, and he appointed a Committee to
report on the project. It does not appear that any special institution
was established immediately — but Technical education was advanced
by the foundation of Survey Schools at Hooghly, Dacca, Patna and
Cuttack with 123 pupils; by assistance given to public associations
in Calcutta viz., the Science Association, and the Technical School
of the Indian "League; and by the opening of a Fine Arts Gallery
in connection with the School of Art. It was hoped that the Survey
Schools would prove a preliminary step towards the establishment
of a system of Technical instruction and that they would be supple-
mented by the foundation throughout Bengal of Industrial Schools
for the teaching of handicrafts and for the improvement of the several
forms of manual industry existing in the country. On the occasion
of the visit of His Royal Highness the Prince of Wales to Bankipore
in January 1876, the Native Chiefs and gentlemen of Bihar formed
a scheme, in commemoration of that event, for the advancement of
education in practical Science in the province. ^ Subscriptions

626 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

amounting to 2 lakhs of rupees were promised of which it was
proposed to allot half a lakh to the construction of a building for the
institution and the remainder to the endowment thereof. Govern-
ment promised an annual grant-in-aid equal to the interest on the
invested capital, and a site for the building ^^'as granted by Govern-
ment. A School was opened in March 1879, but was closed after a
short period. ^

Sir R. Temple also encouraged the introduction of Science
into the educational curriculum as far as possible. He had been
struck by the overcrowding of the 2 professions of the Public
Service and the Law. " Many find/' he wrote, " that they cannot
obtain either practice or places. They are by nature diligent,
anxious to work for themselves and for their families, with which
even young men in this country are surrounded. They look back
on all the mental toil they have endured, and they are chagrined at
discovering that in but too many instances it leads to nothing. This
accounts mainly for the discontent and restlessness which are per-
ceptible in the rising generation. The cause is partly this, that too
many direct their studies to literature and philosophy, and too few to
practical Science. The great problem is, as it seems to me, to guide
a large portion of the educated youth into other walks of life besides
the learned professions. Such new lines of employment can be
opened out in many directions under the present circumstances of
Bengal. It is .sad to reflect that very rhany estimable men who are
pining and languishing at the bar or in public departments, for lack of
employment or promotion, might, if otherwise educated, have been
land surveyors, or civil engineers, or trained mechanics, or mining
engineers, or geological surveyors, or veterinary practitioners, or
practical botanists, or foresters, or scientific gardeners, or engravers,
or lithographers, or architects, or chemists, or medical men, for
each and all of which capacities there is now a field in Bengal."

Thus, besides the assistance given to native Associations for the
cultivation of Science, he improved and enlarged the means of
practical instruction in Chemistry at the Medical College, Calcutta ;
and, apart from education, he advocated the utilisation of the Pusa
Farm and of the Botanic Garden, Calcutu, for scientific experi-
ments connected with Physiological Botany and Agricultural
Chemistry under officers of Scientific Departments.

SIR RICHARD TBMPL8 627

The whole subject of Education was indeed a principal feature
,, , in Sir R. Temple's administration. He recorded

Bducation..

numerous Minutes on every question that arose
ill the Department of Public Instruction. I find, for instance,
the following subjects that came before him for decision : — the posi-
tion of the District Committees ; the establishments in Government
schools ; Scholarships for vernacular education and the encourage-
ment (through Scholarships) of elementary Natural Philosophy and
Physical Science ; the appointment of Deputy Inspectors and Sub-
Inspectors of Schools ip the districts : the establishment of authorized
hostels or lodging-houses for students at Government Colleges and
Higher English schools : the revision of grants-in-aid to unsuccess-
ful schools : the backward condition of education in Bihar ; normal
• schools for vernacular instruction : provision for additional Colleges
and high schools for Rajshahi, Rangpur, Ranchi and Chittagong
by private resources aided by Government : new medical schools'
at Dacca and Cuttack : instruction at m<idrasas : the selection of
text books' : encouragement of female education : foundation of
intermediate schools between those of the primary and middle
classes kc, kc.

In addition to all these matters of principle and detail of educa-
tion under the department. Sir R. Temple examined carefully
the question of the education of children of poor Europeans and
East Indians in Calcutta and the tnu/assal. Assistance wa» freely
given on the grant-in-aid system, both to the formation of
new schools and to the development of previously existing institu-
tions. Sir R. Temple believed that these classes enjoyed fully
as large a share of Government aid towards the education of
their children as the State could reasonably be expected to give for
this object. It was no doubt true that much remained to be done.
An educational census of European and East Indian families in
Calcutta and the suburbs, with incomes not exceeding Rs.3oo/-a
month, which was taken in September 1876 by the Commissioner
of Police, showed that between 800 to 900 children belonging to
this class of society were being allowed to grow up in ignorance.
But it was the opinion of the best authorities that there was school-
accommodation in Calcutta sufficient for the requirements of all,
and that, if children were untaught, it was because their parents

628 BENGAL UNDER THE LIEUTBNANT-OOVERNORS.

were unwilling or unable to send them to school. Sir R.
Temple gave such assistance as it was in his power to grant, and
left what was still wanting to be supplied by those agencies to which
he had already appealed — the societies interested in education, the
clergy of the several denominations, and the benevolence of the
general European community. As regards education in the interior
of the country, schemes were considered for reorganizing and
enlarging the schools at Cuttack, Hooghly and Jamalpur.

The Art Gallery has been mentioned in connection with techni-
cal education. Measures were taken by Sir R.
Temple to establish this Gallery in connection with
the School of Art. As an amateur painter for many years he enter-
ed into this project with much pleasure and conviction. He wrote, —
'' in such a place as Calcutta the establishment of an Art Gallery
must be interesting from any and every point of view. But the
Interest is heightened when the Gallery can be the means of daily
instruction; will become a lecture-room for classes of native
students ; may impart additional vigour to an institution designed
to elevate the taste, refine the skill and enlighten the ideas of the
native youth who are learning art as a means of livelihood ; and
may thus serve an important educational purpose.'' The object was
to obtain original pictures, if not too costly, or comparatively
inexpensive copies of pictures of merit in Europe. It was con-
templated to collect plan-drawings of great engineering works in
all parts of the world, as calculated to improve the minds of native
youth. Specimens of statuary and casts of antique works were to be
specially included. A site was found for the Art Gallery in Bow
Bazar and it was opened by Lord Northhrook, himself a connoisseur

■

in art and the owner of valuable pictures.

In one of his final Minutes Sir R. Temple, — having noticed
Proposal for a '^^ ^^^ Gazette of India that the Panjab University
■®^Sty Yn *' - College was to be raised to the status of an Uni-

Bengai. versity under the Government of the Panjab — made

a similar claim on behalf of Bengal in the interest of high education.
It seemed to him that the time had arrived for adopting this measure.
•The rapid advance which Bengal had made in the progress of high
education rendered it necessary that the course of studies at the
University should be adapted to that high standard, instead of being

SIR RICHARD TEMPLE. 629

regulated by the requirements of less advanced provinces, and
justice seemed to him to demand that Bengal should not be retarded
in the progress of high education, because other provinces were not
sufficiently advanced to pursue a course of studies for which the
educated mind of Bengal was ripe. Though the claim thus advanc-
ed met with no success, the principles on which it was based were
of abiding interest and the Minute may therefore be quoted. *The
circumstances of Bengal are in many respects widely different from
the circumstances of other provinces ; and it is most essential that
the Local Government should be able to adapt the Univer-
sity machinery to the growing requirements of the province.
The introduction and cultivation of practical science in the schools
and Colleges of Bengal is a subject to which I attach the greatest
importance ; but practical Science is not sufficiently recognized
by the University, and it is afmost needless to observe that no Science
which is not adequately recognized by the University can in the
schools be cultivated with success. At present the Lieutenant-
Governor of Bengal, beyond being a member of the Senate, has
not a potential voice in the management or direction of the one
highest educational institution of his provinee. The Governing
body of the University is appointed by the Government of India,
and not by the Government of Bengal. It comprises men of the
highest attainments in all sorts of subjects, and represents an
amount of learning, genius, and acquirements which justly excites
our national pride. It is regarded everywhere with the utmost
deference. I mean not the least disparagement to that eminent and
distinguished body when I say that they cannot be expected to
have that cognizance of the peculiar requirements of Bengal as
separate from the requirements of other provinces, which would
natdrally be possessed by a body chosen and selected from the
province, and feeling itself specially charged to direct the course
and foster the progress of education in Bengal. Under such a
body a closer union would arise between the University of Calcutta
and the Government of Bengal than at present exists. That a
closer union should exist is desirable for many reasons. Take, for
instance, the case oi legal education. The qualification for ad-
mission to the Bar of Bengal is the University degree of B. L. ;
but the standard of excellence required for this degree is not fixed

630 BBNQAL UNDER THE LIEUTENANT-GOVERNORS.

with reference to the standard of legal knowledge possessed by.
the Bar of Bengal, but with reference to the state of legal knowledge
in other provinces of the empire. In Bengal the Bar is much over-
crowded and it is possible that the standard for the B. L. degree,
though suited to other provinces, might with advantage be raised
for Bengal. But closely as the Government of Bengal is interested
in this question, it is a subject over which at present it can exercise,
neither directly nor indirectly^ any adequate control.

'' I will take only another instance. University degrees are for
the most part sought for as a means of obtaining Government
employ. In Bengal appointments in the Subordinate Executive
Service are offered to public competition, but these competitive
examinations are conducted, not by the University, but by a separate
body of examiners. Now, if a closer union existed between the
Government Bengal and the University of Calcutta, it would be
possible to dispense with these separate examinations; and,
what would then be far more perferable, an University degree,
or an University examination in certain, subjects, would then
be taken as the sole and necessary qualification for Government
employ.

" It is however unnecessary to enter into further details. The
short and simple ground upon which I ask that Bengal should have
an University of its own is this, that it is impossible that the edu-
cation of a particular province, which differs in its circumstances
from other provinces, can be properly cared for by a body which
does not consider itself specially charged with the cause of education
in Bengal, but which is equally bound to consider the requirements
of other provinces which have not attained that educational develop-
ment which Bengal has attained.

*' The territories under the Government of Madras and those
under the Government of Bombay have in each case an University
for their own. Whatever arguments exist for this arrangement there
might be adduced with even greater force in favor of a similar
arrangement in Bengal. Indeed, Bengal deserves to have an Univer-
sity of its own as much as any province in British India ; and I am
sure that, if this concession were to be made, k would give a new
impulse to high education.

" If this were to be conceded the existing University of Calcutta

SIR RICHARD TBlfPLK. 631

might still remain as an University for all India. This, however, is
a very interesting topic, on which I need not enter."

The matters in dispute between zamindars and raiyats, which

had assumed so great a prominence in 1873-73,
cuitim i^'ftgmrian became less noticeable under the shadow of the

larger questions connected with the famine of
1873-4. Things were siill unsettled, but there was
singularly little of agitation and complaint in the native press and
elsewhere. Probably a good many cases were after all privately
compromised. The public peace was not again at once glaringly
disturbed. The scene of the struggle was transferred to the Civil
Courts, and some of the points in dispute were gradually being settled
by leading and final decisions of the Courts. In the Pabna district,
a very large number of cases were instituted in the Munsif s Courts,
but there were no other outward .manifestations of ill-will between
the parties. The raiyais^ it was said^ found the registration of estates
and tenures under the Road Cess Act a very great protection, and
almost always secured themselves with a copy of their zamindars^
return as soon as it was filed, and refused to pay anything whatever
beyond the rental therein entered. The Act in consequence became
very popular among the cultivating classes. It was in the 'districts
of the Dacca Division that indications of the unsatisfactorv relations
between landlords and tenants mostly manifested themselves on the
question of rent. Early in January 1875 agrarian ti^ouble actually
began to occur in the eastern portion of the Dacca district. A
dispute regarding rent broke out between the zamindars and the
raiyais and threatened to lead to breaches of the peace. The Commis-
sioner was immediately instructed to warn all parties concerned of
the consequences of such a breach, and to invite them to settle their
differences by private arbitration.

Sir R. Temple examined the whole question in a series of
Minutes, from which the following extracts may be made : —

*' In parts of Eastern Bengal there seems to be a disposition
among the raiyais to combine in something like leagues and unions.
The object of such combinations may be various. If any success
were obtained by these means there is always a chance that the
ratals might begin to combine in refusing to pay rent, whereon the
zamindars .might try to collect by force. The consequences of a

632 BBNOAL UNDER THE LIEUTENANT-QOYERNORS.

combination with this object would be serious in the present state of
Bengal. It may be hoped that things will not, under any circum-
stances, come to this pass. Still we should guard against the possibi-
lity of such contingencies arising.

As yet no trouble has actually broken out since 1873, but as just
seen something of the kind was very nearly breaking out quite
recently, and despite our efforts may yet break out, and the appre-
hension of similar occurrences elsewhere in Bengal is, I believe,
present to many thoughtful minds. It may be therefore well to con-
sider what measures the local Government can take in the existing
state of the law for doing justice to both parties, and for preventing
agrarian trouble.

In such event it could take steps for causing the disputed
matters to be speedily determined by appointing additional Native
Judges, Munsifs and others, if necessary, under the supervision of
a special European Judge. It cou'd station extra police to maintain
order, and ensure that the judicial inquiries should be carried out
quietly. If the zamindars should attempt to act contrary to the
judicial awards, it could easily apply a remedy. If the ratyais should
refuse compliance with the judicial decisions, and if necessity arose
to execute decrees in large numbers, it could doubtless help in that
process. But beyond and above all the things abovementioned,
it could use its influence to jlrevent either party from resorting to
violence, and to induce them to submit to private arbitration.

These resources taken together are not inconsiderable ; and, if
we cannot get more or better resources, we must make the best of
them, and \vith them we must essay and strive to prevent agrarian
troubles in Bengal.' But in these resources there are, I think,, several
defects which might be easily remedied.

It will be seen presently that among the disputed cases the most
important class will relate to economic and agricultural questions,
with which civil Courts are not well fitted to deal. Yet the procedure
above described is entirely that of the ordinary civil Courts. Suits must
be formally brought before anything is done; the cases must be carried
through the regular stages; matters pertaining to the profits of cultiva-
tion, the value of produce, the customar)* rents, and the like, will be
argued out by opposing Counsel ; appeals may be laid, and decisions
can be enforced only by the formal process of execution. However

SIR RICHARD TBMPLB. 633

prompt the Courts might be, all these proceedings must take time ;
meanwhile excitement might be growing over the whole districts.
Moreover, the Courts could not well travel beyond the evidence
'adduced, and might not be able to enter upon economic considera-
tions, notwithstanding that such considerations might have an import-
ant bearing upon the cases.

That the main questions at issue are economic and agricultural
will be apparent thus. There will seldom be any serious dispute
between the tenants-at-will and the zamindars. The really serious
disputes arise between the zamindars and the raiyats having right of
occupancy — ^mainly men who have been i % years and upwards in
possession — ^ class who are constantly growing in numbers, and
representing larger and larger proportions of the aggregate of raiyats
and who probably are already the most important section of the
raiyats. In some places the zamindars apparently allege that these
occupancy raiyats are paying *very low rents, and consequently claim
some enhancement. The occupancy raiyats apparently allege that
they ought not to be required to pay more than the old-established
rates of their part of the country. If the zamindars persist in their
demands they cannot eject the occupancy raiyats^ but they can sue
them under section 18 of Act VIII (B. C.) of 1869, which I will here
quote in extenso .•— -

^ 18. — No raiyats having a right of Tkrcupancy shall be liable to an
enhancement of the rent previously paid by him, except on some one
of the following grounds, namely : —

'* That the rate of rent paid by such raiyats is below the prevailing
rate payable by the same class of raiyats for land of a similar descrip-
tion, and with similar advantages in the places adjacent .

" That the value of the produce, or the productive powers of the
land, have been increased otherwise than by the agency or at the
expense of the raiyats,

'^ That the quantity of laqd held by the raiyats has been proved by
measurement to be greater than the quantity for which rent has been
previously paid by him."

I do not enter into any question as to the fitness or otherwise
dt the Civil Courts to decide these matters in individual disputes
in times of quiet. I only say that the Courts cannot be so well fitted
as the land revenue officers to decide these matters affecting large
numbers of excitable people on both sides in times of disquiet In

634 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

these matters of urgency my desire is to obtain power by law to do
through the land revenue officers, that is, the Commissioners, the
Collectors, and the Deputy-Collectors under the supervision of the
Board of Revenue — that which in these cases is needful for the*
peace and good Government of the country, without proposing any
general change of the existing rent law.

By the present rent law (VIII (B.C.) of 1869,) the suits regard-
ing rent are heard by the Civil Courts. They used to be heard by
the land revenue authorities, but they were by this Act transferred
to the Civil Courts. Many authorities consider that this transfer
was not expedient. The zamindars (as I understand) generally
dislike the change that was then made, and would desire to see these
suits transferred to the revenue authorities. It is difficult to gauge
the opinion of the raiyats in regard to the transfer of these suits to
the Civil Courts ; I have.no evidence, however, that they dislike it.
I believe that the Civil Courts have done the work well according
to the existing law, and have at least endeavoured to do substantial
justice. Still, my own 'opinion inclines to be against the transfer
that was made in 1869. I apprehend that the speedy and judicious
decision of suits between landlord and tenant is very important
to the future tranquillity of Bengal, and that the land revenue autho-
rities are much better fitted than the Civil Courts can be to decide
these suits to the advantage of i)oth parties concerned. As, however,
the law was passed in 1869, I am not disposed to move for its
being essentially altered ; although, if the general wish should here-
after prove to be favourable to such alteration, I for 'one should not
be able to object to consider the question.

But I recommend that the Local Government should have the
power, upon good cause shown, of appointing the Collector or other
officer, to settle authoritatively disputes of the nature above des-
cribed, and to enforce awards. There need not be any power taken
to interfere unduly between landlord and tenant, but only when the
parties might apply for our interposition, and when such interposi-
tion might appear necessary for peace and good Government. There
would be no necessity for giving more power to the Collector in
fixing rents and rent-rates than that which is given by the existing
rent law to the Courts of Justice. There would be nothing of a
one-sided character in the matter. The zamifidars might make

SIR RICHARD TEMPLE. 635

application, so might the raiyats. Sometimes one of the 2 parties
might avail itself of this advantage, sometimes the other. The inter-
position need not extend beyond certain limits, and would be limited
'to matters of rent and its rates, and the measurement of land as
affecting such rents. Within the declared area of interference, and
during the period of its duration (all which would be determined by
the Local Government), the Collector would, after due inquiry and
after hearing both parties, fix the rates of rent according to the
circumstances, and with such guidance as the existing laws might
afford him, and decide suits ior rent, both current dues and arrears.
The Collector should also have the power of fixing the disputed
rents for a short term of years, so that there might be no chance of
need arising for again exercising interposition within a reasonable
period. The matters thus decided would not be open to revision
by the Civil Courts, but appeals would lie to the Commissioner and
to the Boa(d. It might be thought that the parties, zamindars and
raiyais^ or either party as the local Government might direct, might be
charged w^ith the expenses incurred by the State by these proceedings ;
I do not, however, recommend this. The Collectors and the Deputy

Collectors, in fact the existing establishment, would be able to do
the work, which would not be of constant occurrence. For these
objects I have prepared a draft Bill which I should be glad to intro-
duce into the local legislature of Qpngal. If this Bill, with such
modifications or improvements as might be made tluring its passage
through Council, should become law with the assent of the Governor-
General, then for all ordinary times and occasions the Acts (VIII
(B.C.) of 1869 and X of 1859) would remain in force as the rent
law of Bengal. The difference between the present and proposed
practice would be this that we should have the legal power, which
we have not now, of dealing effectively with agrarian troubles
through the agency of the land revenue authorities. It is only
by such agency that the occurrence of these troubles is or
can be prevented in Bengal. At present such prevention is
effected at the best in a precarious and uncertain way : perhaps
it may not always be effected. But, if the proposed Bill were
to become law, the land revenue authorities would have power
to prevent such trouble breaking out, and would be under
responsibility for such prevention, which responsibility they would,

636 BENGAL UNDER THE LIEUTENANT-QOVERNORS.

I believe, be able to discharge to the satisfaction of Govern-
ment.

The foregoing remarks are meant to apply to Bengal mainly :
they are however, equally applicable to Bihar. They apply, however,
in a less degree to Orissa, to the Chota Nagpur province, and to
Jalpaiguri and the Western Duars, to which territories the Act VIII
(B. C.) of 1869 was not extended, and where rent suits are tried by
the land revenue officers under Act X of 1859. In these districts the
Local Government has far better means of preventing agrarian trouble
than in Bengal and Bihar. Still its bands would be strengthened
even in Orissa and Chota Nagpur by the passing of the proposed
Bill. I would extend the measure to all the territories under the
Government of Bengal."

Sir R. Temple discussed the subject with many persons possess-
ing local knowledge, and in August 1875 recorded the following
conclusions : — ♦

I St. — ^that there are larger disputes pending between zamindars
and raiyais regarding the degree in which rent may be enchanced by
reason of the increase, during recent years, in the value of the pro-
duce of the land :

2nd. — that when these disputes become embittered, then, besides
the question of enhancement, other questions become involved, such
as the levy of * certain cesses, the payment of alleged arrears, the past
rates of rent, the area of actual holdings ; the end of all this being
that the payment of rent altogether in some places is likely to be
held in abeyance for some time :

3rd. — ^that, under such circumstances, zamindars have sometimes
attempted, or may attempt, to collect rents by force, which attempts
are forcibly resisted, the result being breaches of the peace :

4th. — that as yet there has been no serious nor general trouble
since the agrarian raiyats in the Pabna district in 1872-73 :

5th. — that this cessation is mainly due, however, to the action of
the executive authorities in repressing the tendency to disturbance ;
that nevertheless there is a risk of trouble breaking out, which might
spread to the districts of Dacca, Faridpur, Tippera and Backergunge ;
and that, if executive jnterposition were now withdrawn, such trouble
would soon break out :

6th.--that the particular disputes in the Dacca district, whi«h the

SIR RICHARD TEMPLK. 687

Commissioner^nd the Collector have been trying to settle by arbitra-
tion, are not yet settled, despite the exertions of those concerned fn
the settlement."

Meanwhile a Bill for the determination by the revenue authorities
of agrarian disputes was introduced into the Bengal Legislative
Council, its main object being for the revenue authorities to assume
the jurisdiction for the settlement of the questions at issue between
the parties, and for the ordinary action of the Civil Courts being
barred in such cases. While the Bill was in Council the Advocate-
General raised an objection to the effect that it would be ultra vires
for the Bengal Legislative Council to pass the measure, and that it
could only be passed by the Governor-General's Council. Sir
R. Temple accordingly had 2 Bills prepared : the first, the
major measure, conferring the full jurisdiction on the revenue
authorities and making the decisions of the Special Courts constitut-
ed by the Bill final and conclusive, ancl the second, the minor
measure, conferring on the local revenue authorities a provisional
jurisdiction, only subject to revision by the Civil Courts : i. e. giving
force to orders and adjudications of the Collector only until modified
in due. course of law. With the sanction of the Government, of
India the major measure was proceeded with. The Bill became Act
VI (B. C.) on the loth July 1876. Jt was intended to afford a speedy
and effectual means for the settlement of disputes regarding rent.
The cardinal point of the .\ct was that, upon the receipt of instruc-
tions from Government to inquire into any specified matters, the
Collector, and not the Civil Court, was empowered to try all suits
relating to a particular tract of country, of the nature of those speci-
fied in section 23 of Act X of 1859. It contained certain rules for
the determination of the rates of rent in enhancement suits to assist
the Collector in arriving at a correct conclusion. The Act was
to remain in force only for 3 years. On the passing of the Act Sir
R. Temple wrote : —

*' Now that the Act has passed, there will be no difficulty in taking
prompt and effective action, should any more disputes spring up.
Chi the one hand while the peace is absolutely kept by Magisterial
force, on the other hand the merits of the question involved will be
calmly investigated and authoritatively decided. As yet, however, no
more disputes have arisen, nor are there signs of any rising. It is
41

638 BENGAL UNDER THE UEUTENANT-QOVBBNOBS.

ver>' possible that the knowledge that this Act is on the statute-book,
and that there is ready at hand a power of bringing the whole
question to judgment, may deter the disputants on either side —
landlord or tenant — from provoking or challenging a final issue.
Perhaps each party is for the moment disposed to concede something
to the other rather than enter on a contest which will not be allowed
to drag its length from one Court to another, but will be imme-
diately investigated and will soon be brought to a complete and
final decision. Nothing fosters disputes so much as uncer-
tainty as to how or when a decision can be had. The Act may
therefore have a very sedative effect, although it has seldom to be put
in force. At all events, it arms the Government with full power to
prevent agrarian trouble and the importance of this can hardly be
overestimated. Under the agrarian and rural circumstances of the
country, moreover, the materials for such disputes are unfortunately
so abundant that many well-informed observers think that, notwith-
standing the outward calm which now prevails, there are questions
growing inwardly between landlords and tenants which must sooner
or later burst forth in the shape of extensive quarrels, unless some
rules more definite than any which now exist shall be framed for the
guidance of the authorities in the determination of rents."

Before the Bill giving power to deal with agrarian disturbances
was passed some anxiety was felt also in Bihar in respect of the
partial failure of the crops at the end of 1875, ^^^ demands for
arrears of rent and the question of tenant right. Sir R. Temple
was of opinion that in Bihar the exercise by the landlord of the
power of distraining the raiyais' crops was carried to a degree clear-
ly beyond the letter and spirit of the law, and beyond the actual prac-
tice in Bengal. He therefore caused the district officers to warn the
landlords from time to time, as opportunity arose, that the law of dis-
traint imposed conditions which could not be safely disregarded, even
though deviations might have, in the course of years, grown up into
a sort of usage in Bihar.

The relations between indigo planters and raiyais in Bihar

continued to cause anxiety to Government. From
tnaigo.

time to time, troublesome cases were reported.

Although there was no manifestation of widespread discontent in

regard jt.o indigo-planting, there were signs which required watching

8IK KICHAKD TfiMPLK. 639

in the shape of occasional complaints, disputes and affrays. The
Commissioner of the Division recommended that a formal Com-
mission should be appointed to investigate the whole matter like
that which sat in Bengal in i860. But Sir R. Temple declined
to accede to this recommendation, on the ground that it would
create a considerable disturbance, excite feelings which would not
readily subside, shake vested interests, place capital in jeopardy, and
bring proprietar}' status and occupancy rights into uncertainty for a
time. He preferred to trust to the existing law and its enforcement.
He refrained therefore from making general inquiries and issuing
general instructions which might be liable to be misunderstood and
to bring about the very disturbances they were intended to prevent.
He contented himself with warning the officers to deal very strictly
and firmly with each case that might come under their cognizance^
trusting to the example thus illustrated producing its unmistakeable
effect on the community, and reminding all concerned of the several
means which the laws already afforded for the administration of
justice — such as the recognition of the occupancy status ; the assump-
tion by the revenue authorities of jurisdiction for preventing agrarian
disturbStnces ; the limitation of the power of distraint ; the institution
of patwaris or village-accountants in Bihar, together with their village
records ; the quartering of police upon turbulent localities ; the pro-
tection of the cultivators against forcible compulsion and of the
planter against rioting.

In April 1876, Sir R. Temple formulated some definite pro-
im TOTement posals for the declaration of principles whereby

uw*for*dJtoTOina. ^^ '^"^ ^^ ^^ P**^^ '^^ ^^^ rji>(i/ to the zamindar
tionof rent. should be ascertained and determined. He wrote ; —

*' Our consideration may be narrowed to the occupancy raiya/s,
who have now become a very large section of the tenantry in Bengal ;
regarding the remainder, who have no occupancy rights and may be
called non-occupjincy raiyais, it does not seem to be anywhere alleged
that any alteration of the law is needed. By occupancy raiycUs are
meant those raiyais who, under. Act X of 1859 and Act VIH (B. C)
of 1 869, cannot be ejected so long as they pay a fair and equitable
rent, which rent, in event of dispute, can be determined only by a
Court of Justice.

" It may be well at the outset to call to remembrance that by

640 BBNOAL UND8R THB LIKUtBNAMT-GOVKRNORS.

•

section i8 of Act VIII of 1869 ^^ no raiyais having a right of occupancy
shall be liable to an enhancement of the rent previously paid by him,
except on some one of the following grounds (see above page 633).

" Now this section so far as it goes, is excellent. No man will
have his rent enhanced on account of improvements which he himself
has made. If he is holding land in excess of the quantity for which
he is paying rent, of course he is assessed to rent on the difference.
So also, if he is paying at rates less than those paid by his neigh-
bours under corresponding circumstances, he is justly liable to
enhancement Still, the section leaves untouched the deeper, the
broader question as to what, in reason and justice, ought to be the
prevailing rate for occupancy raiyais in any district or division of a
district ; nor is any test afforded in any part of the law for the
decision of this question. Yet this is the question which agitates
the thoughts both of zamindar and raiyai throughout the country.
All that can be gathered from the language of the law is that the
rent is to be fair and equitable ; but the question remains as to what
are the principles on which a fair and equitable rent is to be ascer-
tained and determined.

" Thus, though the law imposes on the Courts of Justice the res-
ponsibility of determining a fair and equitable rent in case of dispute, it
affords no specific rule, whereby such determination 6iay be arrived at."

His proposals were subsequently summarized thus : — ^* ist. —
that a Bill be introduced as supplementary to Ad VIII (B. C.) of
1 869, for the further laying down of principles whereby rents should
be decided between the land-lords and the occupancy ratvais^ as
defined by the Act ;

2nd. — ^that this supplementary legislation be confined to occu-
pancy raiyais (who now form a large portion, perhaps the majority
of raiyais)^ leaving non-occupancy raiyais, or tenants-at-will, to the
operation of the existing law.

3rd — that in cases of dispute the rent of the occupancy raiyai
should be fixed at rates less by at least 25 per cent than the rates
ordinarily paid by non-occupancy raiyais in the neighbourhood or in
the district.

4th. — ^that even more favourable rates should be allowed to old
occupancy raiyais who had (either of themselves or by those from
whom they inherited) held their lands 30 years and more.

SIR RICHARD TKIfFLS. 641

5tb. — that the ordinary rates payable by non-occupancy raiyais
should be ascertained by evidence in the usual way, but that, if from*
any cause this ascertainment should be found impracticable, then
the Collector should be directed to ascertain ; or, if he failed, then
the rent of a non-occupancy raxyat should be calculated at one-fifth
(20 per cent) of the value of the gross produce as the basis for
determining the rent of an occupancy raxyat the result of which
would be that an occupancy raiyafs rent, calculated on that basis,
and being at least 25 per cent less, would be 15 per cent of the value
of the gross produce."

After further considering the criticisms offered on the above
proposals, Sir R. Temple contemplated introducing a Bill, in
Continuation of, or supplementary to the existing rent law of Bengal,
Acts X of 1859 ^^^ ^11^ (B.C.) of 1869 to provide specifically for
the following matters : —

1st. — In cases where an occupancy ratya/ is liable to enhancement
of rent under section 18 of Act VIII (B. C.) of 1869, such enhance-
ment is either to be regulated by the principle that his rent should
be less than the ordinary rent of a non-occupancy raxyat by a certain
percentage from 20 to 25 per cent, or else be calculated on a
certain proportion of the value of the gross produce, from 15 to 25
per cent, provided always that no occupancy raivat shall be entitled
to claim under the foregoing rule any abatement from the rent which
he has heretofore paid.

2nd. — The definition of an occupancy raiyat as given in section
6 of Act VIII (B. C.) of 1868, to be somewhat extended so as to
include raiyais cultivating under other raiyais in certain classes of
cases.

3rd. — The right and interest of an occupancy raiyat to be rendered
liable to sale for default in paying rent, and also transferable by
private agreemenc.

4th — The process for realizing arrears of rent in undisputed
cases to be simplified by the Court or other deciding authority —
Collector or other — being empowered, on application from the
landlord, to issue a notice to the raxyaf requiring him either to pay
or to appear and show cause to the contrary ; in the event of the
raiyai neither paying nor appearing, the Court to order attachment
sale of the defaulter's property.

642 BENGAL UNDER THE LIEUTENANT-GOYERNORS.

5th. — The rents payable by tenure-KoIders or others possessing
'a permanent transferable interest in land, intermediate between the
proprietor of an estate and the raiyat — when not fixed by special
agreement or by the circumstances of the tenure — to be determined
according to a standard similar to that of the occupancy r^fV^/f, but
more favourable by 10 per cent.

On the question of enhancement,^he expressed his opinions as
follows : —

" Now, there are many persons who think that the best way is to
leave things alone — to let landlords and tenants fight it out, and that
the result probably would be that rents would remain absolutely
unchanged. The Lieutenant-Governor must say definitely that he
entirely dissents from that view. It is impossible to prevent cases
arising regarding enhancement of rent. That such enhancement of
rents should be possible is distinctly contemplated by the existing
law of Bengal, which lays down precise provisions with the view of
what shall happen when such a thing takes place. Therefore it is
too late to say that enhancement of rent should be out of the
question. Sir Richard Temple desires and hopes to see a contented
and prosperous peasantry, the raiyais having heritable tenures handed
-down from generation to generation with proper equitable rents
which cannot be enhanced, except by the decision of a Court of
Justice, and with full security of enjoying the fruits of their labour
and a full share of the general advantages which arise from a secure
and settled Government. But, on the other hand, it never was
contemplated that there should be no such thing as enhancement
of rent. However much it may be stated in the permanent settle-
ment that the rights of undertenures should be protected, it never
was asserted that there should be a special and perpetual sub-
settlement with iht raiyais. Nor was it ever suggested that the old
pargana rent-rates, though taken as a guide, should not be open to
alteration or to augmentation as time went on. What these pargana
rates ought to be was never settled. If the intention had been to
make such a settlement, the Government of the time would have
provided for^jit ; and it could only have been done by a regular
settlement of rents throughout the country. If the value of land is
to increase with the rise of prices and the improvement of produce, it
seems to follow that there must be a gradual, though moderate.

SIR RICHARD TBlfPLB. 643

augmentation of rent throughout the country from time to time —
enough to satisfy the demands of the landlord, while leaving a clear'
and liberal margin of profit to the raiya/.*'

A Bill was accordingly published on the 13th December 1876,
but Sir R. Temple left Bengal before it could be passed into
law. In his last Minute on the subject he advocated the early
passing of at least the procedure portion of the Bill, to enable the
Z'lidindars to realise rents admittedly due, without delay and expense,
(the more difficult and intricate question of the enhancement of rent
being postponed) : he thought the zamindars fairly entitled to ask for
a simple measure to facilitate the collection of rent. A Bill to
provide a more summary procedure for the recovery of arrears of
uncontested rent was referred by Sir A. Eden to the Government
of India for introduction into the Govemor-Generars Legislative
Council.

During his tour in India, His Royal Highness the Prince of

Wales spent several days in Calcutta at the end of
Royfti Highnewi 1 875 and beginning of 1876. From Madras he

the Prtnoe of 1 . . • r. . 1

Wniea to Came up the river m the Serapts^ and was met near

Calcutta.

Diamond Harbour by Sir R. Temple on the even-
ing of the a and December. The next day he landed at Prinsep's
ghai, was welcomed by the Viceroy, all the officials, Native Chiefs,
and the public, with every demonstration of loyalty, received an
address at the ghai from the City of Calcutta, and was conducted in
grand procession by the Ellenborough course, the road being lined
with troops and crowded with spectators, to Government House, as
the guest of the Viceroy (Lord Northbrook). A series of cere-
monies and festivities in honor of the Prince ensued, such as —
Addresses, State Banquets, a State Ball, reception^ of the principal
Chiefs and return visits, a Levee, a Ball at the Town Hall given by
European Society, a native entertainment at Belgachia, visits to
Barrackpore and Chandernagore and the Botanic Garden, Horse-races,
visits to Hospitals, Garden party and Dinner at Belvedere, inaugura-
tion of the Zoological Garden, Chapter of the Order of the Star of
India (the Prince acting as High Commissioner), the unveiling of
Lord Mayo's statue, a polo match between Calcutta and Manipuri
players, illuminations, fireworks, a State night at the Theatre (to see
Mr. Charles Mathews, the Comedian), native horsemdnship, investi-

644 BBNGAL UNDER THE LIEUTBNANT^QOYERNORS.

ture of the Prince with the Degree of 'Doctor in Law at the Unt*
versity of Calcutta, a visit to a native gentleman's house &c. &c.,
On Christmas Day the Prince attended Divine Service at the Cathedral.
All cutcherries and offices were closed throughout Bengal from the
23rd December to 3rd January ; on the latter date the Prince left
Calcutta, and was received the next morning at Bankipore by Sir
R. Temple, the local officers, the Railway Volunteers, and an escort
of Volunteer Cavalry. A levee was held, at a camp pitched on the
tnaidan there, when all the officials and non-officials, European and
Native, especially those who had distinguished themselves; in the
Famine, were presented to His Royal Highness. A breakfast given
by Sir R. Temple followed, at which loyal toasts were proposed.
After inspecting the gifts of the Bihar Maharajas and a procession
of nearly 400 elephants magnificently caparisoned, the Prince received
addresses and some presents of Indian work, and left for Benares
to continue his tour. On leaving Bombay in Xh^ Sirapts on the
13th March, His Royal Highness addressed a letter (which was
published) to Lord Northbrook expressing the sincere pleasure and
the deep interest with which he had visited this great and wonderful
country, his gratification at his reception, and his thanks for the
hospitalities tendered to him.

The death of the Lord Bishop of Calcutta, the Right Reverend
Robert Milman, d. d. at Rawalpindi in the Panjab,

Bishop Milman. "^ "'

on the 15th March 1876, was a painful shock to
all who had seen him lately in apparently good health. He had been
in Calcutta during the Prince of Wales' visit and had proceeded on
one of his episcopal tours. In the 8 years of his episcopate (he
succeeded Bishop Cotton in 1867) he had, by hard work and his
personal qualities, made his reputation, though he hardly rose to the
eminence attained by some of his predecessors. He had been
a working parish clergyman for 28 years before he became a Bishop.
He was bom in 1816, educated at Westminster and Oxford, or-
dained in 1839, Curate of Winwick for 2 years, Vicar of Chaddle-
worth for 10 years, of Lambourne for 1 1 years, and of Great Marlow
from 1862 to 1867 : always a worker of no common vigor and
earnestness. By far the larger portion of his time in India was spent
in visiting the various parts of his enormous and widespread diocese,
often under circumstances of great physical strain and mental

sift RICHARD TIHPLB. 645

ezeitioD. Humanly speaking his death was caused by the great
chr4nges of temperature ar.d exposure to wet and fatigue which he
went through after leaving Calcutta on his last tour. It was said that
within a year of his arrival he had preached intelligibly in the verna-
cular to a native congregation. As a public speaker he was always
welcome, as he had on such occasions scope for the free play of his
natural sense of humour. There were traditions about him (which
did not diminish his popularity) that as a young man he had been
interested in sport, and that in one of his parishes he had acquired
considerable knowledge of the points of a horse. His personal
geniality, kindness, and humour, were united with energy, earnestness,
unbounded liberality, " a generous temperament which never failed
him, '' imselfishness and single-mindedness, and such liberal views
that, " with none but noble aims, he inspired Natives, who were not
his co-religionists, with profound respect." He was altogether an
estimable and popular head of the Church and was ably assisted by
his sister in the hospitalities at the Palace. He belonged to the High
Church party. A Government Notification, after stating that the
intelligence of the Bishop's death had been received with the deep-
est regret, added, '^ The Governor-General in Council desires to
place on record the sense which he entertains of the late Bishop
Milman's indefatigable energy in the discharge of the high functions
of his office ; — of his charity and munificence ; — of his zeal in pro-
moting all good works — especially the education of the poorer
classes of Europeans in India — and of his broad and benevolent
sympatiiy with all classes of the community. The Bishop has
devoted his health and strength to the conscientious fulfilment of
his ordinary duties in ministering to the spiritual and temporal wel-
fare of his diocese ; and he has now died in the midst of his labours,
doubtless in consequence of them.

" The Governor-General in Council is sure that Bishop Milman's
untimely death will be felt as a personal loss, and that his memory
will be affectionately cherished by Her Majesty's subjects in India.*'

On the nth April 1876 a public meeting was held at the Town
Hall, the Viceroy (Lord Northbrook) presiding, to promote a fund
in memory of Bishop Milman ; when, on the motion of the Lieute-
nant-Governor (Sir R. Temple), a Resolution was carried " that, as
being the most useful injitself, and the main desire of the late Bishop

646 BBNGAL UNDKR THE LIEUTENilNT-GOVKBNORS.

•

Milman, there can be no fitter memorial than the establishment of

an additional Bishopric in Northern India/' The late Bishop

had been about to take leave to England for the purpose, among

others, of arranging for the establishment of a Bishopric at Lahore.

Sir George Campbell had expressed the opinion that the Calcutta

The caicutte Municipality should be radically reformed but had

Municipality. ^^^ jj^^ ^^ ^^^^ ^p ^j^^ project. The necessity of

consolidating the number of Acts, not always consistent with each
other, relating to the municipal affairs of Calcutta impressed itself
on Sir R. Temple. Accordingly, on the 2nd of January 1875,
a Bill was introduced into the Council by Sir Stuart Hogg to con-
solidate and amend the law. T)uring the passage of the Bill through
Council, the constitution of the Corporation was materially altered.
The old Corporation consisted (so Sir R. Temple wrote) " of
Justices of the Peace, 129 in number, partly official and partly non-
official, some being European gentlemen, the majority, however,
being Native gentlemen of rank and position. (The numbers were
elsewhere stated to be 98 Europeans, 46 Native gentlemen, and 9
of other nationalities, total 153). Notwithstanding the high character
borne by the Justices and the good services rendered by them during
many years, it was felt that the Corporation did not sufficiently
represent various classes in the community, who, by their growing
wealth, their improved education, their increasing claims to consider-
ation, were entitled to a definite voice in the management of the
city. I therefore deemed it my duty to propose to the local legisla-
ture a new Municipal constitution and a Corporation, to consist of
72 Commissioners, of whom two-thirds should be elected and
one-third appointed by Government. A.t the same time, a power
of control, considered necessary in the case of a new and untried
body, was reserved to the Government. The Commissioners were
still to have power to execute all the works necessary for the well-
being of the city, and to fix all the establishments, with the exception
of the Police, the strength of which was to be determined by the
Government, and to raise the necessary taxes. In the event,
however, of their failing to execute works of proved necessity for
the health and safety of the place, there was to be a power vested
in the Government, after inquiry duly and formally made, to cause
authoritatively the required proceedings to be taken. The sections

SIR llIOHAKP TEMPLE. 647

relating to control were not indeed new, but were mainly taken from
eiiher the Madras or Bombay Act.'' Various memorials having
been submitted objecting in some shape or other to the degree of
control reserved to Government when the Bill was before the
Council, the controlling sections were referred specially to a Select
Committee of the Council, who were empowered to hear the
arguments of learned Counsel or delegates on behalf of the
memorialists. This was accordingly done, and certain modifications
of the control proposed were accepted by Sir R. Temple and
embodied in the Bill. Various objections were still urged at
the passing of the Bill on the 25th of March 1876 by the Hon'ble
Kristo Das Pal, such as, for instance, that Government retained
too much power in its hands : but these were over- ruled. Apart
from the changes in the constitution, the Bill made considerable
improvements in the substantive Municipal law. It provided, for
instance, for the extension of the warter-supply, the raising of the
water-rate, and an increase in the lighting rate, and introduced the
hasii provisions, giving power to Government to appoint a Com-
mission and act upon its report in case the Corporation failed to
carry out the Act in respect of any block of huts which through their
insanitary conditions involved risk of disease to the inhabitants of
the neighbourhood. The town was divided into 18 wards, 6 of
them to return 2 and 12 to return 3 representatives each. When the
first elections were held, a considerable portion of the body of
qualified electors voted and a body of Commissioners was returned,
fairly representing the wealth and intelligence of the native com-
munity. Sir R. Temple wrote : — ** Among many classes there
was apathy respecting these proceedings. By some influential
sections of the educated classes an animated interest was felt. The
number of European gentlemen elected being small, I have appoint-
ed persons belonging to this important section of the community to
be Commissioners and have so endeavoured to make up the desired
proportion of Europeans at the Board of Commissioners."

The Bill became Act IV (B.C.) on the 6th April 1876. The
materia] improvements effected by the late Corporation of the Justices
during the 12 years of its existence were thus summarized, and will
give some idea of the measures which had combined to gain for
Calcutta a reputation among the natives as a * health-resort.'

648 BBNOAL UNDER THE LIBUTENANT-OOVERNORS.

" First in importance are the new drainage works. The complete
scheme provides for 39 miles of brick sewers and about 137 miles
of pipe sewers, and up to the end of 1875 ^^^ ^^^^ Corporation had
completed about 38 miles of brick and 37 miles of pipe sewers.
Those who know what the old drainage used to be, or who now see
what the drains are which yet remain to be taken in hand, can alone
appreciate the magnitude and significance of the improvement. The
mechanical power and appliances, whereby the vast volume of liquid
sewage is daily carried off to the Salt Lake, several miles distant,
are upon an imposing scale.

*' These works, so important to the health and convenience of
the inhabitants, have already cost 67 /akhs or rupees (say £^70,000)^
and it is estimated that a further sum of 22 lakhs (£ttOyOOo) will
be required to complete them.

. " Closely connected with the drainage works was the question
of a diffused and regular supply of pure water for drinking and
other purposes. When the Justices first assumed office, the supply
could be obtained only from tanks, of which the water was generally
impure, often deleterious, and never sufficic^nt in quantity. The
reform of the arrangements for supplying water was undertaken by
the Justices, who have, with the support and approval of Government,
provided Calcutta with a daily supply of 7,000,000 gallons of pure
filtered water, at a cost of about 62 lakhs of rupees (say ;^6 20,000).
On this supply (large though it was) being found insufficient, the
Justices at once devised and carried out a supplementary scheme,
by which about 1,500,000 gallons of unfiltered water is daily sup-
plied for street watering and conservancy purposes. This additional
scheme cost upwards of 2^ lakhs of rupees (£ 25,000)..

'' The lighting of the town by gas had been taken in hand before
the appointment of the Justices as a Municipal Corporation, but the
lighting under their administration has been greatly extended. There
are now about 105 miles of streets thus lit.

*' To the Justices also the city is indebted * for the establishment
of thoroughly clean and healthy slaughter-houses, and more espe-
cially for the construction of a really beautiful and commodious
market place for the European quarter of the place.

'' The sanitary arrangements of the Municipality have also received
the careful attention of the late Corporation, who at a considerable

SIR RICHARD TNMPLE. 649

cost constructed a line of nul about 1 1 miles in length for the daily
removal of the street sweepings. The ventilation and improvement
of the citj have also been greatly improved by the opening out of
some new streets of adequate breadth, by the widening 'of other
streets, and by the converting of neglected and insalubrious areas
into spacious squares, and gardens/'

It was in 1876, when Dr. A. J. Payne became Health Officer of
Calcutta, that, during his incumbency and at his instance, the first
real steps were taken towards the improvement of the sanitary
condition of the town. Calcutta it has been said, " is a remarkably
difficult administrative charge. In the first place, it lies on a dead
level, a feature that renders drainage and water-service matters of
the utmost expense and trouble. Then again it includes numerous
plots of land which are let out by their proprietors as sites for
collections of huts, huddled together regardless of sanitation and
with strong rights against municipal action. Finally, it is surrounded
by suburbs, which the Census showed to be increasing at a greater
rate than the City proper."

Sir G. Campbeirs endeavour to legislate in 1872 was vetoed, it
Mnfiu$(U Muni- ^^^^ ^ remembered, by Lord North brook, mainly
cipautiot. Qu jjjg grounds that the legislation proposed would

comprehend many classes of people not prepared for it and would
lead to a sensible increase of local taxation. In 1875 Sir R. Temple
undertook the task of consolidating the law relating to mufassal
Municipalities, which was contained in a number of Acts. The new
Bill aimed at avoiding the general objection taken to the measure
vetoed on the ground that its tendency would be to increase muni-
cipal taxation, and at adoptihg those taxes only which were familiar
and already in force in difiFerent places. As regards the principal
tax which would provide most of the funds in the Municipalities,
each was allowed to elect whether it would have a tax upon the value
of holdings, or a tax upon persons according to the circumstances
and property to be protected of those liable to be taxed. In regard
to other matters^ the Act of 1876 generally reproduced the existing
provisions of the law.

After his tour in Sikhim in the cold weather of 1873-74 Sir J. Edgar

stkhim Tibet Submitted a Report of great interest, full of informa-

tndo-nmte. y^n regarding that .country* The most important

650 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

subject which came immediately before Government was the question
of the best route for the development of commercial transactions
with Tibet from our territories. An opinion had been expressed that
the .line to be encouraged would be the route through Sikhim from
Darjeeling, in connection with the Northern Bengal Railway (then
being undertaken). While all attempts for the exploration of the
routes into Tibet from the Bhutan Duars and the Assam valley had
hitherto failed, and a passage through the Nepalese districts to the
west would have to be secured through foreign and semi-civilised
territory, Sir J. Edgar's personal experience confirmed the assurance
that a safe and practicable line of communication could be effected
in almost a direct course to the Tibetan frontier, passing through a
country in friendly relations and willing to afford assistance. Sir
R. Temple recommended that effect should be given to the
provisions of th^ treaty of 1861 with the Sikhim Raj which referred
to the construction of a road through its territory, and that the
suggested alignment of road should be professionally surveyed.
There were no trustworthy statistics of Tibet trade, but a large
expansion of exports from British territory was anticipated, especially
of piece goods and Darjeeling tea, and possibly of salt. Trade and
traders, it is said, were waiting for the opening of means of communi-
cation. '^ If to this can be added the hope that Her Majesty's repre-
sentative in Pekin could prevail upon the Imperial Cabinet to
discountenance the interference of its agents at Lhassa against the
admission of our goods and merchandise, nothing would be wanting
to ensure the most unlimited success.'* When the Government of
India asked for statistics of the existing trade and an estimate of the
cost of survey of a route to the Tibet frontier, it was calculated that
the total trade, including both imports and exports, amounted to
about 4i lakhs of rupees per annum, that the best route, to be made
by the district officer of Darjeeling passable for laden animals, would
be viil Pedong (37 miles from Darjeeling) to the Jeylap pass, 93 miles,
and on to Chumbi, and that the survey of the route would cost Rs. 5,000.
The Government of India approved the scheme for improving the
route, but allowed no grant from Imperial revenues. The construction
of a bridge over the Tista and the survey of the route were ordered,
but the improvement of the road was postponed for want of funds.
This trade route came into prominent notice a few years later.

SIR RICHARD TEMPLE. G51

During 1874-75, a number of memorials emanating fron Mission-
The BxciM ' ^^^^ ^"^ Temperance Societies and leading Natives
P^^^^y- regarding the operation of the Excise system in

Bengal, came before Government. The Board of Revenue JSir
Alonzo Money, k. c. m. g. c. b.) reported fully on the subject and
Sir R. Temple recorded his views at length on the Excise policy of
Government, as follows : —

'* They (the memorialists) may be sure that the Government
entirely agrees with them in thinking that any general excess in the
consumption of liquors, spirits, or drugs, is really a national evil ;
that, so far from encouraging its existence or its growth for the sake
of the revenue, the Government already does, and will willingly do,
everything in its power to impose a check, or to exercise repression
upon any excess, and that the efiForts of Government in this direction
are only limited by considerations of the practicability or otherwise
of attaining actual success in such repression. Whether or not in
former periods, separated by many years from the present time, the
excise laws, or the administration of them, may have indirectly led to
expansion of the consumption, it has been shown that no sudi effect
has been produced during recent years, and that, on the contrar}%
every endeavour is made to prevent any such effect arising. The
result of the fiscal regulations of Government now is to render
liquors, spirits and drugs dearer than they would otherwise be ;
to place some artificial restrictions on the productions and
sale of these articles ; and pro ianto to impose a check on con*
sumption. It is impossible to doubt that, but for these fiscal
regulations, the consumption would be greater than it is ; and that,
if the present system of taxation upon these articles, and the conse-
quent interference on the part of the State, were to be abandoned,
there would be an increase in the consumption. If it be an object
morally (as I quite admk it to be) to do all we properly can to prevent
the consumption exceeding reasonable limits, then that object is in
some degree effected by the fiscal interference, without which indeed
even this degree would not be attained. In making its arrangements,
the Government is not influenced by the desire of fiscal advantage,
nor b} the fear of fiscal laws. If any measure or proceeding of this
nature could be demonstrated to be capable of checking excessive
gonsumption, the Government would not be deterred from intro-

662 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

ducing it by the prospect of diminution in the revenue. If such
measure or proceeding should promise an enhancement of the
revenue, the Government would refrain from adopting it if there were
reason to fear that an excessive increase of consumption would be a
concomitant result.

But it must not be forgotten that, in making its arrangements, the
Government is never free from the question as to how far it is
possible to check the consumption. It is not possible to stop the
consumption altogether, nor even to attempt to check it in any very
great degree without introducing a fresh class of evils. Nothing
would be easier^ in the first instance, than to do all that is recom-
mended in the meniorials, to shut up public distilleries, to close
shops, to withhold licenses for production and vend, to pass prohi-
bitory regulations. But all this would utterly fail to stop or even
check manufacture. One main result would be that the manufacture,
which is now licensed and controlled, would continue, though illicit,
and would be without any really practical control. While, on the
other hand, new evils, namely inquisitorial proceedings on the part
of Government officials, and persistent evasion on the part of the
people— both circumstances directly conducing to demoralization —
would be introduced.

It is to be remembered that the materials from which liquors and
spirits are manufactured, namely, molasses, rice, and the flowers and
juice of certain trees, are articles produced in the greatest abundance
in the country, are most easily obtained, and yield liquor or spirits
by the cheapest and simplest processes within reach of the poorest
persons. If therefore any section or sections of a vast population
desire (as they certainly do desire^ to make liquor or spirits, it is not
in the power of the most highly organised Government to altogether
prevent them, without at least resorting to measures more injurious
even than excessive consumption.

The problem, therefore, is how to impose adequate restrictions
without offering a clear premium on smuggling and other illicit
practices ; how to frame the fiscal laws and rules in such a manner
that there shall not arise any undue temptation to infringe them.
The practicable solution of this problem has long occupied, and will
continue to occupy, the attention of the ablest fiscal officers in
Bengal. I will not venture to say that a perfect solution has been

SIE RICHARD TEHPLB. 653

yet arrived at ; but without repeating the description given by Mr.
Money of the several methods now in force, I will say that much
progress has been made, and that, if any ways can be seen for
further progress, they will be followed.

Similar remarks may be made regarding the drugs, opium, and
ganja. The opium, though not universally produced, is yet grown
over a very extensive area. If there were to be anything like prohi-
bition of the local consumption (and the memorialists seem to desire
something like prohibition), the temptation to illicit practices would
be so great that they would spring up to a degree beyond our power
of prevention. Already these practices do exist, even in the absence
of any special inducement, and frequently give rise to some anxiety.
From this we can imagine what they would become if such induce-
ment were virtually afforded by prohibition of local consumption.
The production of the particular sorts of ganja now in use is, no
doubt, much more limited. It has been considerably restricted of
late years. Whether any further restriction will be practicable is
a question under consideration.

Next I observe that there is some difference of opinion on the
question as to whether the consumption of spirits and drugs has
increased of late years absolutely or relatively. It appears that the
qt^stion is answered affirmatively or negatively, according as a longer
or 'a shorter period is taken for the purpose of comparison. On the
whole I Relieve that there has been no material increase whatever
wit-iin the>last 5 years, and that there is no tendency whatever
towards ffxcessive increase among the population as a whole.

I have said no " excessive increase,*' because it cannot be affirm-
el that there will be no increase either absolutely or relatively. It is
aii obvious fact that the population is growing in numbers : it is almost
certain that they will not diminish their average rate of consumption
per head : it is on the contrary probable that they will slightly aug-
ment the rate as their resources and prosperity increase. We may
suppose that some of the agricultural and labouring classes will,
while erecting better cottages, using better household utensils, wear-
ing better clothes, and eating a better ration, slightly add to their
consumption of liquor. If they do, they will not be acting different-
ly from other nations ; nor could such a consequence be deemed
unreasonable.

654 BENGAL UNDER THE LIEUTENANT -GOVEKNOkS.

But I cannot discover, either from the evidence in the possession
of Government, or from inquiries I have been able to make while
travelling about the country, that excessive consumption of drugs or
spirits is prevalent among the people as a whole. The best calcula-
tion that I can obtain seems to show that the people of these pro-
vinces do not drink more than a wine-glassful of spirits per head in
a year. It is difficult to imagine how as a people they could drink a
smaller quantity unless they abstained altogether. Any supposition
that they are becoming at all addicted to intemperance would be un-
just to them. Taken in the mass, they must be regarded as a sober,
quiet, and abstemious people. Neither has it been shown that crime
is in any part of these provinces attributable to intemperance. A
similar calculation as regards opium shows that the consumption
does not exceed one ounce per annum for 14 persons, which may
%e considered an extremely low average rate.

It is probable that a great part of the people never see spirits at
all. Among the lower classes; the only class who enhance their con-
sumption are the labourers who are congregated upon large works
and industries, belonging either to the State or to individuals or to
corporations. With these particular classes there is not as yet any
reason to apprehend excess, especially when the severity of their
toil is borne in mind.

But I fear that to this generally favourable descri|ition there is one
notable -exception to be made, and that relates to several sections of
the educated classes among the natives at the Presidency town
(Calcutta) and at other large centres of national life. ' With these
sections (which I trust are limited sections) intemperance appears to
be on the increase. This fact is derived not at ail from foreign or
hostile evidence, but from the testimony of the best-informed among
the natives themselves. Such a circumstance cannot but cause
sorrow and concern to the Government, inasmuch as these are the
very classes^ who are bound to us by many ties of common subjects
of study, a common vehicle of thought and expression, and common
examples of knowledge for imitation. Some measures in detail have
been proposed for counteracting this most sad and unfortunate
tendency ; but I cannot hope that any such will prove efficacious
unless the moral sense of these classes themselves shall restrain them
from intemperance, unless the weight of public opinion shall help to

Sm RICHARD TEMPLE. 655

enforce the necessary abstinence. I know that among the best-
educated sections of the native community many classes are still
proof against this miserable temptation. Having regard to the in-
tellectual industry which distinguishes the whole of these sections of
the people, to the desire to excel in mental pursuits and to win their
way in life, which animates them all; I cannot but hope that those
who ha^e yielded, or are inclined to yield to this temptation, will
eschew their dreadful error before it is too late, and will return to
the principles of that sobriety which is honorably characteristic of
their nation generally.

I apprehend that it is the contemplation of this intemperance
among a limited section of the people under their immediate obser-
vation which has induced the memorialists to generalize (as I think)
too much, and to fear that the extent of the evil is much wider than^
it really is."

The Missionaries also submitted memorials describing the evils

of intemperance among the Sonthals, and urging
u|»ug^ Government to adopt remedial measures. The

subject caused some anxiety to Government owing
to the^nature of the Sonthals, and the magnitude of the evil, cases
being hnown of whole villages being fopnd drunk for days together.
Much was done to check drinking and to lessen the facilities for
buying drink by reducing the country-spirit shops from 532 to 207
and the pachwai (ricebeer) shops from 113 to 35 in 3 years. Sir
R. Temple wrote : —

^ The fact remains that the drinking is not so much of country spirits,
nor of ptichwai beer sold at licensed shops, but chiefly of the home-brewed
ricebeer, called ^packwai " or " handiaJ* While the distillation of spirit
other than under regulation is strictly prohibited, which prohibition is
fully obeyed, the brewing of beer from rice for consumption at home, and
not for sale, is permitted without restriction, the permission dating so far
back as 1835. It is certain that the Sonthals drink very little of distilled
spirits or of ricebeer purchased at the licensed shops, but they do drink
very much of the homebrewed ricebeer at all seasons habitually, and at
some seasons to such an extent as to cause long-sustained inebriation
among the mass of the people for days, even for weeks, consecutively.

'^The Reverend Missionaries, in the main, recommend the entire pro-
hibition of the home-brewing of rice-beer. The Commissioner and the
local officers (with only one exception) earnestly deprecate this : they

656 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

doubt whether it could be enforced ; or, if it could, then they apprehend
that the enforcement would bring a fresh class of serious evils into exis-
tence. Looking, to the .present circumstances of Sonthalia, and to the
several administrative measures which are now being carried out there, I
am not at all prepared to announce or enforce any such general prohib -
tion. On the other hand, we m^ust not be content with expressing in
general terms a regret that such an evil should exist, and a hope, that it
may remedy itself during the progress of society. Something practical
must be attempted. I think that Government must make it clearly under-
stood, both by the local officers and by the people themselves, that this
excessive drinking of home-brewed rice-beer is a very serious evil which
must be remedied sooner or later. The other races of Bengal do not
indulge in this vice : neither can the Sonthals be allowed to do so. And
the Sonthals must be clearly made to comprehend this. Whatever may
be thought or said to the contrary, the Sonthals have a feeling of fear and
respect for the commands of the Government ; and the knowledge that
the Government is fully aware of the prevailing drunkenness, condemns
the evil, and purposes to mitigate or to prevent it, so far as possible, will
have some effect. But this is not enough. The Commissioner should
instruct the local officers to summon the various headmen of parganas^ of
circles of villages, and of villages, and to concert w^ith them measures for
restricting the excessive consumption of the rice-beer. These men must
well know that the Sonthals are the worse cultivators, the worse tenants,
the worse woodmsn, the worse traders, for all this^ inebriation ; and their
co-operation can, more or less, be reckoned upoli. They must be made
to set a good example, and they must understand that hard drinking will
be held to be a dis4tialif]cation for the office oif headman of any grade,
whether of a village or of a circle of villages. 1% is probable that in the
first instance the Sonthals will be induced to agree to some restriction or
diminution of the brewing and the consumption. Much will depend on
tact and management on the part of the local officers in obtaining such
agreement, and in ensuring its being acted upon to some extent. Full
reliance cannot, of course, be placed upon voluntary agrfsments in such
a case as this. And thereafter when the people shall have become accus-
tomed to a partial restriction carried out with their own co-operation, and
when their moral sense shall have been roused to its necessity, it mdy
become quite feasible to render the restriction authoritatively absolute.
When the way shall have been paved for it by degrees, the people may
hereafter be induced to accept it. Meanwhile the endeavours, made in
consultation and concert with the people themselves, wiU have practically
shown in detail the particular shape which the restriction should ultimately
take.**

8IE RICHARD TKMPLB. 657

For some time, before the question of their intemperance arose,

Doiurar of tiMir ^^^^ ^^ ^^'^ manifested various symptoms of
''**^- uneasiness and restlessness among the Sonthals.

Government was on the alert, as these people had risen more than
once before. The disaffection manifested itself by a spirit of resis^
tance to the payment of rent. A settlement was in progress between
the zamindarsy (chiefly Bengalis) and the raiyah (chiefly Sonthals), with
the object of securing reasonably low rents fixed for terms of years,
and to the zamindirs more punctual realization of their dues. K
sort of religious movement had been for some time perceptible
among the Sonthals and was increasing : they were leaving their abori-
ginal religion and joining Hinduism, hoping perhaps thereby to form
a kind of poliucal organisation. When the local authorities reported
that disturbances were threatening, additional police were deputed
to the Sonthal Parganas, and 2 companies of Native Infantry from
Bhagalpur were stationed at Naya Dumka. After these precautions
no attempts were made by the Sonthals to rise and the measures
adopted produced a sedative effect.

Sir R. Temple advocated the establishment of reformatories

for juvenile offenders, that is, for the detention of

Rcfonnatories.

young persons who were either criminal or were
growing up in ways which must lead to crime. He formulated the
principles on which such institutions should be based and proposed
to legislate in the Bengal Council for the purpose. Subsequently
the Government of India decided to legislate for the whole of India,
as the matter concerned all parts of India alike, and Act V of 1876
was passed. A reformatory was to be established at Calcutta, and
others were contemplated as funds permitted. " But," (Sir R.
Temple wrote) " the measure has been shorn of much of its useful-
ness by the restriction which confines it to persons actually in jail
under conviction for a particular crim&or offence. I had hoped to see
it extended to those young persons outside the jails who are homeless,
friendless, and uncared for, growing up in ways of vice and ignorance,
which must lead to crime. It would have been easy and in accord-
ance with the practice of civilized countries, to enact that the Magis-
trate should, in all cases, on proof rendered, have power to order
such persons to be placed in a reformatory. This course would be
consistent with the highest moral duties of the State, and would save

658 BEKQAL UNDBR THB LIKUTEMAMT-GOVBRNOBS.

the society from much harm. I trust that hereafter the legislature may
be induced to adopt it, especially if the experience of the present
reformatories shall prove satisfactory." A reformatory was opened
at Alipore on the 23rd March 1878 with 91 boys: and in 1882a
second reformatory was opened at Hazaribagh for the Divisions of
Qihar and Chota Nagpur.

Besides the legislation which has already been mentioned, several

important Acts were passed by the Bengal Council
under Sir R. Temple, to which brief allusion
may be made. The legislature was indeed unusually active. An
officer (Mr. H. L. Dampier) was for 2 cold-weather sessions placed
oh special duty in charge of legislation. Some' projects, of law,
after being launched and advanced to a certain extent, were abandon*
ed. Such were, for instance (i) a Bill to provide for the appointment
of Managers in joint undivided estates, with the object of relieving the
tenants from the trouble of separate collections of rent being made by
several sharers. This separate Bill was rendered unnecessary by some
provisions introduced into the Land Registration Act (2) A Bill to
amend the revenue Sale Law. (3) A Bill to amend the General Police
Act V of 1 86 1, so as to give legal effect to executive changes intro-
duced into the police force of late years : (such as the organisation of
the force, the powers of the Inspector-General and officers on the
one hand and the Divisional G>mmissioner and Magistrate on the
other) : (4) A Bill to prohibit the lev}' of illegal cesses in navigable
channels, high roads and market places. The project of consolidating
into one Code the enactments comprising the Land Revenue law of
Bengal appears never to liave advanced beyond a Minute of Sir R.
Temple and the memiorandum on which it was based.

Among the important Acts passed were an Act of 1875 to enable
Government to recover the sums due on account of loans advanced
by Government during the famine operations of 1874 — an Act of 1876
to provide for the voluntary registration of Muhammadan marriages
and divorces — a consolidating Irrigation Act — ^the Land Registration
Act of 1876 to provide for the registration of all lands, whether reve-
nue paying or revenue-free, and of the proprietors and managers there*
of, I. e., for the compulsory registration of proprietory and possessory
titles in landed estates, so that the persons in actuaF possesion and
responsible for the discharge of the duties of U^ndcd proprietors

SIR RICHARD TEMPLI. 659

might be known, as always contemplated by the old Bengal Regular
tions — and the consolidating Act of 1876 for the Partition of Estates
with a view to prevent estates being subdivided into too minute proper-
ties, unless under a redemption of the land revenue. This measure
(after having once been vetoed) eventually allowed partition to be
carried down to the limit of one rupee of revenue, with power to the
landholder to redeem, in case the land revenue after partition should
be less than one rupee.

About this time, in connection with legislation, the powers of the
Powers of the bengal Legislative Council came under considera-
Bengal couDciL ji^n, gy scctiou 42 of the Indian Councils Act,
1861, that Council could alter or repeal with certain exceptions any of
the Acts or Regulations of the Indian Legislature relating to Bengal
passed before that Act. And by section 43 of that Act, several
matters were specified on which the Bengal Council could not legis-
late without the previous consent of the Governor-General. Sir
R. Teinple wrote as follows : —

" In reference to this, however, it is to be observed that of late
years there has been a great work of consolidation going on in the
Legislative Council of the Governor-General, whereby the several
laws, relating to any one subject previous to 1861, are collected and
formed into one enactment, which is then, generally with some new
amendment, passed as a fresh law by the Council of the Governor-
General ; consequently the law upon that particular subject at once
passes beyond the power of the Legislative Council of Bengal. Year
after year one or more subjects will be coming under the process of
consolidation, until ultimately the greater part of the substantive law
of India will be found to have been re-enacted since the year 1861.
In making this remark, I do not in the least desire to object to the
principle of consolidating and amending the law, which is indeed an
excellent principle. I only mean to point out that this necessarily
curtails the functions of the local legislature of Bengal. Indeed the
time may come when the local Council will, from this cause, find
itself almost without any important work to do. There would, even
in that case, remain some purely local and municipal matters to be
dealt with by the Bengal legislature. But, upon most matters of real
Importance, the power of legislation will virtually have been assumed
by the je^^islatur^ of India.

660 BENGAL UNDER THE UBUTEN ANT-GOVERNORS.

Admitting the excellence of the principle that the general laws of
India should be consolidated, I quite perceive the difficulty of so
arranging that the local legislature may not be bereft of a great part
of its present functions. The only remedy which I can suggest is
this, that power should be allowed to the local legislature (of Bengal
or of other places as the case might be) to legislate upon general
matters which had been dealt with by the Council of the Gov-
ernor-General, provided that the sanction of the Governor-General
had been previously obtained,^ and subject also to the restrictions
already prescribed by section 43 of the Indian Councils Act. This
would be only an extension of the principle of the section 43. In this
manner no undue interference could be exercised by the local Coun-
cil ; its proceedings even as regards the introduction of measures
would be under complete check by the Governor-General, while on the
other hand, its usefulness, as now existing, would remain unimpaired."
Some years after, when a new Statute was passed, this suggestion
of Sir R. Temple's was adopted.

Early in 1 875, the question of amending the law relating to

CfTii AinKMUs and ^'^'^ Appeals in Bengal, which was before the
Appellate Bencbes. Legislative Couucil of the Governor-General, came
to Sir R. Temple, who dealt with it in one of his longest Minutes.
Certain defects in the existing state of the law of Civil Appeal
were generally admitted. Sir R. Temple wrote : —

^ There is at present a first or regular appeal to tribunals in the
fnufass€tl (that is the interior of the country as distinguished from the
Capital, Calcutta) on both law and facts. There is a second or special
appeal to the High Court at Calcutta, on law only. It is this special
appeal which is regarded on all sides as unsatisfactory— by suitors,
because they cannot properly contend upon what, in India, is generally a
most important point, the finding of the facts, which is at least as impor-
tant as the application of the law— by Judges, because they find them-
selves unable to do full justice to the merits of the case that are brought
before them. There can be no doubt that if there is a second appeal
at all (and all acknowledge that in many classes of cases there ought to
be such appeal to the High Court) it must be upon facts as well as upon
law. I need hardly stop to say more upon an argument which is incon-
trovertible, as there is so much yet to be said upon points which are opeq
to controversy.

BIB BICHARD TUCPLB* 661

^The only thing here to be added is, that the effect of opening an
appeal before the High Court on fiicts, as well as law, must tend to
augment the number of appeals cognisable by, and the amount of work
devolving on, that tribunaL

** In the next place, I believe, in common with many others, European
and Native, that there is already a want of finality in the decisions
passed by appellate Courts in the mufassaly that already there is a ten-
dency to bring not only all important cases, but also many cases of
comparatively small importance, before the High Court in Calcutta.
This want, and this tendency, must necessarily be aggravated by having
the second appeal before the High Court on facts as well as on law."

Sir R. Temple further dwelt on the arguments against the
concentration of Civil Appeals in Calcutta before so expensive a
tribunal as the High Court, and gave his opinion that they all
pointed to the expediency of establishing tribunals in the mufas-
sal for the lesser civil appeals, whose decisions should be final.
He summed up his proposals in the 4 following proposi-
tions :—

I. — that provisions be inserted in the Bill (for amending the law
of appeal in civil cases in Bengal) for the establishment of Appellate
Benches in the districts of the mu/assal or interior of the country,
such Benches to consist at least of a Judges, one a Covenanted
Civil Servant and the other a native officer : —

II. — that the present law, under which no second appeal is allow*
ed in cases of the Small Cause Court class when laid by a single
appellate Judge, or in rent suits in which there has arisen no question
of right to enhance or vary the rent, or- relating to the title of land,.
or some interest in it, and the present law of appeal in suits for
enhancement of rent, remain unaltered : —

HI. — that all appeals, other than those above described under
heading II, and the value of which does not exceed Rs» aoo, shall
be tried by the District Appellate Benches :^>

IV.— that where the Judges of such Appellate Bench are un-
animous, their judgment shall be final, provided that it shall be dis-
cretionary for the Bench^ at the request of either of the parties, to
state a case for the opinion of the High Court upon any question of
law, or equity, or usage having the force of law, or construction of
a written document affeaing the merits of the case ; and that, when
the Judges differ, the jud^o^ent of the Coqrt shall be the judgmept

662 BENGAL UNDKR THE UBUTENANT-OOVSRirORS.

of the Judge who concurs with the Court of first instance, provided
that a second or special appeal shall lie to the High Court.
' To carry out such, a scheme, Sir R. Temple proposed to con-
stitute the Appellate Benches in one]of 3 ways, either —

I. — Zilla or District Benches, consisting of the District Judge and
the Subordinate Judge of each District, with the same territorial
jurisdiction as was possessed by those officers :

II. — Eight Divisional Benches, in which the Judges would be
selected members, of the Covenanted Civil Service and selected
Native Judges^ with jurisdiction extending over a Division comprising
several districts, and with power to hear the said appeals from every
district within the Division :

or
.* III. — Eleven Divisional Benches, constituted as above, and with
the same finality as regards their decisions up to Rs. 200, but with

additional power of hearing appeals up to Rs. 5000 in value, with the
proviso that, in the cases above the value of Rs. 200, a second appeal
be allowed to the High Court.

The third of these alternatives was regarded by Sir Ri Temple
as probably more free from objection than any of the others ; and as
the one most calculated to obtain the concurrence of the Judicial
authorities.

He advocated the adoption ofjat least one of the alternatives. *' By
one or other of them the requisite limitation upon second appeals
would be imposed ; better hearing and deciding would be provided
for first appeals ; finality of appeal would be obtained nearer to the
homes of the people *, appellate tribunals would be established in the
interior of the country, more likely to command their confidence ;
the status, the dignity, the independence, the prospects of the native
judiciary would be raised; the Native Bar would be strengthened;
and the administration of Civil Justice generally would be brought
more into harmony with the circumstances and the requirements of the
provinces under the Government of ^Bengal.*'

The Lieutenant-Governor's proposal came in due course under
the consideration of the High Court. The Chief Justice (Sir Richard
Garth) preferred the third plan of 1 1 Appellate Benches, each to
consist o{ 2 Judges, one European and one Native, but he express-

SIR RICHARD TKMFUL 663

ed his doubts whether 1 1 Civilian Judges coufcl be found widi
sufficient experience and legal knowledge to perform the duties
efficiendy and to command the confidence of the public ; and he
suggested that some of the Judges should be selected from amongst
the members of the Ban To this criticism, Sir R* Temple re-
plied by naming individually more than a sufficient number of officers
qualified to preside over the 1 1 Appellate Benches, and pointed out
that the salary proposed for the appointments would not be high
enough to obtain the services of Barristers of sufficient status and
experience for the appointments, and that any Barrister so selected
would be wanting in acquaintance with the people and the language
of the country. The scheme was further considered after Sir R.
Temple had left Bengal, but eventually came to nothing.

The Economic Museum, which was established in Calcutta by Sir
j^^^^^^^^j^ G. Campbell, received Sir R. Temple's full support

ttajT'^partmrat ^^ objccts were the collection, identification, and
^!S^^ihidttt£iu classification of the economic products of Bengal,
sarrey. ^^|^ ^^ materials and manufactures ; the Commit-

tee of Management being further charged with the work of ascertain-
ing all that was already known regarding such products^ and digesting
and reducing the information into practicable form for circulation.
The Central Committee in Calcutta were to correspond with Local
Committees in each district. A very large number of specimens of
all classes of products were collected and scientifically arranged in the
Museum : the collection of - rice alone included more than 800
samples. In 1885-86 the Museum was removed from its old premises
in Hastings Street, to the buildings adjoining, the Imperial Museum
constructed for the Calcutta International Exhibition of 1883-84.
The Committee was eventually dissolved on the ist April 1887, after
making over, under a special Act of that year, to the Trustees of the
Indian Museum the collections under their charge, which were
grouped into 4 sections, viz., artware, economic, ethnologic, and
industrial. The Trustees subsequently transferred the charge of the
economic, ethnologic, and art sections to the Reporter on Economic
products, under their control.

Similarly Sir R. Temple developed his predecessor's scheme
for the collection of statistics of all kinds, but chiefly those In
connection with thc l^nd and irs^de. He proposed therefore t^e

' ,66.4 BENGAL UNPSR THS LI EUTEN ANT-GO YBItNORS.

formation of a special Staiistical Department in the Government
Secretariat, so ths^ the collection and exhibition of the general
statistics of the province might be undertaken by the Govern-
ment rather than by the Board of Revenue or any other autho-
rity. The Junior Secretary to Government (Mr. H. J. S. Cotton)
was for the time placed in charge of the department. A monthly
publication, named the Indian Economist, had been for some time
brought out under the supervision of Mr. Knight, the Assistant
Secretary, to which was added a supplement, named the Statistical
Reporter. The property in this paper was purchased by Government
a^d it was decided to discontinue the Indian Economist as an organ
of opinion on economic matters, but to keep up the Statistical Re-
porter as a Government publication, to bd published monthly and
contain all the Statistical information received by Government. It
was about this time that a proposal for an Industrial Survey of
India, originated by Dr. Forbes Watson, came under the con-
sideration of the Government of Bengal. The scheme contemplated
a complete survey of the production, and consumption of Inliaa
wealth, with a full description and classification of collected speci-
mens of every product and of the machines and implements used.
It contemplated also the formation of Honorary Committees in each
district to be assisted by the local officers in collecting specimens
and transubmitting them to a Museum in London. The final result
of the scheme was to be the preparation and publication of a Dic-
tionary of Commerce for India, to be prepared in England to
illustrate the Museum to be established there. Sir R. Temple
regarded the scheipe as hardly practicable. He considered
that the desired results could be more successfully and satis-
factorily achieved by proper arrangements designed and perfected
in Bengal itself, than by an organisation however ably superintended
having its head and centre in England. He thought that the indus-
trial exploitation of India should be undertaken by the several
Provincial Governments and the administrations, subject of course
to higher authority, but that the n\anagement of such work should
be dealt with in detail by special departments under the Local Gov-
ernments. In other words, he considered the principal features of
Dr. Forbes Watson's project to be administrative matters within the
special province of Government and beyond the pale of such sm

SIR RICHARD TJ&MPLB. '^65

inquiry as an Industrial Survey resting upon atiy basis less sure than
that of Government. While expressing his willingness to co-operate
as far as possible with the scheme proposed he addressed himself
to the development of the Statistical Department and Economic
Museum in Bengal. The defective character of Agricultural statistics
in Bihar and North Bengal came prominently to notice in connec-
tion with an inquiry undertaken under the orders of Government,
after the famine of 1874, by Mr. (now Sir) A. P. MacDonnell into the
agricultural condidon and food-supply of those provinces, the results
of which were presented in an elaborate and valuable Report, with a
view to placing in clear relief the relations in each district between
the failure there and the consequent distress, in order that in future
Government might benefit by this experience in determining the
provision to be made for meeting distress. Sir R. Temple was
anxious to prosecute inquiries in selected areas in certain districts,
specially in Bihar, to obtain accurate agricultural statistics, but
financial exigencies did not admit of the proposal being sanctioned.
The want of agricultural statistics had arisen partly from the fact
that the revenue survey, when carried out, deliberately abandoned
any idea of displaying any interior details of cultivation and waste,
or of lands, [culturable or unculturable. Sir R. Temple wrote
that he could scarcely foresee the time when a cadastral sun*ey of
Bihar and North Bengal would be made, or when complete agri-
cultural statistics worthy of the name could be obtained. This was
written in 1876 and what seemed so improbable then was actually
undertaken in 1891, as will appear hereafter.

For some years the promotion and prospects of the meiAbers

of the Civil Service in' Bengal had been far from
i^SS^ffoS?* satisfactory. In the years 1861, 1862 and 1863, a
SSL? •"^u*?«'S veryjarge recruitment was made, with the result that
pS^**®*'"*'^® the Civil servants of subsequent years were some-
what lower in the scale of promotion than men of
preceding years and than they might reasonably have expected to be.
The complaint had been found by inquiry to be true in the N. W.
provinces and certain measures of relief were sanctioned, namely —
the grant to military officers in civil employ of certain pecuniary
inducements to retire : the grant to civil servants who had not com-
pleted 31 years* residence in India, but who had completed so years'

666 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

service or more, of a pension pro];>oitionate to the length of their
actual residence : the grant of personal allowances to any Civil
servants who might be shown to have suffered unduly and extraor-
dinarily from slowness of promotion : the possible formation of
additional districts in places where the district jurisdictions were
excessive in size.

Sir R. Temple examined the matter and came to the con-
clusion that the position of the Bengal section of the Service,
though not so unfavourable as that of the North-West, still
afforded valid grounds for alarm. He suggested the employment
of Bengal Civilians in Assam, the guarantee of a minimum salary
to all officers, and permission to senior officers to retire on a
graduated scale of pensions. At the same time, Sir R. Temple
recommended as an administrative improvement and public benefit,
irrespectively of the object of accelerating promotion in the Civil
Service, the formation of some additional districts in BengaL He
thought the following districts to be very large ; namely, the 34-
ParganaSj Nadia, Jessore, Midnapore, Mymensingh and Rangpur, and
proposed the redistribution of their areas. He proposed that there
should be 4 new districts, having their headquarters respectively
at Khulna, Kushtia, Contai, and Jamalpur (in Mymensingh) at a total
cost of a lakh and ten thousand rupees for salaries and establish-
ments, besides a lakh of rupees' for buildings. After some years
the district of Khulna was created. The admission of natives of
proved merit and experience to offices previously reserved for the Civil
Service having been determined upon. Sir R. Temple discussed the
subject in a Minute dated 5th June 1876, which may be quoted as
follows : —

^ The two main branches are of course the Judicial and the
Executive. It is not necessary to add much to -that which has so
frequently been urged regarding the suitableness and propriety of
appointing natives to the higher offices in the judicial branch.
Doubtless they are well qualified for this important kind of work,
and this naturally is the branch wherein their employment in the
higher capacities will first be extended ; in fact such employment
of them has already been tried, in some instances with a good degree
of success.

But believing the measure to be designed for ^dually giving to

SIR RICHARD TXMPLK. 667

thei natives a larger share than heretofore in the higher posts of the
administration of their native country, for placing them more and
more in positions of trust and responsibility, for elevating and
strengthening their character, mentally and morally, I desire to point
out the expediency — nay even the necessity — of appointing them to
some of the higher offices in the executive branch. The moral
effect upon the natives of the higher kinds of executive employ
would be greater even than that of the higher kinds of judicial
employ.

*^ When recommendations are made for restricting the measure
to the judicial branch, there seems to be some idea underlying this
view, to the effect that the judicial branch chiefly demands those
intellectual qualities in which natives excel, whereas the executive
branch demands qualities other than intellectual, such as energy,
decision, self-reliance, power of combination and organisation, of
managing men, and so on, and also physical activity, qualities which
are deemed to be as yet imperfectly developed in natives. Therefore
it seems to be thought preferable to refrain from placing natives in
the higher class of executive posts, which, according to this view,
had better be reserved for the present exclusively for Europeans.

'* But, if this be the case, it is a cogent reason for beginning to
appoint natives to the higher offices in the executive branch. For
certainly these qualities, other than* intellectual, are of the utmost
consequence to the well-being and progress of a nation. If our rule,
having been firmly consolidated, is to be made to guide the natives
on and on towards their highest good, these are the very qualities
that should be specially cultivated. And one notable way of culti-
vating them is to employ meritorious natives in those higher exe-
cutive capacities which will stimulate energy, enforce acUvity,
strengthen the will, brace the sense of responsibility, and educe
those moral forces which are summed up in the expression *' man-
hood." If In due course of time we do not succeed in calling forth
these qualities in the natives, there must be doubt whether our rule
succeeds morally and socially, however successful it may be mate-
rially and politically. And if it be the fact that such qualities need
further development in the natives, then in the discharge of the
responsibility which "we have assumed towards the people we surely
ought to do all that in us lies to supply the deficiency. If we dq

668 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

not altempt to do this, we shall be allowing a manifest imperfection
to exist in our arrangements for the practical training of the people.
The employment of the natives in the higher civil capacities is a
potent instrument in such training. And of the two parts of such
employment, namely, the executive and the judicial, the executive
is, for this purpose, the better.

" If it be said that natives ought not to be appointed to a higher
class of civil posts when it is doubtful whether they will succeed,
I should rejoin that if no such trial is made then certainly the
natives never will or can become fit : that the question cannot be
brought to a satisfactory issue until a trial is made ; that it is but
just to the natives to give them a chance : that their unfitness ought
not to be assumed until they have been tried and found wanting ;
and that all the reasons which justify the general measure under
consideration dictate that it should be applied to the executive as
well as to the judicial branch.

" The higher judicial posts to which natives should be appointed
are judgeships, and I have elsewhere explained the manner in which
this could be best arranged. The question remains as to what are
the higher executive posts to which natives could be appointed ?
These are none other than Magistrate-Collectorships or the charges
of districts. In our system the office of Magistrate-Collector or
District-Officer is the unit of responsibility ; it is the cardinal office
which is deemed to test a man's fitness for independent command,
and to call forth all those qualities which have just been described.
Already natives fill many executive posts, short of the chaise of a dis-
trict, with credit and advantage ; but they have never yet been appoint-
ed to the charge of districts. It appears to me that, if the measure
now ordered is to have a full trial, some selected natives ought to be
appointed to district charges, that is, to be Magistrate-Collectors or
District Officers. In no other way will their real worth be so well
tested as in this, and no other kind of appointment would be so effec-
tive as this for carrying out the policy now determined upon.

" In the first instance it would be expedient to choose some of the
smaller and easier districts, of which there are some few in these pro-
vinces, in which to appoint natives to be Magistrate-Collectors. And
it is to be borne in mind that in a district so chosen the subordinate
offices, generally filled by Europeans in other districts, must be filled

SIB RICPABD TEMPLE. 669

by natives, such offices as those of the Joint-Magistrate, the Assis-
tant, the District Superintendent of Police, the Civil Surgeon. Herein
there will be no difficulty, as qualified natives are available for all
these offices.

'* This Minute refers only to the principle of the matter. I do not
advocate any extensive -employment of natives either as Judges or as
Magistrate-Collectors. It would suffice at first to appoint one or two
in each branch. The further extension of the system would depend
on the success of the trial, and on the arrangements connected with
the constitution of the Covenanted Service,^ which should le
separately considered."

These suggestions were not acted upon by the Government ot
India, but conduced to the general settlement of the question in
1879.

In 1876 the Bengal vernacular newspapers teemed with references
,_. „ ,, to "the Fuller case," the case of an assault on a

*TlieFuii©ip

**^-* native servant resulting in his death, which had occur-

red in Upper India — and it has not been forgotten to this day. It
came before Lord Lytton soon after his arrival in India, and he
caused the following letter to be addressed from the Government of
India to the North Western Provinces Government. Though the
occurrence took place elsewhere, the order of Government greatly
affected Bengal, and may well be quoted here.

" The facts of the case are as follows : One Sunday morning, Mr.
Fuller, an English Pleader at Agra, was about to drive to Church with his
family. When the carriage was brought to the door, the syce failed to be
in attendance, but made his appearance when sent for. For this cause
Mr. Fuller struck the syce with his open hand on the head and face and
pulled him by the hair, so as to cause him to fall down. Mr. Fuller and
his family drove on to Church ; the syce got up, went into an adjoining
compound, and there died almost immediately.

*' The Joint Magistrate of Agra, before whom Mr. Fuller was placed
to take his trial, framed the indictment under section 323 of the Indian
Penal Code for " causing hurt to one Katwaroo, his syce ;" and it appear-
ed from the evidence of the Medical Officer who had conducted the post
mortem examination that the man had died from rupture of the spleen,
which very slight violence, either from a blow or a fall, would be sufficient
to cause, in consequence of the morbid enlargement of that organ. The
evidence in the case does not show any other assault ; at least the Joint

670 BENGAL UNDER THE LIBUTENANT-OOYERNORS.

Magistrate disbelieved (appaiently on good grounds) all that portion of
the evidence which referred to any other assault The Joint Magistrate
found Mr. Fuller guilty of " voluntarily causing what distinctly amounts
to hurt," and sentenced him to pay a fine of Rs. 30, or in default to under-
go 15 days simple imprisonment ; directing the amount of the fine to be
made over to the widow of the deceased. At the request of the Local
Government, the High Court expressed an opinion on the case, which
was to the effect that the sentence, though perhaps lighter than the High
Court would have been disposed to inflict under the circumstances, was
not specially open to objection.

"The Governor-General in Council cannot but regret that the High
Court should have considered that its duties and responsibilities in this
matter were adequately fulfilled by the expression of such an opinion.
He also regrets that the Local Government should have made no inquiry,
until directed to do so by the Government of India, into the circumstances
of a case so injurious to the honour of British rule, and so damaging to
the reputation of British justice in this country.

" The Governor-General in Council cannot doubt that the death of
Katwaroo was the direct result of the violence used towards him by Mr.
Fuller. He observes that the High Court assumes the connection bet-
ween the two events as being clear. Yet on reading Mr. feeds' judg-
ment he does not find that that gentleman ever considered the effect or
even the existence of this connection. Mr. Leeds did, indeed, consider
whether Mr. Fuller ought not to be subjected to a more serious charge,
but only because there was evidence given of further violence used by him,
which evidence Mr. Leeds rejected, on grounds which are here assumed
to have been sufficient. He seems, however, to have viewed an assault
resulting in the death of the injured man in just the same light as if it
had been attended by no such result.

"The class of misconduct out of which this crime has arisen is
believed to be dying out ; but the Governor-General in Council would
take this opportunity of expressing his abhorrence of the practice, in-
stances of which occasionally come to light, of European masters treating
their native servants m a manner in which they would not treat men of
their own race. This practice is all the more cowardly, because those
who are least able to retaliate injury or insult have the strongest claim
upon the forbearance and protection of their employers. But, bad as it
is from every point of view it is made worse by the fact, known to all
residents in India, that Asiatics are subject to internal disease which
often renders fatal to life even a slight external shock. The Governor*
General in Council considers that the habit of resorting to blows on
every trifling provocation should be visited by adequate legal penalties.

SIR RICHARD TEMPLE. 671

and that those who indulge it should reflect that they may be put in
jeopardy for a serious crime.

" The Governor-General in Council cannot say whether Mr. Fuller
would have been convicted of a more serious offence, such as that of
causing grievous hurt, or that of culpable homicide, had he been charged
with it. But this he can say with confidence that in consequence of
Mr. Fuller's illegal violence his servant died, and that it was the
plain duty of the Magistrate to have sent Mr. Fuller to trial for
the more serious offence ; a course which would not have prevent-
ed him from being punished (indeed he could thus have been more
adequately punished) for the lesser offence, if that alone had been
proved.

" But besides his error of judgment in trying this case himself, the
Governor-General in Council thinks that Mr. Leeds has evinced
a most inadequate sense of the magnitude of the offence of which
Mr. Fuller was found guilty. The offence was that of " voluntarily
causing hurt." That is an offence which varies infinitely in degree,
from one which is little more than nominal to one which is so
great that the Penal Code assigns to it the heavy punishment of
imprisonment for a year ami a fine of Rs. i,ooo. The amount of hurt
and the amount of provocation are material elements in determining the
sentence for such an offence. In Mr. Fuller's case, while the provoca-
tion was exceedingly small, the hurt was death. For this, Mr. Leeds,
while saying that he intends to inflict a punishment something more than
nominal, inflicts only a fine of Rs. 30. The Governor- General in Council
considers that, with reference either to the public interests, or to the
compensation due to Katwaroo's family from a person in Mr. Fuller's
position (and it does not appear from the papers that Mr. Fuller has
made any other compensation), such a sentence is wholly insufficient.
He considers that Mr. Leeds has treated the offence as 'a merely nominal
one, and has inflicted a merely nominal punishment ; and that to treat
such offences with practical impunity, is a very bad example and likely
rather to encourage than repress them.

" For these reasons, the Governor-General in Council views Mr.
Leeds' conduct in this case with grave dissatisfaction. He should be so
informed, and should be severely reprimanded for his great want of
judgment and judicial capacity. In the opinion of the Governor-General
in Council, Mr. Leeds should not be entrusted, even temporarily, with
the independent charge of a District, until he has given proof of better
judgment and a more correct appreciation of the duties and responsibi-
lities of Magisterial officers for at least a year,"

In 1876 also, there was much excitement in a station in Bengal

fi72 BENGAL UNDER THE LTEUTENANT-GOVfBRNORS.

with respect to the action of the Magistrate in certain municipal affairs
Removal of a *"^ Specially in the institution of criminal proceed-
jcagifltrate. i^gg against a Municipal Commissioner. Govern-

ment t^k what they considered adequate notice of the Magistrate's
conduct, but the Native Press became violently agitated on the
siibject and the British Indian Association addressed Government,
asking that further notice might be taken of the matter. The
Association expressed an opinion that the Magistrate's misconduct
had been imperfectly understood by Government and insufficiently
visited, and they went on to say that there had been a grave failure of
justice and a derogation from the high principles of our ordinary
administration. Sir R. Temple reviewed the situation in a Minute
which embodies principles of considerable interest : — *' I must
at the outset express my surprise that the Association should
have been betrayed into language so unmeasured and so uncalled for.
There has been no failure of justice whatever. On the contrary, much
care has been taken to mete out justice to both of the parties con-
cerned, and to set such an example as shall ensure a moderate and
cautious exercise by District Officers of the large and varied powers
entrusted to them. On the other hand, the Government has had to
avoid even the semblance of sacrificing its officers to a certain sort of
clamorous agitation which happens to have arisen in this case.

** Mr. was severely censured by the Government of Bengal —

istly, for marked discourtesy towards Babu in ordering him to

leave the Committee room on the occasion of a meeting of the
Municipal Commissioners ; 2ndly, for having issued a warrant for
his arrest, and for bringing him to trial on certain charges which
were not supported by evidence ; and 3rdly, for having passed orders
directing the Babu to see that the latrines were guarded, which orders
were so worded as to cause offence.

" On a careful review, then, of all the circumstances of the case,
I considered that the displeasure of the Government would be suffi-
ciently marked by depriving Mr. of his district, and that the

want of judgment and proper discretion which had been shown by

Mr. under somewhat exceptional and difficult circumstances did

not call for a heavier punishment. The punishment inflicted, it is to

be observed, moreover, was by no means a light one ; for Mr.

would have retained his acting appointment until his time arrived to be

SIR RiCHARl) TKMPLE. 673

confirmed, and by his reduction he has forfeited an acting allowance
of Rs 400/ p€r mensem, or about one-third of his total salary. The
charge of the district was given to him as a reward for service in the
famine. The loss of it entails a lowering of position coiftiderably
detrimental to the prospects of a rising officer, and cannot but be
felt by a junior civil servant, not only as a severe punishment, but
as a heavy blow. The British Indian Association seem to regard the
punishment as light or nominal, to represent that he was merely

transferred from to headquarters, that he was merely deprived of

an appointment which he could not under any circumstances have
lonf; retained, and so forth. All this is pure misapprehension. On
being summarily removed from his CoUectorship, he was ordered
to Calcutta until his services could be made use of. He was shortly

afterwards posted to , an undesirable district. In this part of

their representation, the Association show themselves to be ill-
informed or misinformed to a degree which is very unsatisfactory.

'* The statement made by the British Indian Association, that the
insufficient notice taken by the Government of conduct was tanta-
mount to a failure of justice, is apparently based on the assumption

that Mr. had no warrant whatever for his proceedings. In fact,

however, the Babu was by no means blameless, and fully deserved to
be visited by some notice from the Magistrate, though, of course, that
notice ought to have been taken in a proper and legal manner. The
real case, in my judgment, as regards the Babu was this. He had,
as a Municipal Commissioner, opposed strenuously certain measures
regarding public latrines. This opposition on his part was quite
legitimate, and he had a right to make it if so minded. But while
doing this he must have seen an excitement growing among the
townspeople which ended in acts of incendiarism. He may not have
at all intended that such consequences should follow ; he may have
regretted their existence. But he must have kno^^n the necessity of
preserving a temperate demeanour. Nevertheless, after a final and
conclusive meeting of the Municipal Commissioners, he allowed
himself to be drawn into a conversation with an excited crowd out-
side the Municipal building, after which the people proceeded to acts

of violence. The Magistrate, Mr. , was bound to investigate this

on hearing of it ; but, instead of making such investigation first and
taking evidence on oath, he at once arrested the Babu on a criminal

674 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

charge of using language to the crowd calculated to excite them to
violence. The charge broke down, because it was impossible to
prove what exact words the Babu had used. But that the Babu had
behaved very injudiciously there can be no doubt ; and, if he had
trouble and anxiety in defending himself from the public charges,
these were consequences which he had brought upon himself by his
own conduct.

Mr. 's fault was in this wise. He had cogent reasons for

instituting inquiry ; the Babu did deserve to be placed seriously on
his defence ; but he gravely erred in arresting under critical circum-
stances a Municipal Commissioner on a criminal charge witAout
having any sworn or recorded information. The Magistrate had
indeed pow^er by law to order the arrest, but he made a very injudi-
cious use of the power. The consequence was that he placed him-
self in the wrong, while affording, however erroneously, a semblance
of right to the other side. The trouble occasioned by the opposition
— ^the Municipal opposition — which he had received appears to have
irritated his mind and disturbed his judgment, rendering him too
hasty to prosecute. But essentially he acted in good faith ; indeed
there is no conceivable motive for his acting otherwise.

And as regards the orders to the • Babu to guard the latrines,
however injudiciously they may have been worded, still it is to be
remembered that the latrines were the points in danger ; some had
been fired and burnt and some had been threatened. When, there-
fore, special constables were enrolled (of which the Babu was one),
it was natural and necessary for the Magistrate to order them to
guard those quarters where the latrines were situated, though it was
also desirable that the orders should be so worded as to avoid
causing offence unnecessarily."

Sir R. Temple was proceeding in Noakhali on an ordinary
tour when he heard of the disaster which had
8tSi»S^l?oi'Se happened in the highly cultivated and thickly in-
fn"^ B«cke4uuge habited islands at the mouth of the Megna, known
^ ^ ' as the groups of Sandip, Haua, and Dakhin Shabaz-

pur, and on both the banks of that great river. He promptly visited
the points where it seemed probable that the worst stress of the
storm must have been felt He inspected a number of villages on
the islands and the banks of the river and had the precise mortality

SIR RICHARD TEMPLE. 675

in each house ascertained in his own presence on the spot. In esti-
mating the mortality, he was assisted by Mr. Beverley, late Inspector-
General of Registration, an officer of known statistical ability. The
estimate was prepared with all possible care. The conclusion arrived
at was that, in an area of some 3000 square miles, out of 1^62,000
persons suddenly thrown into danger, 215,000 must have perished.
" This of course is only an estimate ; the exact number cannot be
known yet awhile, perhaps never will be known. We found in some
villages 30 per cent of the inhabitants lost, in others 50 per cent, in
some even 70 per cent. The total seems very high ; I earnestly hope
that it may be found to exceed the truth, and that the facts may not
prove to be quite so dreadful. Still such is the estimate at present.
At the least there must hwe been a most shocking loss of human
life. And even the urgency of our duty towards the surviving cannot
drive from our minds the sorrow for so great a multitude of dead'\

Sir R. Temple described the occurrence and his visit to the
locality in picturesque Minutes, from which the following passages
may be extracted : —

" There was a severe cyclone in the Bay of Bengal on the night
of the 31st. October 1876. But it was not the wind which* proved so
destructive, though that was terribte enough. It was the storm wave,
seeping along to a height from 10 to 20 feet, according to different
localities ; in some places, where it met with any resistance, mounting
even higher than that.

In the evening the weather was somewhat windy and hazy, and
had been unusually hot, but the people retired to rest apprehending
nothing. Before 11 o'clock the wind suddenly freshened, and
about midnight there arose a cry of '^ the water is on us/' and a
great wave several feet high burst over the country. It was followed
by another wave, and again by a third, all 3 waves rushing rapidly
onwards, the air and wind being chilly cold. The people were
thus caught up before they had time even to climb on to their
roofs, and were lifted to the surface of the surging flood, together
with the beams and thatches of their cottages. But the homesteads
are surrounded by trees —palms, bamboos and a large thoi^y species.
The people were then borne by the water on to the tops and
branches of these trees. Those who were thus stopped were saved,
those who were not must have been swept away and were lost.

676 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

" The bodies of the lost were carried to considerable distances,
where they could not be identified. The corpses began to putrify
before the water cleared off the ground, so they were left unburied
in numbers all over the country. Weather-tossed sea-men in the
Bay of Bengal saw many corpses floated out from land with the
waves. Corpses were flung on to the sea-shore at Chittagong^ and
living persons were borne thither across an arm of the sea, clinging
to the roofs or beams of their own houses, as if upon rafts.

Most of the local native officials were drowned, — Deputy
Magistrates, Police Inspectors, Native Civil Judges, Notaries and
others. There were few resident landlords and few land-agents on
the spot. The villagers mostly consisted of cultivators with various
kinds and degrees of tenures, and of sub-proprietors— -a substantial
yeomanry in fact — and they were the richest peasantry in all
Bengal.

The loss* of cattle, cows and bullocks, was utterly disastrous.
Some part of the large herds of buffaloes was saved, these animals
being exfellent swimmers.

When the storm burst there was an abundant rice crop ripening
for the harvest — the well-known deltaic rice crop, which is much
beyond the needs of local consumption, -and affords quantities
(measured by thousands of tons annually) for exportation to distant
districts. A part was lost, that in which the plant had not advanced
beyond the stage of flowering, and a part was saved, that ifi which
the grain had formed or begun to form. That which is saved is now
amply sufficient for the population now on the land.

Since the first few hours of inevitable destruction, not a life, so
far as we can learn, had been lost from any preventible cause, nor
has any one been in extreme danger. Those who perished in that
fatal instant of time passed suddenly beyond aid ; but those who
then escaped are still sustained, or are sustaining themselves, sufii-
ciently well. The disaster, big though it be, has yet happened in the
midst of plenty and of rural wealth. All around the fated and \i*asted
area there are excellent crops and abundant stores. The local autho-
rities acted with the utmost energy in giving temporar}* succour to the
most distressed, in re-establishing social order, which had been
suddenly broken up by the universality of the disaster, and in restor-
ing public confidence. Those who have lost their agricultural wealth

SIR RICHARD T£MPLR. 677

have still some left, and doubtless possess considerable credit. Soon,
therefore, will boats come pouring in by the numerous channels and
creeks, from districts teeming with water-carriage ; soon will fresh
cattle be swum or ferried across the rivers from the over-stocked
districts of Eastern Bengal ; soon will the grain bazars be reopened,
and the rustic marts be filled with the surplus produce of neighbour-
ing tracts.

Fortunately cholera, although it has been sporadic all over
Backergunge, did not break out in this district with overwhelming
severity.

The above remarks refer more particularly to Noakhali proper, to
Hatia, and to the Backergunge district, but not so much to the San-
dip group of islands belonging to Noakhali. The inhabitants there,
instead of being scattered in little hamlets, are towards the centre
collected .into large villages well protected by trees and (what was
very important), having large tanks with high banks round them*
Consequently, although towards the shores of the islands the people
were swept off exactly in the manner I have described, yet towards
the middle they for the most part escaped, as the wave was not rela-
tively quite so high, and the trees were more efficiently protective,
apparently checking the rapidity of the wave and allowing the poor'
people a few minutes of time, during which they crowded on to the
banks of the tanks, and so kept their heads above water. On the
outer villages towards the shores the mortality was quite as sad as
anything that has been reported. In the inland villages it was for-
tunately less.

On the other hand, the storm waves here came from the south,
that is from seawards, and receding left the tanks and other drink-
ing water brackish (instead of being fresh, as was happily the case in
Hatia and in Backergunge), and caused the stagnant water, remaining
after the wave had passed, to be foetid. Thus cholera set in soon
after the first disaster. A little later there came a storm
of wind and rain (the ghost, as it is called, of the cyclone),
suddenly lowering the temperature of the atmosphere and sorely
chilling the houseless people. This fresh misfortune aggravated the
choleraic plague, and left the people in a state of deep depression.
It seemed as if the survivors of the cyclone wave would slowly perish
by pestilence. Every arrangement which forethought could suggest

678 BENGAL UNDER THE LIKUTENANT-GOVERNOKS.

has however been carried out by the local authorities. Native medical
officers with medicines have been stationed at appropriate places,
additional Native Doctors and Assistant Surgeons have been des-
patched from Calcutta, the Sanitary Commissioner was deputed to
the spot; still, notwithstanding all these exertions, the mortality from
cholera has been very great, and in some places was expected to
exceed the mortality from inundation.

'* It may be asked whether any protective means against such
calamities in future can be devised — any embankments or the like.
This question will be duly considered ; but at present I know not
how to devise such safeguard, nor have I seen anyone who can
suggest anything. The area to be protected would be too great
to be encompassed with protective works. If embankments became
breached in such a storm, they would afterwards do more harm than
good, for they would prevent or retard the running-off and the
subsidence of the waters. Perhaps the people might build perches
for themselves on platforms and the like ; but the trees which invari-
ably surround the homesteads serve this purpose admirably, and it is
to them that the survivors mainly owe their escape. Another means
of protection would be the construction of a large mound some 30
feet high in the midst of each village, to which the people might
fiy on emergency. ' But this could hardly be managed unless the
scattered hamlets should be much more concentrated into villages
than at present ; and it would involve a considerable change in the
mode of habitation, a change in which the people would probably
not acquiesce. They will, I fear, be found unwilling to undertake
troublesome and expensive precautions, seeing that these disasters,
though not unfrequent somewhere or other in a less severe form, do
not visit the same locality in such intensity save at long intervals of
time. Without specifying the exact date when the last event of such
gravity befell the delta of the Megna — one case of this kind
happened in 1822, — most people say that there has been nothing
like the recent cataclysm since the middle of the last century."

A special officer was deputed to inquire and report and the fullest
instructions were issued by Government for the relief of the suffer-
ing population. The Queen telegraphed through the Secretaiy of
State that she was ' deeply concerned at the appalling loss of life in
India.'

SIR RICHARD TEMPLK. 079

Subsequent inquiries showed that the actual loss of life by drown-
ing was fortunately not so great as at first estimated. The total
number who perished on that disastrous night, so far as the officers
of Government coula ascertain, was 98,945, of whom 2,901 belonged
to the district of Chittagong, 43,544 to Noakhali and 52,500 to
Backergunge. The terrible outbreak of cholera which followed did
not disappear till the end of January 1877. The deaths from cholera
were known to have reached the number of 37,662, and the actual
mortality was probably even greater. The total loss of life, directly
and indirectly attributable to the cyclone, must have amounted to
nearly 150,000 souls. The authorities exerted themselves to the
utmost to alleviate distress and to combat sickness. Charitable
relief was afforded where required, advances of money were given
to the distressed raiyais, the payment of the Government revenue on
some estates was suspended, and large additions were made to the
local medical staff. It was satisfactory to find that, notwithstanding
the appalling destruction of life aud property and the serious injury
done to the crops on the ground, the affected localities showed no
signs of permanent impoverishment. The people soon returned
to their accustomed avocations, trade and commerce resumed their
activity, and the resources of the districts proved sufficient not only
to supply the wants of their own population, but to export food in
large quantities to meet the demands of Madras..

The above pages will have shown that, when the Bengal-Bihar
famine of 1874 terminated, a number of important

Miscellaneoas.

administrative matters of which some account has
been given came before Sir R. Temple. Matters of less impor-
tance, to which also he devoted his personal attention, were
numerous, such as, the appointment of a Health Officer for the Port
of Calcutta, the establishment of a floating hospital, a navigation
canal between Calcutta and Eastern Bengal, the establishment of a
vernacular Medical School at Patna, ghatwali tenures in Bankura,
the establishment of authorized lodging houses (or hostels) for
students at Government Colleges and Higher English Schools, an
asylum in Calcutta for natives afflicted with incurable diseases,
scholarships for girls, codification of the Land Revenue law of
Bengal, revision of the Bengal Jail Code, Street tramways for Calcutta
to be established by private enterprise, &c. &c. With a view tQ

680 BENGAL UNDER THE LI ECTEN ANT-GOVERNORS.

encourage physical exercise and manliness in Bengal youths, he
held a gymnastic tournament (one of the first meetings of the kind in
the province), at Belvedere on the 7th January 1875, the competitions
being limited to Government institutions.

Some of the projects to which I have alluded were carried out, some
made no further advance, others contained the germs for future de-
velopment. The years 1875-76 were characterised by the personal
energy and activity, both physical and mental, of Sir R. Temple. Being
devoted to riding, he made a point of seeing everything with his own
eyes and discussing all questions on the spot with the best local
information available. He rarely omitted to take his ride, morning or
evening, whether in the plains or in the hills, and encouraged others
to maintain their health and consequent efficiency for the public
service. It was on one of these morning rides that he nearly lost
his life, as he* has himself described: — ''I narrowly escaped an
accident which exemplified the risks attending all horsemen on
Himalayan bridle-roads. Close to Darjeeling I was riding quickly
round a sharp comer on an Australian mare. Meeting an officer,
I took my right hand of! the rein to return his salute. At that
moment my mare got her hind feet over the precipitous side of the
roadway. I instantly slipped off to relieve her of weight, and tried
to hold her up, but in vain. She tore herself away from me and
fell — in a second or so I heard a crash — she had come upon the top
of a great tree that rose up from below. I obtained assistance and
extricated her from the tree. But she reached the shelving rocks at
its base and swerved before I could catch her. Then she went down
headlong till stopped by a sfump which staked her. We made a
sick-bed for her on the steep hillside and afforded medical treat-
ment. But she died, not so much from the stakewound as from
the nervous shock.'' Thus, he made considerable tours in Sikhim,
combining health with the investigation of important political
questions, the results of which were duly recorded. One of these
tours took him into the heart of Sikhim to the monasteries of Tassid-
ing, Pemiongchi and Sangachelling : another to the passes of the
Chola, Gnatuila, Yakla, and Jeylep, from Sikhim into Tibet : another
along the Nepal-Sikhim border to the snowline of Kinchinjunga.
And every part of the provinces was visited in turn, the horses
(Walers and Arabs) always being taken if possible. In July 1875

SIR RICHARD TniPLB. 681

he went by the Rhoias from Dhubri to Gauhati, and rode thence
up to Shillong to confer with Colonel R. H. Keatinge, v. c. the
Chief Commissioner. We rode the 60 miles down on a sultry day
in July ; one stout officer had a touch of sunstroke, but Sir R.
Temple did not suffer. Indeed his activity was so great, and his
movements were so constant that they M'ere the subject of general
comment, especially in the famine year, 1874. He has himself thus
reproduced these comments (Story of my Life, I. 250) : " European
society at Calcutta seemed disposed to take umbrage at mv constant
absence from the capital. Perhaps they did not adequately bear in
mind the permanent need, of saving life from famine, which had
called and kept me away. The feeling was cleverly reflected by
one of the comic newspapers of the day in Calcutta by a cartoon
representing my various modes of locomotion. First I was seated
in the observation car of a railway train, looking, out of window
in all four quarters. Then I was riding on a mule, winding my way
through packloads and transit-carts— next on an elephant, looking
quite cross at the slowness of the pace. Anon I was standing on
the deck of my State barge, going at full speed with the river's
current, then in a little launch pushing up into creeks and stream-
lets. Lastly I was galloping on horseback up to the great gatewav
of Belvedere Park, my own Government House, over which was a
large board attached, with the words " Belvedere to let." All this
must have been meant for satire, but, perhaps unintentionally, the
satirist was conveying the highest forms of compliment ; and my
hope was that I deserved it. When however, I had settled down for
a while at the capital, a cartoon of another sort *came out, amidst a
series of pictures then appearing of public men. I was in Court
dress standing before a mirror, evidently in some reverie relating to
Indian promotion. This time the caricaturist missed his aim, for
my ambition, such as it was, lay far away from India."

By the Act of Pariiament, 39 and 40 Vic. Cap 10 (" to enable
Atfiumpfeionof ^cr Most Gracious Majesty to make an addition

^Hw'SSiit:?** to the Royal Style and Titles appertaining to the
the Queen. Imperial Crown of the United Kingdom and its

Dependencies "), and by the Proclamation dated the 28th April 1876,
Her Majesty assumed the additional title of '' Empress of India".
Lord Lytton, by a Proclamation djvted the 1 8th August announced

682 BENGAL rNMR THE LIETJTINANT-GOVERNORS.

his intention " to hold at Delhi, on the ist day of January 1877, an
Imperial Assemblage for the purpose of proclaiming to the Queen's
subjects throughout India the gracious sentiments which have
induced Her Majesty to make to Her Sovereign Style and Titles an
addition specially intended to mark Her Majesty's interest in this
great Dependency of Her Crown, and Her Royal confidence in the
loyalty and aifection of the Princes and Peoples of India/' The
Delhi Assemblage was attended by Sir R. Temple as Lieutenant-
Governor, accompanied by a number of ladies and gentlemen and
leading native gentlemen of Bengal. The assumption of the Imperial
title was celebrated throughout Bengal on the ist January 1877 by
darbars held at the head-quarters of each of the Divisional Commis-
sioners. In Calcutta a darhar was held by the Commissioner of
the Presidency Division, for Calcutta and the 2^-Parganas, At the
head-quarters of every other district a darhar was held by the chief
civil authority. The ceremonies which were observed at the darbars
consisted of the reading of the Act of Parliament authorising an
addition to the Titles of Her Majesty, and of the Royal Proclamation,
in English and the^ vernacular, the delivery of an address by the
presiding officer, the distribution of certificates of honour to those
gentlemen who had distinguished themselves by assisting in the
administration of the district or who had otherwise rendered good
service to Government ; and, in those districts where troops were
stationed, they were paraded and fired salutes and a feu-de-joie. The
darbars were in most cases followed by fire-works, illuminations,
and other public rejoicings, and by the distribution of alms to the
poor. The sum of Rs. 40,000, granted by the Government in aid
of the public rejoicings on this occasion, was distributed among
Calcutta and a few of the chief towns, and was largely supplemented
by contributions from private individuals in other districts. At some
stations subscriptions were collected with a view to commemorate
the occasion in some permanent form. Under the orders of the
Government of India, 3,082 convicted prisoners in Bengal were
released on the ist January and partial remissions of their sentences
were granted to 5,862 more. Sixty four debtors were also released
from the civil jail on the same date, the Government taking upon
itself the responsibility of paying the claims for which they were
detained, amounting in all to Rs. 3.389. A certain number of

SIR RICHARD TBMPLB. 683

convicts undergoing sentences of transportation at Port Blsur and
other penal settlements were released. In all districts there was a
very commendable display of loyalty on the occasion of the procla-
mation of the Queen's new Title, and the gracious sentiments expressed
towards the people of India by Her Majesty were well received and
appreciated.

When Sir R. Temple attended the Imperial Assemblage at Delhi
he was, at the time, Governor-designate of Bombay.

Deputation to o /

Madnw rad The threatened famine in the Madras and Bombay

Bombay Eunliie.

Presidencies was causing great alarm to the Gov-
ernment .of India, especially with reference to the famine administra-
tion and the great expenditure in Madras under the Duke of
Buckingham's Government. Sir R. Temple was accordingly deputed
to those provinces by the Viceroy (Lord Lytton) by the following
Notification, issued at Delhi on the 5th. January : —

** His Excellency the Governor- General -in-Council, having had
the advantage of personal conference with the Governors of Madras
and Bombay regarding the condition of parts of their respective
Presidencies which are at present afflicted by scarcity, deems it expe-
dient that a high officer fully acquainted with the views of the
Government of India should visit those Presidencies for the purpose
of inspecting the distressed districts and communicating personally
with the two Governments regarding the measures which are being
carried out, and which will have to be carried out, for the relief of
distress, and of ofiFering for their consideration any suggestions he
may deem suitable. His Excellency in Council has accordingly
resolved to depute the Hon'ble Sir Richard Temple, Barty
K.C.S.I., Lieutenant-Governor of Bengal, on a special mission for
the above purpose. Sir Richard Temple will report his proceedings
from time to time to the Government of India in this Department.''

He made over charge of Bengal to the Hon'ble A. Eden
at the Allahabad Railway station on 8th January 1877 ^'^^
proceeded to the Deccan. Accompanied by Mr. (Sir) C. E,
Bernard, c.s.i., as Secretary, myself as Private Secretary, Major S,
Rivett-Camac, Dr. Robert HaiVey, Major (Sir) W. W. S, Bisset, he
spent the months, from January to the end of April, chiefly in Madras,
on this famine mission, and on its termination the Government of
India issued the following Notification, dated the 30th April 1877 •'—

684 BRKGAL UKDVR THK LIBUTENANT-GOVBRNOBfi.

" The HonTjlc Sir Richard Temple, Bart^ k. c. s. i. being about to
assume the' office of Governor of Bombay, to which he has been appointed
by Her Majesty, and being in consequence under the necessity of closing
the special mission on which he has been employed since the beginning
of January in the Presidencies of Madras and Bombay and in the
territories of His Highness the Maharaja of Mysore, His Excellency the
Viceroy and Governor-General in Council desires to give public expres-
sion to the high sense which the Government of India entertain of Sir
Richard Temple's services on this occasion.

' When in January last it was deemed expedient that a high officer
fully acquainted with the views of the Government of India should visit
the Presidencies of Madras and Bombay for the purpose of inspecting
the districts afflicted with scarcity, and communicating personally with
the two Governments regarding the measures which were being carried
out for the relief of distress, the choice of the Government of India at
once fell upon Sir Richard Temple as the officer whose experience, ability,
and energy pointed him out to be specially qualified for the duty. At
a considerable sacrifice of personal comfort and convenience, Sir Richard
Temple promptly responded to the call made upon him, and has con-
ducted his arduous and delicate mission with signal ability and success.

' The energy and devotion which have enabled him to undergo an
amount of physical exertion which few could have accomplished are not
more remarkable than the thoroughness of his inquiries and the judg-
ment and tact which have characterized his communications with the
Local Governments and their officers. To the Government of India Sir
Richard Temple has rendered invaluable assistance at this trying juncture,
in enabling it by his clear and lucid reports to appreciate the actual facts
of the situation ; and His Excellency in Council is persuaded that the
Government to which he was accredited must recognise the advantage of
his practical suggestions for the relief of distress and for promoting a
judicious economy in the heavy expenditure which is being necessarily
incurred.

. ^ The Governor-General in Council has no doubt that, if life and
health be spared to him' in the high office which he is about to assume.
Sir R. Temple will add fresh and important services to those which he
has already rendered to the State during his long and distinguished
career. In entering upon his new duties he carries with him the best
wishes of the Government of India."

A contemporary author wrote of him as follows : —

' Sir R. Temple succeeded to the Lieutenant-Governorship,

with the cordial goodwill of Lord Northbrook, whose,
rather than Sir George CampbelKs, famine officer,

SIR RICHARD TRMPLR. 685

•

or dictator, be had been. He was in robust health when he
took up the duties which his predecessor In ill health 'had let
fall. His career as an officer had been one of marked success ;
in particular, as Chief Commissioner of (he Central Provinces,
he hai shown qualities scarcely expected in him, for healing the
wounJs of war by developing and fostering arts of peace. That
he had a pDwerful pen, and an extraordinary amount of physical
eniurance, were spoken of as facts known to every one; and
he had a knowledge which Sir George Campbell did not possess,
of what is meant by the phrase " live and let live/' together
with a faculty of infusing a cheerful spirit into other men, while
carrying out his own ideas in cases of dispute. The Viceroy
and Sir George Campbell had appeared to clash from the firs%
The .Viceroy and Sir R. Temple agreed from the first, and
agreed to the end. In the relations of Sir R. Temple to his
officers and to Native India, there cannot be a doubt that the change
from Sir George Campbell was welcomed generally. The new
Lieutenant Governor did try to please. A noble project, worthy of
further reference, to create a Native Science Association had for
some years hung on the verge of success. Sir R. Temple
pushed it over the verge and it succeeded, or at all events lived.
Even his financial speeches, opposed as they justly were in much,
unpopular as they were in many points, exhibited a wonderfully facile
power in the mastery and arrangement of details. That he soon
forgot the opposition to him is perhaps a proof that he cared merely
for performing well the duties of the passing hour, whereas Sir
George Campbell would have proceeded on some hard and fost line
of principle which years would not have obliterated. When Sir
Richard left Bengal for Bombay the Native Press was, as far as 1
saw, all but unanimous in asserting that he had meant to rule justly
and well. His great qualifications were, good administrative ability,
cheerful spirits, an interest in other people, and a valuable power of
forgetting. He could be a veritable Lieutenant Governor without state,
and could maintain his dignity without perpetually insisting upon
it in bis intercourse with men of any rank.'

I was so intimately connected with Sir R. Temple both by mar-
riage and by office that I must refrain from adding comments of my
own. One remark pefhaps is permissible, that his Lieutenant-

44 -

686 BENGAL UNDER THB LIEUTENANT- GO VRRNOR».

Governorship was merely one episode of a public career of 49 .years,
and not the climax of his services to the state.

He had been made a Baronet in August 1876, after the Bengaj
Governor of famine of 1873-74 ; he succeeded Sir Philip Edmond

Bombay. Wodehouse, K. c. B., G. c. s. I. as Governor of Bom-

bay on 1st May 1877 : and was made a G. C. S. I. in January 1878.
Sir R. Temple is the only Lieutenant-Governor of Bengal

snUequcnt ^^^ ^^* ^^^^ ^'8^^ office in. India after holding the

airoor. Lieutenant-Govemorship substantively. His Gover-

norship of Bombay does not fall within the scope of this work.
The despatch of the Indian troops to Malta in 1878 af^d the Afghan
war were events of that period. He afforded great assistance to
the Candahar column, particularly by pushing on the railway to
Quetta. His statue was erected in Bombay by public subscription,
and unveiled by Lord Reay, who expressed a hope that the Civil
Service would in future boast many men equal to Sir R.
Temple in personal energy, unfailing industry, and versatility. He
suddenly returned home to England in March 1 880, in order to
accept the candidature offered to him by the Conservative party for
East Worcestershire, but was. defeated. He sat as a Conservative
in the House of Commons for - the Southern or Evesham Division
of Worcestershire from 1885 to 1892, and for the Kingston Division
of Surrey from 1892-5. He was for years a Member, for the City of
Tendon, of the I^itdon School Board, and was elected Vice-Chair-
man and Financial Member thereof from December 1885 to Easter
1894. He was President of the Social Science Congress at Hud-
dersfield.

He was the author of " India in 1880*': ** Men and Events of my
Time in India,*' in 1882 ; " Oriental Experiences," in 1883 J'* Cos-
mopolitan Essays,'* 1886 ; ^'Palestine Illustrated/' 1888 ; " Journals
kept in Hyderabad, Nepal, Sikhim and Kashmir;" Memoirs of
•*John Lawrence," in the series of " English Men of Action''; and
" James Thomason" in the " Rulers of India'* series : ** The Story of
my Life," 1896 : " Life in the House of Commons^ ' 1900, besides
separate articles on Indian subjects.

After his return to Europe Sir R. Temple maintained for
years the same activity of mind and body which had distinguished
him in India. Besides his labours in the House of Commons, he

SIR RICHARD TRMPLR. 087

found lime for other pursuits. He wrote the books above menlioned.
He travelled more in Europe, America, ^RXpt and Palestine than any
other Anglo-Indian ; and he took a prominent position in addressing
many scientific and religious Societies and Associations connected
with India and others, such as — the Royal Geographical Society,
the Church Missionary Society, the Society for the Propagation of the
Gospel, Chambers of Commerce, the British Association, the In-
stitute of Bankers, the Society of Arts, the Royal Institute of British
Architects, the United Service Institution, the Scottish Arboricultural
Society, Ac, &c, arid for several years was President of the East
India Association, and Chairman of the Board of Visitors of the
Cooper's Hill pjigineering College. He was granted Honorary
Degrees by the Universities of Oxford and Cambridge. A notice of
Sir R. Temple and his career appeared under the heading
'• Celebrities at home" in the JVor/d some years ago, which contained
the following passage : " Although he^has during nearly the whole
course of his life been placed in ^positions of great authority and
responsibility, it may be said that he has enjoyed the rare fortune
of never making an enemy, a fact which is undoubtedly due to his
unvarying sense of justice and to his kindness of heart.'*

On the 8th. of February 1896 he was sworn as a member of tlie
Privy Council, and retired from Parliamentary life.

He married, ist, in 1849, Charlotte Francis, (who died in 1855)
d. of B, Martindale Esq., of London (by whom he had 2 sons and
one daughter), and j 2nd, in 1 871, Mary Augusta, eldest daughter of
C. R. Lindsay Esqre., b. c. s. Judge of the Chief Court of the Panjab
(by whom he had 2 sons).

CHAPTER VII.

The Hon'blf. Sir ASHLEY EDEN, k. c. s. i.

1877-82.

After two Lieutenant-Governors from other provinces, the
appointment reverted to the Lower Bengal branch of the Civil Service,
the officer selected being one who had for years been among its most
prominent and able members. The Hon'ble Ashley Eden was the
third son of Robert John Eden, third Lord Auckland and Bishop of
Bath and Wells, and nephew of George Eden, Earl of Auckland,
Governor-General of India. He was born at Herlingfordbury in
Hertfordshire on 13th November 1831 : educated first at Rugby, and
then at Winchester until 1,849, ^^ which year he received a nomination
to the Indian Civil Service. He spent 1850 and 1851 at Haileybury,
but did not pass out (last of his term) until December 1851. He
reached India on the 29th May 1852 and was first posted as Assistant
Magistrate-Collector at Rajshahi, and had charge of the Subdivisions

of Nator, and of Aurangabad in the Murshidabad

FrcTioua CatMr.

district : was Assistant to the special Commissioner
for suppressing the Sonthal insurrection, 1855, Deputy Commissioner
Sonthal Parganas, 1856 : on medical leave to the Mauritius, and
exposed the wrongs of the Indian coolies there : Magistrate and Col-
lector of Barasat 1856, and Magistrate of Murshidabad; during the
Indian Mutiny he did much to check sympathy with the revolt in that
city : M'as Junior Secretary to the Board of Revenue, 1859 • Magistrate
and Collector and Salt Agent of Cuttack : Special Envoy to Sikhim
1 86 1, signed a treaty with the Raja, which secured protection to
travellers and free trade : 1862-71, Secretary to the Government of
Bengal and ix-officio Member of the Bengal Legislative Council : in
1863-64 Special envoy to Bhutan : (an account of this Mission has
been given in its proper place): on leave from May 1867 to
November 1868: in March 1871 Officiating Chief Commissioner
ot British Burma (being the first Civilian to hold that appointment) :
confirmed in 1873 : in 1874, C. S. 1. : in 1875, Officiating Member
of the Govemor-Generars Executive Council for 6 months:

■ THE HOS. SIR ASHLEY EDEN K. C.S.I.
Fi-oTii apholu^raphby Mbss't" Brairns & Shepherd.

SIR ASHLBT BDBK. ^89

Additional Member of the Governor-General's Legislative Council,
October 1875 to February 1876 : leave, February to December 1876 :
in January 1877 Officiating Lieutenant-Governor of Bengal, con-
firmed on I St May 1877 : K. C. S. L in 1878. On iiis retirement
from India he was appointed a Member of the Secretary of State's
Council in 1882.

When Lord Lawrence readied Calcutu in January 1864. lo tal;c
up ilie Viceroyalty, tlie Bhutan Mission under Sir A. Kden had started.
In a letter to Sir diaries Wood, tlien Secretary of State, the Viceroy
made some remarks on Sir A. Eden which may be reproduced here,
as showing the reputation he had already gained : '' When I first
arrived in Calcutta there was so much pressing matter that I gave no
heed to the Bhutan Mission. When I saw from Mr. Eden's notes
that he had met with difficulties and impediments I became a little
anxious, but I did not like to recall him. There was not sufficient
information to justify my doing so, and Beadon moreover thought
that it was too late, and that Eden had got too far on the road to be
recalled : I therefore did nothing, trusting that his savoir-faire and

judgment would bring him through It seems to me that it was

a mistake sending a Mission into the country at all ; for there. was no
proper authority with whom to negotiate. But it was a still greater
mistake for Et'en to go on, when he found that the *Rajas were un-
willing to receive liim. Perhaps, however, I am only wise after tlie
event ; and I do not wish to condemn Eden who, by all <iccounts, is a
very fine fellow." '

Before he became Lieutenant-Governor Sir A. Eden was thus

'haract r described in an Indian newspaper by an anony-
aketch. moys writer : ** The portraits of the Hon'ble

A. Eden in the Anglo-Indian Press convey the idea of an official
Ghoul of naturally malign proclivities, or of a bad-tempered
Indian Machiavel. The Native papers, on the other hand,
have uniformly held him "up as the undaunted champion of
their rights and claims, their chief protector against ' the* self-seeking
of the European adventurer.' The English public has not on the
whole, in Bengal at least, cherished towards him very friendly
feeKngs. He has been too frequently in opposition to great interests
to be much loved : and men will ascribe all evil to him who puts
their craft in danger, however closely he may follow ideas of duty,

090 BENGAL UND¥« THE LlEUTKNANT-GOVERNoRS.

false or true. Even those who had suffered nothing at his bands
regard him with suspicion as a clever and prejudiced official, whose
pen drops gall, and whose tongue cuts shrewdly, who came somehow
to grief in Bhutan, and is, therefore, presumably the author of every
.misfortune that has befallen the country since. Among his brother
officers there are many whom his sparkling abilities and social
geniality have made his friends ; and it is said no stauncher friend
than he could any man possess. But his inability to overlook an
inanity, forgive an injury, or endure a snob, — his reckless satire and
love of pungent antithesis, — have made him seem to many a very
guerilla, the Ishmael as it were of the Civil Service.

Impiger, iracundus, inexoralills, acer.
Jura negat sibi nata, nihil non arrogat armis.
There is not in the whole Indian Civil Service one who has been

■ - •

.more emphatically a public man, regarding whom more facts are
known or more lies told, or who has been the happy recipient ol
more rapid promotion."

It was also said of Sir A. Kden that, if Bengal had had to choose
a Lieutenant-Governor, he probably would have been its choice. .On
the otlier hand it may also be mentioned that the Viceroy had nomi-
nated for the vacancy his colleague in Council. Sir A. J. Arbuthnot,
K. c. s. I , (who was the second choice when Sir G. Campbell was
appointed), but high legal authority, in England h£|d pronounced him
to be ineligible, as he had retired from the Civil Service. Sir A.
Kden had attended the Delhi Imperial Assemblage as Chief Com-
missioner of British Burma, and took over charge of Bengal on the
8th January 1877 at Allahabad, as has been said above. His Private
Secretaries were Capt. H. Boileau, i. c. s. : Lt, Col. H. H. Siansfield:
and Mr. E. R. Henry, i. c. s., successively.

The Annual Administration Reports in Sir A. Eden's time were
not so interesting as those of his predecessors. He

The Annual • •.. i • i> • • ^i-

Adminutration deliberately reverted (o a more formal style. ** Of

late years there has been some tendency to depart

from the instructions of the Secretary of State and -Government of

India, and to give the Report a more or less discursive character. It
: (s uiiderstood that what the Local Government is really required to

famish is a concise record of the realized administrative facts of the
. year, mainly for proposes of official reference. Such a record is

SIR ASHLEY EDEN. . 6»i

dbviously not intended to be an argumentative vindication of the
policy of Government, or to be made a vehicle for the speculative
discussion of questions which have no immediate bearing upon the
actual occurrences of the year under report. Such discussions are apt
to raise hopes which may never be fulfilled, and are not unfrequenlly
quoted as pledges of a policy which Government may at a future time
find itself unable to carry out."

The year 1877 opened with the Imperial Assemblage at Delhi.
The loyal enthusiasm which the occasion evoked

Kvent8 of politi- , ^ , , . i. . j j ,

chI aigoificancc throughout the land was even then overclouded by

tkud the famine.

the shadow of the general calamity of famine which
shortly afterwards overspread the southern and western Presidencies.
The outbreak of war between Russia and Turkey appealed strongly
to the sympathies, both political and religious, of an important
section or the population. In Bengal, however, th^ effect of these
occurrences was less keenly and less directly felt than in other parts
of the Empire. In connection with the war between Russia and
Turkey, religious services were hdd in some of the .Calcutta
mosques, and subscriptions were raised to succour the sick and
wounded and the families of soldiers who might fall in the war ;
bat the movement hardly extended beyond the Presidency town, and
exfiited little interest among the^bulk of the Muhammadan population
in the eastern districts. The famine, which desolated the districts
of southern India, extended to only one corner of the provinces
under the Bengal Government, a tract of about 100 square miles
in the south-west bf Orlssa, near the Chilka lake. Throughout
this tract the harvests eiitirely failed, and & population of about
12,000 souls was reduced to a condition of the utmost destitution.
Relief was afforded by Government and from 'private charily ; local
public works were set on foot ; and, though there was much
unavoidable suffering, the worst extremities of famine were thus
averted.

One result of the famine in the south and west of India was to

Result of the Stimulate commercial activity in Bengal toim almost

famine. unprecedented extent. Large quantities of grain

were forwarded westward by the railway, still larger quantities were

sent by sea to the south. The charges for freight rose to an unusual

height ; the Port of Calcutta was crowded with vessels taking cargoes

692 BENGAL UNDKK THK LIElJTENANT-GOVKtlNOHS.

on board for Madras ; there were not enough " cargb-1 oats ' to piit
the rice on board, and the number of pilots to take the ships to
sea was insufficient. For several months all the appliances of the
Port were strained to the utmost to supply this unusual demand.
A Famine Relief Committee was organized, embracing all classes
of the community, and subscriptions to the amount of above
j[\ 2,000 were collected ami remitted to the distressed distiicts.
A separate appeal, made by the Chief Commissioner of Mysore.
Vas liberally responded to in the districts of Bihar, which had been
assisted 3 years previously in the time of their own need, and
a sum of about £ijZO0 was collected and forwarded to Mysore
from the Patna and Bhagalpur Divisions.

Under the orders of the Government of India, in connection with
the Imperial budget for 1877-78, the system of

Rxtenaion of the •

■jfttem of pro. . provincial finance received a further and a very

Tindal flnanoe. .

important development, arising out of the pressing
necessity of providing in prosperous times a substantial surplus
of income over expenditure, ip order to nieet famine charges and
to enable the Government to defray expenditure on all unremunera-
tive public works out of ordinar}' income, and not from borrowed
capital.

The decentralization scheme of 1870-71 had resulted both in
economy and improved administration. The growth of expenditure
had certainly been checked, and, in the few branches of revenue
that had been transferred, there had been a decided development
of income. The Government of India therefore considered that
the best way out of their financial difficulties lay in giving the Local
Governments a direct interest in the improvement of some of the
more important heads of revenue, securing at the same time to the
Imperial Government a share in the results that might be expected
to follow.

Accordingly, the revenues of the following departments, hitherto
under Imperial control, were surrendered to the Local Government
on condiyon of the payment of a fixed annual contribution to the
Imperial treasury : — excise ; stamps, with law and justice : and
portions of the customs, salt, marine, and miscellaneous receipts.
The contribution to be made in respect of excise was calculated
to as to secure an annual increment under that head of one lakh

SkR ASHLEY SDlfiN. 69S

bf rupees for the Imperial Government. Under stamps, and law
and justice, a| lakhs per annum were similarly demanded as the
normal gro\nh of that head. The contributions under the remaining
heads transferred were generally calculated on the basis of existing
receipts.

The opportunity was taken to make over to the Local Government
wiih fixed grants various branches of expenditure hitherto reserved
as Imperial. In fact, the Supreme Government retained under its
direct control only those grants which for some special reason ii
was undesirable to make over to provincial control.

The various departmental receipts were transferred to the
Government of Bengal for a fixed contribution in 1877-78 of
Rs. 1,91,07,000 and the charges were transferred with a fixed total
assignment of Rs. 1,34,70,000. Combining the previous Imperial
assignment with these figures, the result was an Imperial grant (for
1877-78)... of Rs.54,22,oco. The Government of India, however,
in concluding these arrangements, deducted Rs. 5,90,000 from the
previous Imperial grant of 1,10,59,000 as a lump retrenchment or
contribution from provincial resources. The net grant for 1877-78
therefore stood at Rs. 48,32,00a

In connection with the development of the system of provincial
finance it was resolved to render the I«ocal Government responsible
for the cost incurred, and to 1^ incurred in the future, on the
construction and management of extraordinary public works — that
is to say such public works as railways and works of irrigation — which
had been constructed with borrowed money and had not been paid
for out of the revenue of the year. The Provincial Public Works
Act, II (B. C) of 1877, was accordingly passed, and came into force
in June 1877, to provide for the levy of a cess for the construction,
charges, and maintenance of provincial public works. It was little
more than an application of the existing method of assessment and
valuation under the Road Cess Act to the new cess. It made the
Road Cess valuations the basis of a new additional assessment, the
proceeds of which would be devoted to the construction and main-
tenance of provincial public works. Tlie rate of the cess was to be
fixed by the Local Government from time to time for each district, but
Was not to exceed the rate of half an anna in the rupee of the annual
value of the lands in a district : and half of it was to be paid, as the

694 BKNGAL UNDEft THE LIBUTENANT-flOVERNORS.

road cess had previously been, by the raiyat and the other half by
the zamindar. The time and manner of making payments were to
be the same as under the Road Cess Act: Also,1n order further to
provide funds to meet the heavy expenditure which might at any time
be rendered necessary by relief measures in any province, it was
decided that Bengal should contribute for this purpose a sum, which
for the year 1878-79 was fixed at Rs. 21,15,000; and as it would
have been unfair to throw additional taxation on the agricultural
classes, who had to bear the burden of the local public works cess,
the furtHer sum required was directed to be raised from the commer-
cial and industrial classes by means of a license tax on trades,
dealings, and industries. This led to the -passing of Act I (B. C.)
of 1878, the Bengal License Act, which canje into force towards the
The Ben .d closc of February 1878. The Act provided for the

License Act. j^yy Qf ^ license fee on trades, dealings and indus-

tries throughout Bengal. No person whose annual earnings from his
trade, &c. were less than Rs. 100 was liable to the tax ; but, when his
earnings exceeded that sum, he was charged according to his means,
the -Collector determining the class in which he should be placed.
The fees varied from Rs. 500 to Re i. ; and if any person could show
that the fe<e levied upon him exceeded 2 per cent upon his annual
earnings from his trade or dealing he was entitled to have it reduced
to that of some lower class or grade. In the mufassal certain im-
portant and leading occupations formed the first class of the Schedule,
and pai.d a fee of Rs. 500 or Rs. 200, as the Collector might deter-
mine, subject always to the 2 per cent limitation. In the lower
classes no specification of callings was attempted, and the Collector
was left free to classify Uie applicants for licenses according to his
judgment of their means. The rates of fee in those classes were
Rs. 100, Rs. 50, Rs, 20, Rs. 5, Rs. 2, and Re. i. For Calcutta it
was thought better to adopt, with slight modifications, the schedule
of callings already in force under the Municipal Act, only raising the
rates of fee to correspond with the Schedule for the mufassal. The
tax was collected in Calcutta through the municipal agency, and
power was taken in the Act to make similar arrangements in any
mufassal Municipality. The proceeds of the tax were to be applied
''for the parpose of increasing the revenues available for defraying
expenditure incurred, or to be incurred, for the relief and prevention

SIR A8HLET EDKN. 6^5

of famine in Ihe territories administered by the Local Government,
or, if the Governor-General in Council so directs, in any other part
of British India/*

It gave rise to some discontent among the classes brought under
its operation : in fact, it was unpopular with all classes affected by it,
but one of the chief causes of its unpopularity was removed later by
the exemption of the assessees possessed of incomes below Rs. 250
per annum, who formed the great majority of the persons affected by
the measure, from the incidence of the tax, reducing the proceeds
of the tax from 27 to 17 /oMhs of rupees. In 1880 an Act was passed
under which the minimum assessable income was fixed at Rs. 500.

The result of this extension of the Provincial Services scheme
proved most satisfactory. The receipts under the chief heads of
revenue largely increased, while unnecessary expsnditure was cut
down, and the money thus saved was devoted to improving those
branches of the administration which most required an increased
outlay, to public works of general or local utility, to the advance
of education, the reform of prisons and other similar objects, which
had for some years past had to stand over for want of funds.

Having regard to the great increase of financial work involved
in this expansion of thedecentralizition system, and

llceoiiHtitutioii , . /• . 1 • 1 11*

of the to the great importance of watchmg and controlling

the provincial revenues and expenditure, Sir A.
Eden found it absolutely necessary to relieve the Judicial and
Revenue Secretaries, who were already fully worked, of all questions
connected with the finance, accounts, and taxation, and to place
these departments of the administration in the hands of a separate
Secretary, who should give his whole time to such subjects, and
should also take charge of the important work of supervising the
collection and collation of trade statistics — a duty which had pre-
viously been performed by the Junior Secretary. A Financial Secre-
tary and 'an additional Under-Secretary were appointed, the post of
Junior Secretary being abolished, and the salary of the Junior
Secretary to the Board of Revenue being at the same time reduced.
Thes6 proposals were sanctioned as an experimental measure and
subsequently confirmed. Excluding the Department of Public
Wotks, w.hich was not affected by these changes, there were thus
constituted 3 Secretaries to the Government of Bengal, in charge

*696 BEXCUL UNDER tH» LlfcUT^NANT-OOVERNOBS.

of the Judicial, the Revenue, and the Financial Departments respec-
tively. The Judicial and Revenue Secretaries were each assisted
by an Under-Secretary, and the Financial Secretary by an Assistant
Secretary. The appointment of Assistant Secretary was conferred on
a native gentleman.

The details of the scheme for the separation of the Civil Service

ill the Lower Provinces into the distinct branches

.**cpHratloii of

the Civil the Executive and the ludiLial. were finallv settled.

itorvice Into

j^dSIdbnuTchL ^"^ *^ "^^^ arranged that every Covenanted Civilian

should be called upon, between the tenth and the
twelfth year of his service, to elect the branch of the service to which
he desired to be attached, and that orders should be passed on his
choice by the Local Government. The Grovernment did not bind
itself to accept absolutely the choice made by each officer, but
reserved a power of decision, in view of the interests of the public
service and the qualifications of the officers concerned. But when an
officer had once been placed on the list of one branch of the service,
he was not to be transferred to the other branch without the previous
sanction of the Governor-General in Council. In applying these
prinqjples to the senior members of the service, it was ruled that
officers who had already been substantively promoted to District
Judgeships or to CoUectorships of the first grade should be considered
to have elected the judicial and the executive branches respectively.
Adding to these the officers to whom an election was offered, it
appeared that 92 officers had chosen the executive, and 59 the judicial,
line of the service. Of the whole number of appointments, 55
belonged to the executive and 39 to the judicial branch, while 24
appointments were open to members of either branch. These
appointments were exclusive of the Civilian Judgeships of the High
Court and of the Registrarship of the High Court on the appellate
side, these last appointments not being under the Government of
Bengal, but officers holding them would be understood to have
elected the judicial branch. Looking to the number of appointments
available to the two branches of the service respectively, the propor-
tion of officers who elected to serve in either line corresponded very
accurately with the number of appointments open to them.

With the view of providing a better judicial training for Cove-
nanted Civilians and especially for those who elected the judicial

SIB ASHtrr iei>BN. 697

branch of the service, the following proposals were submitted to the
f Government of India:—

(i) that all Covenanted Civilians should after 5 years* service
be vested with the powers of a Munsif, and that they should exercise
those powers in addition to the powers with which they were vested
as Magisterial and Revenue officers : (3) that all Covenanted Civilians
should be called on to elect between tlie executive and judicial
branches of the service after 9 years, instead of (as previously)
between the tenth and twelfth years of service ; (3) tliat officers?
electing the judicial branch should, on making their election, be
relieveHy as far as possible, of executive duties, and be vested with the
powers of a Subordinate Judge, and also with the power of hearing
criminal appeals from Magistrates of the second and third class.

The increase in the litigation of the country afforded ample
civil judicial work for Covenanted officers without any diminution
being made in the number of Munsifs or Subordinate Judges ; and
the adoption of these proposals was expected to improve the judicial
training of all Uncovenanted Civilians, and enable Government when
necessary to depute Civilians for the decision of rent suits to any
part of the country where agrarian disputes might be rife and where
the presence of a Covenanted officer might be of great service in
checking agitation.

In furtherance of this scheme, several Covenanted Civilians, whose
duties had hitherto been confined to executive and criminal judicial
work, were invested with powers as Civil Judges, and entrusted,
according to the length of their service, some with the functions of
a Subordinate Judge and others with those of a Munsif. The
scheme involved some preliminary difficulties in its introduction,
and some alteration of its original form was required before it could
be said to work satisfactorily.

The alleged injury caused to the junior members of the Cove-
Ratirementa of nanted Civil Service in Bengal by the stagnation of

cirUiaM. promotion arising from numerous admissions to the

service in the years 1861 to 1863 had for some time been under the
consideration of Government In March 1877, ^^^ Secretary of
State agreed to extend to the Lower Provinces of Bengal the con-
cession previously sanctioned for the Civilians of the North- Western
Provinces and to allow during 1877 any Civilian of 20 years' service,

698 BENGAL UNDER THE LIEUTENANT-OOVKRNORS.

who had not completed the full term of residence, to retire on a
pensidh bearing to ;{'i,ooo per annum the proportion which his
actual residence bore to 21 years, the full term required for full
pension. Officers who accepted this offer were also permitted,
under certain conditions, to receive the capital value of a portion of
their pensions. Eight Civilians applied to retire under these orders.
In 1877 t^^c question of lotteries came before Sir A. Eden,
as at that time a lottery annually held at Umballa
on the Derby had grown to considerable proportions,
and the Pan jab Government withdrew the prohibition against the
publication of advertisements of lotteries not authorized by Govern-
ment. The Commissioner of Police at Calcutta reported that
advertisements of lotteries and race-sweeps printed beyond the
limits of Lower Bengal were sent in large numbers to hotels and
places of public resort in Bengal, in contravention of Section 294 A
of the Penal Code, and that the proprietors of newspapers and
other periodicals in Bengal complained bitterly that their columns
were closed to notices and advertisements which were freely per-
mitted elsewhere. Sir A. Eden considered that the different
treatment of lotteries by the several Local Governments was exceed-
ingly unsatisfactory ; in Bengal the law was strictly enforced, while
in the Panjab and elsewhere it was habitually broken with impunity,
and newspapers were allowed to advertise and circulate proposals
directly opposed to the provisions of the Penal Code. He wrote
to the Government of India expressing his opinion that, if these
lotteries and race-sweeps were mischievous, they should- be put
down by law, instead of being allowed to develop themselves year
by year ; but that, if they were considered to be a harmless amuse-
ment, the prohibitory clause in the Penal Code should be repealed,
and lotteries should not be discouraged : he himself considered them
exceedingly mischievous. The Government of India concurred with
his opinion as to the mischievous character of the lotteries and race-
sweeps advertised, and believed that the mischief was year by year
assuming greater dimensions. As the intention of the law on the
subject was clear and as its provisions were intended to operate in one
province as much as in another, the Government of India considered
that the law should be uniformly enforced. Local (Governments
and Administrations were therefore requested to enforce the law

SIR ASHLEY RDRN. 699

after giving due notice thereof by publication of the orders of
Government in their several official Gazettes.

On the first January 1878 the Order of the Indian Empire was
mw r._j -.u instituted as an Order of Distinction. The Royal

The Order of the ^

Indian Empire. Warrant recited that there did not exist adequate
means of rewarding important and useful services rendered to HeiP
Majesty and to the Indian Empire, and thai, with a desire to com-
memorate the event of the proclamation of the Style and Title of
Empre.ss of India and her Indian Dominions, Her Majesty had resolv-
ed to institute a new Order of Decoration. A number of Councillors
were declared ex-officio and for life Companions and Members of the
Order. Fifty nominations to the order were at first made, and it was
ordered that in any successive year the nominations should not exceed
20, exclusive of ex-officio appointments. Sir A- Eden, as Lieutenant-
Governor, was appointed an ex-officio Companion, and several
gentlemen connected with Bengal " who by their services have
merited the Royal favour " were appointed to be Companions of
the Order.

In February 1887 (on the day of the celebration of Her Majesty's
Jubilee in Calcutta) a change was announced, in the constitution of
the Order of the Indian Empire, by Letters Patent, so as to enable.
Her Majesty " to reward a greater number of persons who by their
services, official or other, to Her Majesty's Indian Empire, .have
merited the Royal favour." It was henceforth to be styled " The
Most Eminent Order of the Indian Empire " : besides the Sovereign
and Grand Master, (and Extra and Honorary Members) there were to
be 50 Knight Commanders, and an unlimited number of Companions

•

of the Order, to have place and precedency next after the correspond-
ing classes of the most distinguished Order of Saint Michael and
Saint George : new Statutes were issued : several gentlemen connect-
ed with Bengal received the Royal Favour on this occasion. In June
of the same year a further change was made by the addition of a
higher class, viz., Knight Grand Commanders of the Order.

In May 1877 the Northern Bengal, Tirhut, Nalhati, and Calcutta
and South-Eastern State Railways were made over to

Rftilways— " t *■ 1 ^

the control of the Government of Bengal, in pur-
suance of the policy by which the Local Governments became respon-
sible to the Imperial Government for interest on the capital expended

700 BENGAL UNDBR THE LIEUTENANT-GOVKUNORS.

on reproductive works. The Northern-Bengal State Railway, running,
with only a break at the crossing of the Ganges from Porada on the
Eastern Bengal Railway to Jalpaiguri, was formally opened in January
1878. An extension from Jalpaiguri to Siliguri was opened in
November 1878. This Railway, through some of the richest districts
in Bengal, was expected to carry a heavy traffic in tobacco^ grain,
seeds, jute and tea. • The Tirhut Railway starting from the Barh
station of the East Indian Railway, with a short line to the south
bank of the Ganges, crossed the river by a steam ferry, and was
continued on the north bank, a distance of 53 miles, to MuzafTarpur
with a shorter-branch of 23 miles to Darbhanga.

In 1878-79 a Company for the purpose of constructing, maintain-
The i)ar)oeiiug ^ng and working a steam tramway between the ter*
steam mway. najjjus of the Northem-Bengal Slate Railway at
Siliguri and the station of Darjeeling was started*, with Government
aid, under a formal agreement between Mr. Franklin Prestage and
the Secretary of State. An Act was passed in Council to give the
Company the necessary powers to construct and maintain the
tramway Sec, It was hoped that the delay and difficulty previously
experienced in getting passengers and goods to and from Darjeeling
and the Northen Bengal State Railway terminus would be obviated by
the construction of the tramway, and also that the prosperity of the
hill stations of Darjeeling and Kurseong would be thereby rapidly
developed, and that the Northern Bengal State Railway would itself
feel the benefit of the increased traffic. The line was pushed on and
opened for traffic in 1880-81, and its name was subsequently changed
to ' The Darjeeling-Himalayan Railway.*

The development of railways in Bengal during the years 1874-83

The Railway, in ^'^^ ^^""^^ ^P*^' ^" *^74, there Were, excluding the
1881^2. guaranteed lines, 55 miles of Provincial Railways

open for traffic, with a capital outlay of Rs. 76,90,000. At the end of
the year 1881-82, 525 miles had been completed, with an outlay of
Rs. 40,500,000, while 309 miles, including 130 miles of the Bengal
Central Railway and 6 miles of theDeoghur Railway, were in course
of construction, 780 miles had been surveyed, probably to be com-
menced shortly, and 800 miles projected.

The following was the list of railways in Bengal, either completed,
in course of construction, under survey, or projected in 1881-82.

SIR ASHLEY EDBN. 701

Open for Traffic,

I. The Northern-Bengal State Railway.

II. The Kaunia* Dhuria and Mogul Hat light State Railway.

III. The Darjeeling-Himalayan Railway.

IV. The Tirhut State Railway.

V. The Patna-Gaya State Railway.
W, The Calcutta and South-Eastem State Railway.
VH. The Nalhati Stale Railway.

Under Construction,
I. The Calcutta and South-F.astern Railway extension to
Diamond Harbour.
II. The Tirhut Railway extensions to Beltia and Pipra Ghat.

III. The^'irhut Railway alternative line to Semuria (opposite

Mokameh).

IV. The Xonhern Bengal Railway extension to Dinajpur.

V. The Central Bengal Railway to Jessore and Khulna.
VI. The Deoghur Railway.

Sun^eyed or under Sun^ey,
I. The Northern Bengal Railway extension from Dinajpur

to Manihari, with a branch to Purnea and the Kosi.
II. The Tirhut Railway extention to Bullora on the Kosi.

III. Muzaffarpur-Hajipur branch.

IV. The Central Bengal Railway to Bhugwangola.
V. The Dacca and Mymensingh Railway.

VI. The Nagpur Railway.

Projected.
I. The Tirhut Railway extension to Sitamarhi.
II. The Daudkandi and Chittagong Railway.

III. The Railway from Comilla, north to Cachar and Assam.

IV. The Palamau, Daltonganj and Barun Railway.

V. The Railway to Bihar.

VI. The Baidyabati and Tarakeswar Railway.

VII. The Midnapore and Puri Railway.

VIII. The Kishenganj and Koiechandpur Railway.

IX. The Bhagalpur and Bausi Railway.-

X. The Burdwan and Katwa Railway.

XI. The Khairabad Branch Raihvav.

•

702 BENGAL UNDBR THK LIEUTENANT-GOVERNOKS.

In some of the districts 6f Northern Bihar, the relations between

Relations be- landlords aftd tenants were described as being by

*iSd te^ntota" no means cordial. The zamindars complained that

Northern Bihar. ^^^ , „j>a/j did not pay their rents, and that they

were unable to enforce decrees; while the raiyais complained of
illegal distraints, oppression, enhancements, and summary eject-
ments. There could be no doubt whatever that the combined
influence of zamindars and iiccadars had ground the raiyats of
some parts of Bihar down to a state of extreme depression and
misery. The majority of them probably, as a matter of fact,
possessed rights o\ occupancy, but, owing to change of plots, and
the subjection of the patwirxs to the zamindars^ they were unable
to produce legal proof of this. There were, however, signs that
the raiyats were beginning to understand better their legal rights.
They were beginning to pay their rents into Court in accordance with
the zamindars' returns under the Road Cess Act ; they were learning
to recognize and to resist illegal attempts at distraint ; they found
that the subdivisional and district officers were ready to listen to
them and advise them for their good, and they were beginning to
resort more freely to them for such advice. TJie tenants of small
proprietors, moreover, saw that in the great Darbhanga estate
the position of the cultivators was being improved, defioed, and
settled, and this encouraged them to demand more equal treatment
for themselves. The indigo-planters bad already intimated their
readiness to pay them better rates. There was, in fact, a general
stirring throughout the Division, which could not fail to have a good
effect ; and Government acknowledged its duties, to guide, foster,
and control the movement, through the local officers, assisted by the
better classes of planters and zamindars^ until the relgitions of all
parties were placed upon a just and equitable basis.

It was pointed out to the many intelligent and wealthy landholders
Indigo ctiitiva. '" Bihar that it was for them to consider whether
tion in Bih»r. jj ^^^ „qj j^ ^Jj^j^ advantage to meet this movement

half way and endeavour to establish permanent occupancy rights
and security of tenure on their estates, and to check at once the
system of treating the cultivators of the soil as mere squatters, liable
to eviction and to be rack-rented at the whim of the proprietor or
amla — a system which then existed in too many estates. Nothing

SIR ASHLET KDKN. 703

could tend, it \vzs said, so much to the prosperity of an estate as a
good, well-to-do, and contented tenantry, having a permanent interest
in the soil : and it was for the landholders to establish such a state
of things, before the growing discontent and increasing intelligence
of the people led to open rupture between zamtndart and raiyais.
The system of irregular distraint had been carried to great ex-
tremes in some parts of Bihar, and Sir A. Eden desired the
Commissioner to impress upon the] Collectors the necessity of
putting a stop to- this, continuously and gradually, confining the
zemindars to the procedure laid down by law. No doubt the con-
ditions under which the people of Bihar held their lands were in
some respects exceptional, and Sir A. Eden intimated his readiness
to consider, if necessary, exceptional legislation for this part of the
country in the matter of the collection of- rent.

With regard to the question of indigo cultivation in Bihar, Sir
A. Eden had occasion, soon after assuming charge of the
administration, to declare, in considering a proposal, which was
made the year before, for a Commission of inquiry into the system
of indigo planting, that, before taking any steps to regulate it by law,
he would await the result of the measures of reform which the
planters on his invitation themselves resolved to initiate. He de-
clared himself ready to consider any suggestions which they might
make, and any amendments of the existing rent law which they
might deem necessary, to place the relations of samindar, planter,
and raiyai on an equitable basis. He was fully convinced that the
downfall of the indigo industry in Bihar would be a public calamity,
and had no doubt whatever that it might, by judicious modifications
and a fairer distribution of profits, be carried on without friction and
to the advantage of all concerned. He gladly acknowledged . that
a very considerable step towards placing matters on a sounder basis
had already been taken, and that his proposals for reforming the
old system had been met by the planters in a cordial and conciliatory
spirit. Indeed he saw every reason to believe that they recognised
the fact that, if the indigo trade was to continue, it could only be by
a greater recognition of the rights and interests of those who actually
grew the crop. The reforms which some of the planters had already
introduced into the system were attended with the most beneficial
results.

704 BENGAL UNDKU THR LIEUTRITANT-OOVERNORS.

The attention of GovemmentVas specially drawn during 1877-78
to the abuses which had been allowed to grow up in connection
with indigo cultivation in Bihar. A Report submitted by the Commis-
sioner of Patna conclusively showed that the system, as it existed,
involved an amount of lawlessness and oppression, principally in
the shape of extorted agreements to cultivate and of seizure
of ploughs and cattle, which could not be tolerated. It was clear
that, although there was no such manifestation of widespread dis-
x:ontent as to render the appointment of a Commission necessary,
as had at one time been proposed, there was certainly much dis-
content, manifest enough to local officers, and of such a nature as
to require very close watching and very strong officers to deal
with it.

On receipt of this Report, some of the leading planters as well
as officials of Bihar \yere consulted through the Commissioner. It
was an object to do nothing which would unduly excite the mind
of the ratya/Sy and to avoid any such . agitation as might, lead to
breaches of .contract and general embitterment of relations between
planters and raiya/s ; and, as some of the leading planters declared
themselves sensible of the necessity of reform and willing to assist
in the work and for this purpose undertook the establishment of a
Planters* Association, any action on the part of Government was
postponed and the matter was entrusted to their hands. This body
showed a sincere desire to place the relations between planter and
raiya/s on a more satisfactory footing, and drew up a series of
rules for the guidance of the members of the Association. These
rules embodied very important reforms, and the action thus far
taken by the Association was thoroughly satisfactory to Government.

The most important reform, however, was some measure for
giving the raiyais greater security of tenure and consequent free-
dom of action. This was a subject which could only be adequately
dealt with by legislation, and was beyond the scop 3 of the measures
within the power of the Planter^' Association. While the scheme
for amending the Rent Law was under consideration, Sir A. Eden in
September 1878 appointed a Committee to consider the question
of improving the Rent I^w in Bihar specially, as the requirements
of Bihar and Bengal were different. ** In Bengal, " he wrote, '* the
priman* want is a ready means of recovering rents which are

SIR A8HLBT BDKl^. 705

clearly due and which are withheld either for the sake of delay,
or in pursuance of some organised system of opposition to the
zamindar. In Bihar, what is most wanted is some ready means
of enabling the ratyat to resist illegal restraint, illegal enhancement,
and illegal cesses, and to prove and maintain his occupancy rights."
The report of this Bihar Rent Committee was submitted on 8th
March 1879 ^^^ ^'^^ ^^^ ^^ ^^^ causes contributing to the Bengal
Tenancy Act of 1885, as the Committee (like the Rent Law Com-
mission) came to the conclusion that the time for a complete re-
vision of the existing law had arrived.

The information which Sir A. Eden acquired in his visits to
FropoHMi iflffiflia- various parts of the Ix>wer Provinces was that
^ re^tion^of i^^Tt was little Open display of. animosity going
'^ on between landlords and tenants, and it was not

necessary in any case to have recourse to the special procedure
of the Agrarian Disputes' Act. In some districts there was every
indication that the landlords and tenants, who had been, disputing
for years, were coming to terms and making concessions. The
causes of dispute, however, were not removed, and the real grievance
was that the state of the law was such as practically to involve a
denial'of justice to either party who might attempt to put the law in
motion.^ The zamindar who applied fo the Courts to obtain an en-
hancentent of rents or the recovery of arrears due to him, the raiyai
who complained of excessive demands or of illegal distraint; —
found himself hampered, and eventually baffled, by the technical
and dilatory procedure which regulated the disposal of these classes
of suits. So long as this was the case, it >\as to be apprehended
that the, differences would smoulder without being extinguished ;
that both parties would remain qAiiescent, but that the latent animosity
would from time to time break out in acts of violence and outrage.
Two aggravated cases of the murder of zamindar s by raiyats occurred
— one in Faridpur, the other in Nfidnapore. This evil could only
be effectually remedied by an amendment of the law ; and
Sir A. Eden accordingly expressed his desire of introducing a
measure to facilitate the realization of rents by a more speedy and
summary procedure than existed at the time. A Bill was prepared
and referred to the Government of India for introduction into the
Govemor-GeneraFs Legislative Council. Subsequently the Supreme

706 BENGAL UNDiGR THE LIEUTENANT-GOVERNORS.

Council parsed an Act which enabled the Bengal Council to deal
freely with the subject, so that a Bill for the more speedy realization
of arrears of rent and to amend the law relating to rent, was intro-
duced into the Council, and on the nth January 1879 referred to a
Select Committee. In consequence, however, of the Committee
urging very strongly the propriety of taking up the revision of the
rent law of Bengal in a much more comprehensive manner than
was contemplated at first by the Government, Sir A. Eden
believed that the best mode of dealing with the subject
was to appoint a small Commission of experienced revenue and
judicial officers, whose duty it would be to prepare a careful
analysis and digest of the existing rent law, and of the decisions of
the Courts since the passing of Act X of 1859. The Commission
would then consider the suggestions for amendment that had been
put forward, and endeavour to prepare a draft Bill embodying such
additions to the substantive law and such improvements in the law ,
of procedure as might commend themselves to their judgment. As
it was necessary that one member of the Commission should have
his hands free from other duties to enable him to find time to pre-
pare, under the instructions of his colleagues, the digest and the
draft Bill, Mr. C. D. Field, l. l. d.. Judge of Burdwan, was placed
on special duty for this task, tl>e other members of the Commission
b^ing the Hon'ble H. L. Dampier (President), 'the Hon'ble J.
O'Kinealy, Mr. H. L. Harrison, and Babu Brojendra Kumar Seal.

This action was approved by the Government of India. Mr.
Field completed his digest of the existing law of landlord and
tenant, which was circulated throughout Bengal for criticism.

The labours of the Rent-Law Commission were brought to a close
^ ^ r ^1 in June 1880. Thev submitted a full and complete

tUut Law Com- -' • ^

miaiioD. Report with a draft Bill, both of which were publish-

ed with a view of eliciting the opinions of the officers of Govern-
ment, as well as of the classes interested in land, upon the proposals
put forward. No actual recourse to legislation was contemplated
until the Government had had time fully to consider the opinions
and criticisms invited upon the measure, or until the orders of the
Government of India and of Her Majesty's Secretary of •State had
been passed upon the proposals which the Local Government might
eventually make»

sm ASHLEY KDKN. 707

In 1 88 1 a draft Bill to amend the law of landlord and tenant in
A undiord aud ^^^ Lower Provinces was submitted to the Govem-
teiuint BUL ^^nt of India. The Bill was based on the draft

Bill prepared by the Rent-Law Commission, but numerous alterations
were maie in the original Bill with reference to the various reports
and criticisms received by Government after the publication of the
^ Commission's Report. The measure would, it was hoped, if it be-
came law, fully secure the rights and interests of both landlords and
tenants.

In 1878 the cinchona plantation, begun in British Sikhim in 1863,
ciiichoiw Febri- covered about 2200 acres. In 3 years it yielded
'"«®- a considerable outturn of bark, the crop amounting

to about 340,000 B)s. The object of Government in maintaining
these plantations was to supply the hospitals and the people with a
cheap remedy for malarious fever, and on the advice of the ex-
perienced chemist, who had been appointed Government Quinologist,
it was decided to issue the * preparation of cinchona bark, named
cinchona febrifuge — a whitish powder composed of the ' alkaloids
existing in the bark. The favourable experiments made with it in
the Calcutta hospitals and the Burdwan district led to its being
largely issued for trial. As to its value, there was, at first, some
difference of opinion but, on increased experience, it was largely
substituted for quinine : 3000 lbs were used in Government hos-
pitals and dispensaries during the year, resulting in a considerable
pecuniary saving. The sale of over 2000 lbs. of it at the Botanic
Garden office proved that its value was appreciated by the public.
The revenue, thus derived, exceeded the expenditure by about
Rs. 11,000, besides the large saving arising from the diminished
issue of quinine. The plantation was moreover capable of meeting
a larger demand.

Sir A. Eden recorded, in a few words, his opinion on the
important subject of Agriculture. He wrote thus —

Acrriciilture r ^ o

and Horticulture. "The Government of Bengal has no Agricultural
Department and does not attempt to teach the Bengali cultivator
his business, believing that he already knows how to make the most
of the soil and the material available to him, and to meet the varying
demands of the open market better than any European can teach
him. In Horticulture however, many useful experiments are carried

708 BENGAL UN0BR TDE LIBVTiNANT-OOVAkNORS.

on in the Royal Botanical Garden at Howrah, under the skilled
superintendence of Dr. King. Fresh improvements were made in
various parts of *the Garden. The building in which the herbarium
and office were placed was enlarged and improved.''

In February iSyS Sir A. Eden nominated a special Com-
, u^ miitee to consider, among other subjects connected

aSTinSiaiTox. ^'^^^ medical administration, the question of hos-
peudituTO. pij^j management in Bengal. The Committee made

a detailed inquiry into the administrative history of each institution
in Calcutta and the Suburbs, and submitted a Report containing a
series of well-considered recommendations on each subject In the
Government Resolution which thereupon issued on the 25th. January*
1879 Sir A. Eden wrote as follows : —

'* The primary object of tlie Lie'utenant-Goveruor, in instituting
this inquiry, was to p^t an end to the confusion and waste which
appeared to have crept into the administration of some hospitals,
and to introduce an economical and uniform system of management.
Some of the facts which have come to light will require explanation.
But tlie Lieutenant-Governor is not now immediately, concerned
with the apportionment of praise or censure. Such cases will be
dealt with separately and on their own merits, and, while the
Lieutenant-Governor cannot permit any medical officer convicted
of unpardonable carelessness and neglect of duty io resume or
continue the management of a hospital, no such , officer will be
condemned until he has had an opportunity of furnishing an expla-
nation of the charges brought against him. The Committee's re-
marks allude in many places to a state of .things which existed under
Superintendents of hospitals now no longer in India. In dealing
with the Committees Report, therefore, Sir A. Eden will for the
present avoid the mention of the name of any officer in any way
respDnsible for a state of things which he may consider it his duty
to condemn. Whatever explanations may be forthcoiuing, the facts
stated in the Committee's Report cs^nnot be gainsaid. The object
now in view is the establishment of a uniform system of hospital
management, which will provide for the greatest economy consistent
with full regard for the care of the sick, the elimination of vicious
principles of administration, the selection of methods found by
experience to offer the best results, and the distinct apportionment

SIR ASHLBY toBN. 709

of the duties and responsibilities of the difiEerent classes of officers.
It should be stated at the outset that it is the desire of Government,
not that less than they require should reach the «ick but that the
public money should not, under the pretext of their needs, be
wasted by the. acts of dishonest or careless and inefficient subor-
dinates. Fixed and uniform principles are required for the protection
at once of the suffering poor and of the public funds."

The Committee's recommendations were duly examined and
the appropriate orders issued by Government, with the result that
the reforms introduced caused a saving of more than a lakh of
rupees during the first year, notwithstanding that there was an
increase of 3,849, or 15 per cent, in the number of indoor patients.
In the orders of Government the maximum limit for the cost of
diets of Europeans and natives, inclusive of extras and stimulants,
was fixed at 8 annas for the former and 3^ annas for the latter ; and
the actual cost during a year in the different hospitals showed con-
clusively that these limits afforded an ample margin for any extras
that the medical officer might think it necessary or desirable to give.
Taking all the institutidns together, the average cost *of European
diets was 7 as 7 p. and of native diets 2 as 6 p. In order to avoid
the waste of expensive drugs in mu/assal dispensaries, which had
hitherto been supplied gratuitously by Government with European
medical stores, it was decided to adopt the system in force in
Madras and Bombay under which dispensaries paid for all medi-
cines and instruments they received from the Government stores.
The dispensaries that could not afford to pay for their own medical
stores were to be closed, unless there were some very special circum-
stances to render their maintenance necessar)-.

In the general reform of the Medical Administration to which
Sir A Eden devoted special attention, he was chiefly guided by the
knowledge, experience, and sound judgment of Dr. A. J. Payne :
lakhs of rupees were saved with improved administration.

Settlement work throughout Bengal was much facilitated by the
t passing of Act III (B.C.) of 1878, which laid down

Lq^tion. ^ procedure to be followed for bringing the under-

tenants and raiya/s to an early decision with respect to th% Settlement
Officer's rates, and giving a priori validity to ^hese until they were

set aside by a decree of Court : it provided that enhanced rents

*■<

710 BENGAL UNDER THE LIEUTENANT-GOVERNORS..

recorded as demandable by a Settlement Officer under Regulation
A^II of 1822 should be deemed correctly enhanced until the contrary
should be proved. It was found, however, in practice that the Settle-
ment Officer was unable to obtain the correct facts required by the
Civil Courts for basing his grounds of enhancement,, and an Act, III
(B.C.) was passed in 1879 repealing the Act of 1878, to remove this
difficulty while securing the raiyat against arbitrary and excessive
enhancement. The only grounds of enhancement were distinctly
enunciated in the measure and rates laid down, in accordance with
which the rent recorded as demandable from an undertenant might
be determined, and every raiyat was to be liable to pay the rent
recorded as demandable unless he could prove that such rent had
not been assessed in accordance with the provisions of the Act.

The organization of the Education Department was revised by
Sir A. Eden in July 1878 with the view of distribut-
mg more satisfactonly among the authorities con-
cerned the supervision of the different branches of Education and
defining more precisely the powers to be exercised by each. The
Director was to be held responsible to Government for the state of
education of every kind. Superior education in Colleges and
Madrasas was placed under his immediate control. In matters of
secondary education, the final distribution of the grant-in-aid assign-
ment was to rest in his hands, all grants being sanctioned and with-
drawn by him. His power of appointment io teacherships and other
offices, and of promotion therein, was defined and enlarged. In
other matters connected with secondary education, he was to look
to the Inspector, and in those belonging to primary education to the
Magistrate ; retaining in each case the final control and revision,
subject to the orders of Government, of important and disputed
points. The immediate duties of Magistrates and District Com-
mittees on the one hand, and of Circle and Assistant Inspectors on
the other, were similarly determined. In addition, each class of
officers was empowered, and indeed invited, to communicate freely
to the other any observations on educational matters not falling within
their own control which the experience of their daily work might
suggest to them. With regard to the subordinate officers of the
department, the Deputy Inspector, who had been charged with the
supervision of all classes of schools in his district, was to be subor-

81 K ASHLEY KDKK. 711

dinate to the Inspector in regard to secondares and to the Magistrate
in regard to primary, education. In the first month of his tenure of
office. Sir A. Eden earnestly appealed to all district officers to use
their utmost exertions^ first to increase the number of primary schools
and scholars in their districts, and secondly, to see that the primary
school grant was administered in such a way as to produce the best
and largest results. He held out the example of Midnapore, as an
instance of judicious and economical administration, where a system
of payment by results had been introduced by the ^lagistrate, Mr.
(afterward^ Sir) H. L. Harrison.

A Committee was appointed in January 1878 to consider and

report what measures it was necessary or desirable

ing coii6i(e to take for the establishment of a technical school

at 8ibpur.

to be connected with the workshops and manufactures
of the Public Works Department at the Presidency. The Com-
mittee was further to consider whether it would not be desirable to
remove the Civil Engineering branch of the Presidency College to the
neighbourhood of the new institution, so that the 2 might be worked
together, and theoretical instruction be combined with thorough
practical technical training. They unanimously recommended that
this branch of the Presidency College should be incorporated with
the proposed institution, the whole forming one great technical
school for the training of engineers and mechanics : but that the
theoretical and practical branches should be under entirely independ-
ent management, the supervision and control of the former resting
with the Education Department, and that of the latter with the
Public Works Department.

A site was then procured for the new institution by the purchase
of the Bishop's College premises at Sibpur, near Howrah, and by
the acquisition of a large area of land on the river bank immediately
above those premises ; and workshops were constructed on a scale
. that would meet the requirements of an Engineering College and
Technical School in its earlier stages, and admit of expansion
afterwards to any extent that might be required.

In regard to the organisation of the institution, .the following

principles, recommended by the Committee, were approved by Gov-

emmen^ Four classes for (i) Civil Engineers, (2) Mechanical

Engineers, (3) Civil Overseers, and (4) Mechanical Overseers, were

7li BENGAL UNDER TftiS LI KtTBK ANT-GO VKR^ORS.

at first to be maintained, a fifth class for draftsmen, and a sixth for
the improvement of skilled workmen, being added later, if desirable.
The courses for each of the above classes provided for both a
theoretical and a practical training.

Government did not guarantee an appointment in the public
service to any one trained in the institution, but it promised to select

■

the most distinguished students, and the m'ost capable apprentices,
to fill such vacancies as might arise, and not to appoint men in this
country to the Public Works Department, or to district appointments,
who had not been trained in this school, as soon as qualified men
were obtainable from this source.

It was hoped that the institution, which was opened just as the
year 1879-80 closed, would do more good to the people of this
country than any school which had yet been established. It was to
give native boys of all classes the means of obtaining a thorough prac-
tical education, enable them' to leave the beaten track of clerical and
ministerial service, for which alone they cared to qualify themselves,
and was to open to them a* large and lucrative professional career. At
the same time it was to provide a suitable and useful training to Eura-
sian boys in this country^ and place them in a position to earn an
honorable livelihood in a profession for which they were well adapted.

The question of the education of^ European nnd Eurasian children

BducAtion of ^^ ^^^ poorer classes had long been regarded as seri-

iioorcr ciasHcu. q^^ j^^^j Lytton, in a Minute dated 25ih March

1879, S^^^ ^^^ number of children as between 1 1,000 and 12,000, and
called for a scheme for dealing in as complete and practical a manner
as possible with the whole subject. Archdeacon J. Baly submitted a
valuable Report to give effect to Lord Lytlon's views, which was circu-
lated to the Local Governments. In due course a Committee was
appointed under Mr. (Sir^ A. Croft, Director of Public Instruction in
Bengal, to draft a code for regulating the conduct of European educa-
tion in the Bengal Presidency, so far as it was dependent upon Gov-
ernment support. . The Committee reported in' July 1882, and the
Government of India passed orders on it in the following year.

The year 1878-79 was one of great activity in the Jail Department.

The Report of the Prison Conference and the orders

Jails*

of the Government of India passed upoa it led to
the introduction of a new and more economical scale of diet and

SIR ASHLKT EDEN. 713

helped to bring about a reorganisation of the whole jail service
and the substitution of warders for police guards. The question of
tiie improvement of prison accommodation received much attention,
and the prisoners of i6 jails were employed almost wholly on building
operations. Jail industries were developed in accordance with the
principle that each central jail should have i or 2 special manufactures,
and the prisoners of district jails be employed on some form of
unskilled penal but profitable labour. Sustained efforts were made to
increase the discipline and penal character of all the jails, and special
attention was given to the identification and segregation of habitual
offenders, In all these directions, great progress was made and the
results of the reforms introduced in manv instances soon became
manifest. Under Sir A. Eden*s orders great improvements were
effected in every branch : the jail service, botii superior and
inferior, wjn revise I, n*w jxil b liklin^^^ were constructed, dis-
cipline amongst the prisoners was strictly enforced, and at the
same time corporal punishment was much diminished ; a better
water-supply and a' more liberal scale of diet much improved the
general health of thp prisoners, the fortnightly weighment of the pri-
soners was regularly carried out, with the best results, as the weights

at once afforded an indication when a change of diet or of labour was

•

desirable ; the mark syste n, under wliich the prisoners were enabled
by good conduct and industry to earn a reduction of the term of
imprisonment was amended, and proved a great incentive to good
behaviour; the services of convict officials were more largely utilised,
and finally the registers and forms were thoroughly revised. A new
jail code received the approval of Government, simplifying still further,
both generally, and in detail, the administration of the department.

Greater efficacy in the internal discipline and management of the
jails resulted .from the substitution of warder guards for the police.
The latter were to be employed merely to guard the outer gates of
the district and central jails, and it was contemplated to replace them
entirely by warders. This scheme was introduced tentatively into
some of the principal jails.

The seditious character of the writings in some of the vernacular

newspapers and their obvious tendency to excite dis-
PraM AottTlxand affection against the Government and to bring upon

it the hatred and contempt of the unenlightened

714 BKNOAL UNDER THE LIEUTBNANT-aOVERNORS.

masses to whom they were principally addressed, as well as the
system of extortion to which the native feudatories and many native
employes w^ere exposed by the rapacity of unscrupulous native
editors, had for some years engaged the attention of the Government
of India and of the Secretary of State. In 1873 Sir George
Campbell, as Lieutenant-Governor, had expressed himself decidedly
of opinion that a much stronger law was required than that which
then existed (viz., Act XXV of 1867, and Section 124 A of the
Penal Code, as amended by Act XXVII of 1870). The considera-
tion of certain newspaper articles had shown that the enforcement of
the existing law would i)e.aUeAded -wkh -gfoat -dli^KcuIties^ and that
prosecutions under it were undesirable. But the evil continued.
Lord Lytton's Government therefore took up the question, and
obtained the opinions of the Local Governments, who were all with
one exception agreed that a special law was needed for the control
of the Native Press. A Bill was therefore introduced into the
Governor-Generars Council and passed into 'law as Act IX of 1878
on the 14th March. Its main object was to place newspapers pub-
lished in the vernacular languages of India under better control, and
to furnish the Government with more effective means than the exist-
ing law provided of punishing and repressing seditious writings which
were calculated to produce disaffection towards the Government in
the minds of the ignorant population. Another object was to prevent
unscrupulous writers using their papers as a means of intimidation
and extortion. A special measure was . considered necessary, as the
object was to repress an evil of a special and united nature, and a
special procedure was devised to prevent the commission of offences.
The measure was fully explained to the Council by Sir Alexander
Arbuthnot, Member of the Supreme Council, in a statesmanlike
speech, and Sir A. Eden spoke as follows : —

" My Lord, — The subject before the Council appears to me to be
one regarding which there is very little to be said ; for it is a matter
regarding the merits of which I can conceive the existence of no two
opinions. What th^re was to say has been so ably and logically said
that I find myself with but little to add, like my Hon'ble friend Mr.
Colvin. However, I feel that I ought not to give a silent vote in
respect to the passing into law of a measure such as that before the
Council, and this the more from the fact that I have had occasion to

SIR ASHLBT EDEN. 715

bring before the Government of India instances of the licentious-
ness and sedition of the vernacular Press, and to urge the necessity
of bringing that Press under control, and making it powerless for
mischief.

" The evil Has long been felt by the Government of Bengal, and
I believe by nearly all the other Local Governments. My prede-
cessor, Sir G. Campbell, very strongly stated on several occasions
his conviction that measures for controlling the vernacular Press
were called for.

** I can very plainly foresee the misrepresentation and abuse to
which the Government of India exposes itself by its deteroii&ation to
deal with this question in a bold and unfiiiiciMiig spirit, and I there-
fore desire, as a Member of this Council, to take upon myself iirr
full share of re^KMwbility for the measure.

'' An attempt has been made by several very unscrupulous
members of the Native Press to mislead the people into the belief
that what Government desires to check is, not sedition, but fair
criticism of public men.

'* This is an assertion which I most emphatically deny and re-
pudiate. What Government does object to is the sedition and gross
disloyalty of some of the vernacular papers, ami their attempts to
sow the seeds of disaffection to the British rule in the minds of
ignorant people.'

" There have been laid before the Government extracts from
the vernacular papers which establish the constant use of
language of this description, and show that they habitually
attack and misrepresent the Government, under which they live
in peace and prosperity, in terms intended to weaken the authority
of Government, and with a reckless disregard of truth and fact
which would not be tolerated in any country in the world. The
writings to which I allude have nothing to do with* personal attacks.
The personal abuse, the falsehoods, the scurrility and the exagger-
ations which are applied to individual officers may well, as heretofore,
be left to the ordinary action of the law Courts, or be treated with
the contempt they deserve. But it has been prominently stated that
even this practical irresponsibility for personal abuse is a public
mischief, and is used for the purpose of extorting money or
frightening timid subordinates from a proper discharge of their

716 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

duties. But it is not on this ground that I desire to support this
measure. What I do recognise, and long have recognized, as a fact,
is, that the licentiousness of the Press has, under false ideas of
freedom and independence, been allowed to reach a stage which
promptly calls, in the interests of the public at large,* for the inter-
ference of the Legislature.

" I entirely agree with the Hon'ble Mover of the Bill in thinking
that the whole of the vernacular Press is not open to these charges.
I believe with him that there are many such papers conducted by
respectable men on excellent principles ; but the law proposed
cannot injure them. If papers do not write sedition, or endeavour
to incite disaffection towards the Government, or endeavour to extort
money by intimidation, their position will be no worse when this
Bill has become law than it was before. If they do publish matter
of this objectionable character, then it is the plain duty of Govern-
ment to interfere with them in the interests of the public, and I am
sure that the public will have no sympathy with them.

" I can quite understand that the Government of India has, as
the Hon'ble Mover of the Bill has staled, felt some difficulty in
applying a measure of this sort to a portion of the Press and exempt-
ing another portion. But the difficulty, it seems to me, is imaginary
rather than real. The papers published in this country in the
English language are written by a class of writers for a class of
readers whose education and interests would make them naturally
intolerant of sedition ; they are written under a sense of respon-
sibility and under a restraint of public opinion which do not and
cannot exist in the case of the ordinary Native newspapers. It is
quite easy and practicable to draw a distinction between papers pub-
lished in English and papers published in the vernacular, and it is
a distinction which really meets all the requirements of the case,
and should not be disregarded merely because some evil-disposed
persons may choose to say that Government has desired to show
undue favour to paptrs written in the language of the ruling power.

'* The Press must be treated on its own merits. Had the English
Press of India been in style and tone what it was 20 years ago,
I for my part should have had no hesitation in voting for its inclusion
in the present Bill. But I know nothing that has improved more of
late vears than the tone of the .\nglo-Indian Press. It no doubt

SIR ASHLKY 8DEN. 7 17 1

attacks Government measures and Government officials, and often
ver}' undeservedly ; but, as I have said before, it is not this sort of
criticism to which Government objects or desires to control. On'
the whole the English Press of India, whether conducted by
Europeans or- Natives, bears evidence of being influenced by a
proper sense of responsibility and by a general desire to discuss
public events in a moderate and reasonable spirit. There is no
occasion to subject that Press to restraint, and therefore, naturally
enough, it is exempted. It would be a sign of great weakness on
the part of Government to bring it within the scope of this measure
merely to meet a possible charge of partiality. If it should ever
happen that the Anglo-Indian Press should adopt a tone calculated
to excite feelings of disaffection to the British rule, I shall be
amongst the first to ask for its inclusion in -a law of this sort.

•* My Lord, I will not take lip the time of the Council any
further. I have never lost an opportunity of stating my opinion on
the subject we are now discussing, and I hope that I have explained
with sufficient distinctness the grounds upon which my opinions
are ba^sed. But even if I did not entertain these opinions as strongly
as I do, I consider it my duty, when told by Your Excellency, as
Head of the Executive Government, that on full and calm consider*
ation it had been determined that a measure of this sort was
necessary for the maintenance of peace and order, to give it my
hearjy support ".

The Act contained a provision (section 5) which enabled the
publishers of vernacular newspapers to withdraw themselves from
its restrictive provisions by submitting their proofs to a Government
Officer. The Secretary of State, when assenting to the Act, objected
to this portion of it and desired that it should be suspended or
abandoned. It was accordingly repealed on the i6th October by Act
XVI of 1878. In the debate which then took place it was distinctly*
stated that, as a consequence of the earlier Act, there had been
a very marked improvement in the general tone of the Vernacular
Press of India as well as in the style and matter of the articles
published. On the passing of the Act, a translation of it was for-
warded to the publishers of all vernacular papers in Bengal, and
their attention was ca'led to its provisions. A hope was expressed
that it might not be necessary to enforce these against any members
46

718 BENGAL UNDER THE LIEUTENANT-OOYBRNORS.

of the Vernacular Press, but it was also notified that Government
did not intend the Act to remain a dead letter, and that seditious
language calculated to excite hatred and contempt against the
Government or. maliciously defamatory of Native Chiefs and officials
would undoubtedly cause action to be taken against the offending
journal. The Act soon had a beneficial influence upon the tone of
the Native Press, and thoughtful discussion was, it was hoped,
gradually taking the place of the disloyal, scurrilous, and defamatory
articles of the past. The tone of the English newspapers under native
management was in the majority of instances considered to be all
that could be desired. They contained much keen, and often unfavour-
able, criticism of Government measures, but were generally free from
gross personalities, and thoroughly loyal in feeling and tendency.

In 1879 the tone of the Native Press generally improved under
the check imposed by the Act. Subjects of public interest were
freely discussed, but in more temperate language than formerly. It
was clearly shown that, while the Act did not discourage legitimate
criticism, the mere fact of its existence was generally sufficient to
restrain license.

The Act was once put in force, I know, as I was Press Com-
missioner with the Government of India at the time. Proceedings
were taken against the Som Prokash newspaper for publishing sedi-
tious matters, and a bond was demanded from its printer under Act
IX of 1878. The action was taken by the Magistrate of the i^-Par-
ganas under orders of the Bengal Government, who were set in
motion by the Government of India. The printer executed the bond,
but subsequently stopped the issue of that paper and started the
Ncmahibhakar in its place. The following year permission was
sought to revive the Som Prokash and such permission was accorded
on the Editor's giving a pledge for its future good conduct. Subse-
quently both the Som Prokash and the Navahihhdkar were published,
their management and establishment being separated — the office of
the Navabibhakar being removed to Pataldanga, Calcutta, while the
Som Prokash remained at its old office at Chingripotta, in the suburbs
of Calcutta. Thus no prosecution took place : no further publicity
was given to the incriminated articles : a warning was given to the
whole Native Press, and its tone perceptibly improved, without any
diminution of free, fair, honest criticism.

SIR ASHLEY EDEN. 719

The next year, 1880, it was noticed that, although some improve-
ment had taken place in. the style and language of the vernacular
newspapers since the introduction of the Vernacular Press Act, their
general tone was one of opposition to Government and Government
measures. They never hesitated to impute unworthy motives to
Government and were full of personalities regarding Government
servants. They, however, generally preluded their remarks by ex-
patiating on their individual loyalty, and complaining of the passing
of the Act. The leading organs of the Press were naturally found in
Calcutta. They were altogether wanting in originality and habitually
followed the English Press and borrowed largely from it. A new
feature in their columns was the amount of attention and space de-
voted to matters connected with English politics. The virulence of
party controversy at home, as reproduced in many organs of the
English Press, afforded much congenial matter to the Native papers
in Bengal.

But in 1 880 the Government was changed in England : Mr.
Gladstone, who had denounced the Vernacular Press Act, came into
power, and the new Governor-General, the Marquis of Ripon, had
(it was understood) instructions to repeal the Acts. The contemplat-
ed repeal was anxiously looked forward to by the Native Press, and
was generally attributed to the agitation that had been maintained.
The Acts were accordingly repealed by Act III of 1882, which
retained power to the Post office authorities to search for and seize
any vernacular publications of a seditious nature, the importadon of
which had been prohibited under the Sea Customs Act, 1878. For
some years no further action was taken in Bengal towards the verna-
cular Press. The repeal of the special Acts left Government and
individuals no other remedy against seditious and otherwise ob-
jectionable writings but recourse to the ordinary criminal law, viz,
section 124A of the Indian Penal Code, which had previously been
considered unworkable.

The proceedings taken in 1 89 1 against the Bangahasi newspaper
will be found in another Chapter (X). It came to be generally ad-
mitted by Government that the law was in an unsatisfactory state :
and a bitter feeling obtained among officials that they were denied
proper and reasonable protection against immoderate Press criticism.
Certain disastrous occurrences in another part of India practically

720 BENGAL TNDKR THE XIBtJTBNANT-QOVERNOBS.

forced the hand of Government, and legislation was undertaken to
aiqend the difficult, if not unworkable, Section 124 A, of the Penal
Code. Act IV of 1898 repealed that section and substituted a new
one, to deal with *' Sedition": it inserted a new section 153 A, in
the Code, to punish ** promoting enmity between classes " : and it
substituted a new section 505, to punish *' sta<;ements conducing to
public mischief." The preventive procedure of the Act of 1878 was
abandoned, and all journals, English and native alike, are now sub*
ject to the same law, and must be dealt with by the ordinary
tribunals.

In 1878-79 the excise policy was developed in the direction of a
EzcIm • th ut- return from the central distillery to the outstill sys-
stui system. jg^a. A Commencement in this direction had been

previously made, but the progress effected in closing distilleries and
licensing shops under the outstill system was very rapid in this year.
The Board of Revenue in reporting on it remarked that —

*' the outstill system is beginning to show its superiority notwith-
standing its imperfect development and the great difficulties arising
from permitting the concurrent existence of the outstill and sadar
distillery systems in the same or adjacent districts. During the past
year, owing to the high price of food-grains and the scarcity which
.existed in some parts of the country, a diminution of the Govern-
ment revenue might certainly have been expected under the sadar
distillery system, as the high cost of the liquor produced in the sadar
distilleries would have prevented many of the poorer labouring
classes from satisfying even their most ordinary cravings. The out-
still system has supplied the people with a cheaper and weaker liquor,
which is comparatively free from intoxicating effects, and has led to
no complaints of any increase of drunkenness. The financial results
have been very satisfactory, and the settlements of the current year
show even more favourable financial prospects."

Government noticed with satisfaction that the Board were
sanguine as to the financial results of the measure. There were
reasons to fear that the excise revenue would exhibit a falling-off,
though it was premature to express any opinion as to whether this
was in any way connected with the introduction of the outstill system,
or was solely due to high prices or other causes. As regards the
moral effect of the change, it was also premature to express a

SIR ASHLST EDEN. 721

decisive opinion. It could not be disputed that the licensee had a
more powerful interest in augmenting the sale of his spirit under
the outstill system than when he paid according to the amount
consumed. The spirit distilled was weaker, but also cheaper, and
was drunk in larger quantities. In contrasting, however, the inoral
effects of the two systems, it was essential not to lose sight of the
important element of illicit distillation which necessarily flourished
far more under the sadar distillery system than under that of
outstills.

It was subsequently claimed for the outstill system that, though
it had supplied the people with more wholesome liquor, it had
caused no general increase in drunkenness, while it had certainly
checked illicit distillation and in some degree tended to discourage
the use of deleterious drugs. It was probably accompanied by an
increase in actual consumption, as there was an increase . in the
quantity of spirits removed on payment of duty from the sadar
distilleries where such existed : but this was attributed to the increased
prosperity and spending power of the people. From the statistics
furnished by the sadar distilleries of Patna and the Sonthal Parganas^
and the fact that higher rates were offered for licenses not only for
country-spirit shops, but also for tari shops, it was clear that there
was a great increase in the demand for liquor, apart altogether from
the source of supply. An expansion of the excise revenue in all
countries follows on favourable harvests and general agricultural
prosperity, and Bengal was no exception. The duty of Government
under such circumstances was to see that undue facilities for drink*
ing were not offered^ and that the price of liquor was not unduly
reduced by letting the shops on inadequate terms. A special . inquiry
was instituted into the administration of the excise in some districts^
But it was considered obviously unwise, because the people woiild
have liquor, to revert to a system which had been found in practice
to lead to fraud, to loss of revenue, and to the demoralization of the
subordinate officers, without affording any check oh consumption;
It was held to be a matter for satisfaction that this enhanced demand
should have been met by a supply of weak and wholesome liquor,
and not of strong or adulterated spirits from the old distilleries or
from illicit sources.

Government afterwards recorded that the outstill system was

722 BENGAL UNDER THE LIBUTENANT-OOVfiRNORS.

found by experience to be the only system under which the sale of
country spirits could be conducted with success in the existing
condition of the province ; and the sadar distillery system was
entirely withdrawn from the Rajshahi, Dacca, Chittagong, and Patna
Divisions and from the districts of Purnea, Manbhum, and Singbhum.
With a few exceptions, the change of system was made with care
and good judgment ; the sites for shops were selected with discretion,
and competition among bidders for licenses was stimulated. District
officers were directed to be on their guard against allowing an undue
multiplication of shops at unduly low rates, thus both reducing the
price of spirits and giving unnecessary facilities for obtaining them.
*' If, however, they exercise care in selecting the sites for shops, and
stimulate a healthy competition among the bidders for licenses,
there can be little doubt that, as has been the case under the fixed
duty system, the revenue paid to Government and the price charged
to the public will rise with the desire and power of the public to
purchase. It is only by confining the number of shops and stills to
the genuine wants of the district, fixing a substantial upset price and
encouraging competition among candidates for licenses that the
price of liquor can be kept at rates sufficiently high to act as a check
on consumption."

The question of the effect of the outstill system in encouraging
the consumption of liquor occupied much >attention. In a few
districts, where the system was mismanaged in the face of the orders
of Government, some increase in drunkenness among the labouring
classes took place. *' This is the result that must ensue where shops
are multiplied and let for small fees, and it is entirely independent
of the system under which the liquor is manufactured. The dealers
compete among themselves for the custom of consumers instead of
being compelled to compete for the original right to sell, and they
are enabled to sell spirits at low rates because they have low rates of
fees to pay to ^ State. Precisely the same result would ensue
under the sadar distillery system if shops were scattered in clusters
over the country, while the rate of duty was reduced to a minimum.
In those districts, however, — and these form the large majority —
where the outstill system has been managed with discretion, and
where the orders of Government have been strictly obeyed, the
results have been very different. Illicit distillation has been suppress-

SIR ASHLKY EDEN. 728

ed and the interests of the State have been [protected, while the
people have been supplied with a wholesome weak spirit at reason-
able rates. That a larger quantity of this weak liquor is consumed
there can be no doubt, but there is nothing to show that the
consumption of alcohol has increased beyond the normal increase
which always takes place when the people have money to spend on
luxuries, or that drunkenness has been in any way promoted by the
outstill system. No comparison can be made between the quantity
of spirits actually consumed under the 2 systems. The accounts
kept by the distillers cannot be taken as accurate, and the strength
of the 2 classes of liquor is different. No doubt the people have
actually spent more money on drinking during the past 2 years
than they did before, but this is a result which would have occurred
altogether apart from any change in system. Evidence of the
increased expenditure on exciseable articles presents itself on all sides,
and the increased spending power of the people is shown equally in
larger sales of the ordinary articles of commerce. Notwithstanding the
competition of outstill liquor, the quantity passing into consumption
from such sadar distilleries as remain has shown a steady increase."

The soundness of the outstill system, when worked according to
the principles insisted on by Government, was regarded as being
amply established ; and it was the settled policy of Govemikient
to extend it to every part of the province when the special cir-
cumstances of the locality did not render such a measure inex-
pedient. There was a considerable improvement in the working of
the system. The difficulty of gauging the real demand for liquor
in each district was at one time the main drawback to the system,
and this undoubtedly caused the opening of an unnecessarily listrge
number of shops in some districts at the commencement ; but
constant attention was given to this point, and it was believed that a
fairly just proportion had been established between the number of
licensed shops and the popular demand for liquor. At the settle-
ments of i88i-2» the number of shops under both the outstill and
the sadar distillery system was reduced from 6,284 to 5,780, and a
further reduction to 4,417 was subsequently effected.

During Sir A. Eden's administration, the excise revenue rose
from nearly 69 to nearly 94 iakhs : this remarkable increase was
due in a considerable degree to the re^introduction and develop-

724 BENGAL UNDUE TH« LIIUTIN ANT-GOVERNORS.

m'ent bf the'outstill system; but a much more powerful stinuilatit was
found in the bumper harvests, the activity of trade, and the general
prospcirity which marked the years 1879—81. Sir A. Eden wrote :
" No hope whatever can be founded on the recent rapid expansion
of the excise revenue. ' The increase has been so remarkable that
a check is probable, and, if a bad harvest occurs, is inevitable."
Sir A. Eden having been selected to preside over the Commission
Th«AnuyCom- appointed by the Supreme Government to inquire
miflsion. j^j^ ^^^ report .on the organization of the army in

India, the office of the Lieutenant-Governor of Bengal was, during
his absence at Simla, from July 15th to the commencement of
December 1879, filled by Sir S. C. Bayley, Chief -Commissioner of
Assam, who retained also charge of ihe Assam administration (and
Sir A. Eden's Secretaries and Private Secretary, Mr. Henry.) It has
not been found possible to distinguish in the annual Reports between
all the measures of Sir A. Eden and Sir S. Bayley : the general
policy of the Bengal Government remained unchanged, as was
intended. I find that Sir S. Bayley, during this time, unveiled the
statue of Lord Northbrook, south of the High Court, and installed
the Maharaja of Darbhanga. Of the Army Commission, Lord Lytton
said in Council, in March 1880, '* I cannot too highly express Iny
lasting sense of our great obligation to my : Hon'ble friend Sir
Ashley Eden for the astonishing industry with which he has devoted
his great intellectual powers to the accomplish|nent of one of the
most arduous, and one of the most important, tasks ever under-
taken by an Indian Statesman." Sir John Strachey spoke also of
the Commission as having been presided over by one of the most
eminent of Indian Statesmen.

Several important steps were taken during the year 1879-80 to-
wards carrying out more fully than hitherto the

Changes in the

executive adminu- poUcy of admitting natives of the country to the

tretlon.

higher ranks of the public service. The Govern-
ment of India deemed it desirable to formulate definite rules for
the guidance of the Local Governments and Administrations on the
subject, and, under 'these, persons not natives of India were declared
admissible to certain specified classes of appointments only, and all .
other appointments were in future to be exclusively filled by
natives. The higher grades of the Subordinate Judicial and E3te-

SIR A8HLET BDBN. 725

cutive ^rvices were thus practically closed to Europeans, $ave in
exceptional cases, in which the sanction of the Supreme Government
was to be obtained to a departure from the rules. The steady
decrease in the number of Covenanted Civilians allotted to Lower
Bengal, and the increase of work in almost every branch of the
administration having rendered an addition to the Subordinate
Executive Service necessary, the sanction of the Government of
India had to be obtained to an increase of 3 1 in the strength of this
service. A saving in the cost involved was, however, effected by the
creation of a new grade of Deputy Colleciers on a salary of Rs. 150
per mensem, (the lowest grade formerly having been Rs. 200,) and
the new officers were appointed to this grade. Rules were also
issued by the Supreme Government to provide for the regular and
periodical appointment of Natives of fndia to the Covenanted Civil
Service under the Statute 33 Vic, c. 3. One such appointment
had been made in Bengal in 1878. Under the new rules the
Local Governments were annually to nominate persons for appoint-
ment by the Government of India. In 1879, 2 appointments were
allotted to Bengal, and 2 gentlemen appointed as probationers,
subject to confirmation on their passing the departmental examina-
tions and being favourably reported upon. An additional judgeship
for Burdwan and Bankura was created and given to a native subordi-
nate judge.

A scheme for the constitution of Divisional Appellate Courts,

which should be able rapidly and efficiently to dis-

Pn>poiied Divi- ^ ^ ^

^uai Appellate pose of the mass of appeals which had hitherto come

before the High Court, was submitted by the Local
Government in 1877. The main objects aimed at were to diminish
the arrears in the High Court and the consequent hardship on
suitors, owing to the delay in the decision of their claims ; to secure
that an appeal to the High Court, when allowed, might be a
complete appeal on the facts as well as on the law ; to reniedy the
injustice imposed on all but the richest litigants who were imable to
obtain a final decision on their cases without carrying them on from
the remote interior to the tribunal in Calcutta ; and to increase the
finality of the decisions of the local appellate Courts by strengthen-
ing their authority and enhancing their reputation. The adoption of
this scheme had been indefinitely postponed on the ground of

726 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

financial pressure, and the final orders of the Government ^f lodil
and the Home Government on the application of the Local
Government asking for a reconsideration of the measure were not
received before Sir A. Eden left Bengal.

Various important administrative questions in connection with
Labour Bmigra- ^^^ Working of the Indian Emigration Department
*^"°' came before Government during 1879-80, such as

the action to be taken to encourage free emigration to the tea dis-
tricts ; arrangements for an improved ^vatersupply on board the river
steamers and for securing more careful inspection of the emigrants
en route, the strengthening of the medical staff on board, and inquiries
into the causes of cholera among the labourers in transit. A Com-
mission representing the principal interests concerned in inland
emigration was appointed to sit in Calcutta during the cold season of
1 880-1, and all points in connection with the subject were reported
upon for the necessary amendment of the law, to be proceeded with
as soon as possible. The main object to be secured was the making
of recruiting more easy, and the supply of labour to the tea districts
generally less expensive.

The Bengal Government in 1879-80 recommended to the Govern-
ment of India and the Army Commission the with-

Withdrawal of ' ^

troope from out- drawal of troops from most of the small out-stations

in Bengal, and while final orders were pending the
Government of India acted on the suggestion so far as to withdraw
the Native Infantry from Bhagalpur, Naya Dumka, Dacca and Ber-
hampore; and subsequently the wing of the i8th. Native Infantry
was also removed from Jalpaiguri. No addition to the police force
at Naya Dumka was considered necessary ; but, in accordance with
the scheme of the Bengal Government for the replacement of the
troops at dut-stations by police, an additional special reserve force of
one inspector, one sub-inspector, 8 head-constables and 100 con-
stables was orgaiiized at each of the stations of Bhagalpur -and
Dacca, and a similar force of one sub-inspector, 4 head-con-
stables and 50 constables at Berhampore.

The passing of the Presidency Magistrates' Act (IV of 1877),
, ^ , ^. _ enabled the Government to avail itself more largely

Legislation : Presi- ^ .'

^denoy MafiTifltntos' than before of the services of Honorary Magistrates

Act (IV of 1877;. , . / o

in Calcutta. Such Magistrates were previously em-

SIR ASHLKY EDEN. 727

ployed in^hearing Municipal cases only, but it was from this time
arranged that they should sit in rotation with the Stipendiary Magis*
trates as a Bench for the disposal of police cases.

In 1880 the Council of the Lieutenant-Governor passed an Act

I (B. C.) of that year to authorize the making, and to

ActI(B.C.)ofl880, , , /. i- . ^ ,

the Calcutta Tram- regulate the workmg, of street tramways m Calcutta.

Ways Act.

The Corporation of Calcutta having entered into an

agreement for the construction and maintenance of street tramways

in the town, the object of the Bill, (introduced by the Hon'ble Kristo

Das Pal in Dec. 1879), ^hich followed the lines of the Bombay

Tramways' Act, 1874, was to confer the necessary legal powers on

the contracting parties, and to make proper provision for the working

of the tramwa} s. The Bill also contained a provision for extending

it to such suburban tramways as might afterwards be undertaken.

Act VI (B. C.) of 1880, for the drainage and improvement of

lands, repealed Bengal Act V of 1871, which pro-
Act vi(B.c.) of . , '^ . ? r , , . ^ ,
1880, the Bengal vided for Certain works for the drainage and recla-

Drainage Act.

mation of lands in the Hooghly and Burdwan dis-
tricts, known as the Dankuni scheme, but empowered the Lieutenant-
Governor to carry out similar works throughout all the territories
under his administration. Col. Haig, r. e.. Secretary to Govern-
ment had shown how such operations could profitably be applied to
the Howrahy'Air^/ (3*41 sq. m), and to those of Amta (3*56 sq. m)
and Rajapur (6-87 sq. m). The Act provided that each scheme
under the Act should be prepared with plans and estimates by the
Government engineers and published for general information. The
cost of the works was to be assessed, on the lands reclaimed and
improved, in proportion to the benefit derived, by Commissioners
appointed by the Lieutenant-Governor, of whom the majority were
to be proprietors. The recovery of the sums apportioned on the
several proprietors was left in the hands of the Collector. The
works when completed were to be kept up in the same manner as
public embankments at the expense of those whose lands were bene-
fited, and in their maintenance the Collector was to be assisted by a
Committee of proprietors appointed for , that purpose. A material
alteration from the procedure* under Act V of 1871 consisted in
allowing the Commissioners an opportunity of watching results for
3 years after the works were completed before they proceeded to

728 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

apportion the costs of the works. Thus the liability to repay any
portion of the capital was deferred for 3 years.

The Cess Act was one for amending and consolidating- the law
The Cess Act, r^^^ting to rating for the construction, charges,
IX (B. cj of 1880. and maintenance of district communications and
other works of public utility, and of provincial public works. During
the 8 years during which the Road Cess Act of 1871 had been
in force, several points of importance had come to light on which
it required amendment. The opportunity was also taken of repealing
the Provincial Public Works Act of 1877, and of consolidating into
one Act the law relating to Road Cess and to the Provincial Public
Works Cess, both of which were assessed on the same principle,
and levied according to the same procedure and by the same
machinery.

The measure contemplated many important alterations in the
law. In the definitions given of immoveable property, houses, shops
and other holdings were excluded, the levy of the cess upon houses
having been attended with much irritation and vexation. In the part
relating to the imposition and application of the cesses it was pro-
vided that the Lieutenant-Governor should not be required by law
to pay from the public revenues any sum as road cess in excess
of such sum as might have been paid as such cess to the Collector by
persons liable to pay the same. In consideration of the public
works cess being collected by establishments paid from the District
Road Fund, the Lieutenant-Governor was empowered to make an
assignment of such proportion of the cost of establishment as he
might think right to the district Committees.

The Bill was introduced into Council on the loth. of January
1880 and received the assent of the Lieutenant-Governor on the
22nd. of April 1880. The Governor-General however, refused his
assent to the Bill, on * the ground that 2 sections contravened the
provisions of the Civil Procedure Code. At the same time His
Excellency agreed to assent to the Bill on the omission of the
sections in question, and proposed to re-enact them in the Supreme
Legislative Council if they were deemed essential. The Bill was
re-introduced in September (without the 2 sections), was- assented
to by the Governor-General, and became Act IX (B.C.) of 1880.
It was amended in 1881.

SIR A8HLST EDEN. 729

The improvement of Calcutta had been making progress for
Calcutta Munioi. some years : not altogether continuously. Thus,
^ ^^^ complete illumination of the town with gas was pro-

vided for in 1877-78, and about the same time the doubling of the
water supply was contemplated. Act VI (B.C.) of 1881 (a Calcutta
Municipal Act) besides making other amendments of a less import-
ant nature, empowered the Government to declare any portions of
the environs of Calcutta to be a part of the town for the purposes of
the water-supply, and provided for the extension of the water-supply
to the suburbs and the levy therein of a water-rate not exceeding the
maximum in Calcutta. It also provided for the payment by the
Calcutta Municipality of iths of the pensions of certain police
officers ; for "the filling-up of foul tanks whether within a private
enclosure or not, at the expense of their owners ; for the taking-up
and reclamation of filthy, dastis, and for a revised sinking fund in
respect of all future public loans.

In April 1878 Sir A. Eden issued a Resolution on the improve-

SRnitary condi- ""®"^ ^^ ^^® drainage of towns and villages in
tion of viiugea. Bengal, as he attributed much of the unhealihiness
prevalent to the excessive humidity of the soil caused by obstruction
to drainage, naturally, that is by the silting up or destruction of
old water courses, rather than by artificial means such as the embank-
ments of roads and railways. He relied upon all executive officers
and District Road Committees to take up the matter earnestly and
use their ample powers under the existing laws. Later again in
June 1880 Sir A. Eden received a number of reports on thjs ques-
tion, and encouraged local authorities to do all they could, while
he trusted to the new Drainage Act for carrying out more extensive
schemes of drainage, which involved projects of reclamation. • The
Sanitary Commissioner's activity again elicited an expression of Sir
A. Eden's views on the same subject. The Sanitary Commissioner
made some suggestions which could be only carried into effect by
legislation, and he was informed that Sir A. Eden entirely concurred
in the view recently expressed by the Government of India, that the
time had not come for enforcing general sanitary regulations among
the villagers by law. All that could be done was to seek to bring
the people gradually to a sense of the evils induced by their tradi-
tional habits, and show them that obstructed drainage, filthy surrouad-

730 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

ings and admixture of decomposing matter with their drinking
water, must result in disease. The amalgamation of the Sanitary
and the Vaccination Departments was expected to render it possible
Xo do a great deal in this respect. The Sanitary Commissioner would
thus have a staff of officers in constant contact with the villagers
during the working season, and it would be possible not only to
urge upon the people the adoption of simple measures of sanitation,
which were neglected, but also to invoke the influence of the exe-
cutive authorities in cases in which the general public health was
seriously injured by filthy practices.

Fever was especially fatal in 1881 in Nadia, where the death-rate
Thoxndia fovor a^^^^^cd the very high figure of 3972, as compared
Commission. ^wiih 29*53 per thousand in the previous year, not-

withstanding the deputation of a special staff of medical officers to
the villages attacked and the lavish and gratuitous distribution of
medicines. ^Towards the end of 1881, a special Commission was
appointed to visit the worst parts of the district and endeavour to
ascertain the cause of the outbreak, and at the same time to impress
on the zamindars and the people the advantage of retaining a supply
of pure water in their villages and of observing sanitary precautions.
The members of the Commission spent the cold season in the
district. The conclusion at which they arrived on the main question
was of a.negative character. They discovered no specific cause for
the epidemic but were satisfied that there was no foundation for the
impression generally entertained by the people themselves that it
had been brought about by artificial obstructions to the natural
drainage of the countr}'. They found the roads and the railway
embankments everywhere adequately supplied with waterway, save
to an unimportant extent in a few localities. Their Report, however,
pointed, out a variety of causes, for most of which the people them-
selves were responsible, which must contribute to unhealthiness in
the villages. Some improvement would, it was hoped, be effected
in these matters by the Local Boards about to be appointed.

Syud Mansur Ali, the Nawab Nazim of Bengal, who had for

many years resided in England, retired from the
the Nawab Nasim position of Nawab Nazim, and by a formal deed

of Bengal. » . vt t^ «« i ..

executed on the ist November 1880 renounced all
right of interference with the affairs of the Nizamut in consideration

SIR ASHLKY BDEN. 731

•

of an annual stipend of /" 10,000, the payment to him of 10 lakhs of
rupees in settlement of various miscellaneous claims, and a suitable
provision for his children born in England. The title of Nawab of
Murshidabad was conferred on Syud Hassan Ali, the eldest son of
Syud Mansur AH, and the title of Nawab Nazim became extinct.
The Nizamut deposit fund ceased to exist, the office of Agent to the
Governor-General was abolished, and the allowances to the various
members of the Nizamut family were in future to be paid to them
direct by the Collector of Murshidabad. The last Nawab Nazim
died at Murshidabad on the 3th November 1884. His eldest son,
Syud Hassan Ali, was given the title of Nawab Bahadur of Murshi-
dabad in February 1882, and that of Amir-ul-Omrah in July 1887,
with the rank of the Premier Noble of Bengal : atid subsequently
provision was made, by Act XV of 1891 and an indenture attached
to the Act, for the support and maintenance of the Nawab Bahadur
and of the honour and dignity of his station.

A project for constructing a range of canals, 92 miles in length,
Th ori and '^ completfe the line of inland water communication
other cmain. between Calcutta and Orissa, was sanctioned towards

the close of 1880-81. The canals were to consist of still- water
channels with tidal locks, and be fed duriug the dry season by tidal
water through high-level supply sluices, and during the rains supplied
as far as possible from the drainage of the neighbouring, country.
This was a work of the first importance to Orissa, which was previ-
ously dependent on the sea for its communications with Bengal.
The ports were bad, and, if any. serious failure of the crops were to
occur, it would not be possible to throw a sufficient supply of food
into the province. When the projected canal was made, steamers
and country boats would be able to ply at all seasons of the year,
and, while the province would be protected from famine, there would
be a large expansion of trade. Their length (92 miles) was divided
into 4 ranges as follows : —

(i). Canal between the Rasalpur and Subarnarekha rivers,
30 miles in length. (2). Canal connecting the Subarnarekha with
Panchpara^ 18 miles in length. (3). Canal between Panchpara and
the Barrabullong, 6 miles in length. (4), Canal connecting the Barra-
bullong with the Mettai, 38 miles in length. The canals were to
have a minimum bottom width of 50 feet with 7 feet depth of

732 BKNOAL UNDKR THB LIKUTfiNANT-QOVBRNOKS.

water. The estimate of 33 lakhs was sanctioned too late in the
year to allow of much work being done, but a new Division was
formed, and arrangements were made for collecting labour and
materials and for taking over the land.

The canals which were taken over by this Government in 1877
were financially of a very different character from the railways, and
there was never any hope of their being in a position to pay the
interest on the capital -invested in them for many years to come.
The construction of the Orissa, Midnapore and Hijli canals was
originally undertaken in 1863 by the East Indian Irrigation and
Canal Company, with, the most extravagant expectations of profit.
Five years after the work had been begun, the Government of India
purchased the canals from the Company for Rs. 1,17,28,560, and
proceeded to develop a modified scheme. These works had al^'ays
been up to 1880-1 a heavy drag on the provincial resources, which
had to bear ihe charges. The receipts from irrigation on the Orissa
and Midnapore canals, however, were steadily increasing ; leases were
taking the place of yearly agreements ; and, as the system of distri-
butaries was extended, the revenue would gradually develop. One
great reason why these canals paid so littlt was that they were
prematurely stopped under a false notion of economy. The head
works and canals were finished, while the distributaries were never
constructed ; the water was there and the people were ready to use
it, but, expenditure having been suspended, the water could not be
distributed. The new Coast Canal was expected to increase the
navigation receipts on the Orissa and Hijli works. The opening
of the Sone Canals had! given a great impetus to the extension of
sugarcane cultivation, and had caused a considerable increase in the
agricultural wealth of the tracts supplied. The increase of profit
from this source in the district of Shahabad alone was estimated in
1879-80 at Rs. 4,73,000 /^r a//i/«»i. The people were also begin-
ning to use canal water as a motive power in sugar and fiour mills.
Apart from these schemes, other irrigation and canal "works were
undertaken from provincial funds. A sum of Rs. 6,28,000 ^i^as
spent on a canal to connect the river Gandak with the principal
water-courses of the Saran district. A still more important work was
the Joojooty scheme, whereby a constant supply of pure water from
the river Damodar was poured into old channels in the Burdwan and

SIR ASHLBT KDBN. 73d

Hooghly districts. The silting-up ot these channels was undoubt-
edly for many years the cause of much disease and suffering
throughout a large tract of country, and the introduction of a copious
supply of pure water for drinking and irrigation purposes had
at once a marked effect on the health and prosperity of the people.
Heavy expenditure was also incurred in the improvement of the
condition of the Calcutta Canal, which had been very unsatisfactory.
The storm-water loaded with the sewage of the town discharged into
it : boats grounded at tow water, causing numerous accidents and
hindering traffic ; and the channels silted up, entailing very heavy
annual expense in maintenance. These defects were remedied,
large locks of 40 feet in width with capacious basins were construct-
ed, so that it might be possible to maintain a sufficient depth of
water in the canal. The canal was also widened, and ample accom*
modation provided for the traffic. In order to supply fresh water
to the canal, and to afford the means of flushing the lower end of
the new drainage channel, a large inlet was constructed at the Hooghly
entrance of the canal. Half the cost of the work was to be borne by
the Calcutta Municipality and the other half met from provincial funds.
It was expected that the total expenditure on this canal from provin-
cial funds would have amounted to 23 lakhshy the end of 1881-82.
Intimation was received by the Commissioner ot Orissa on the
Attack on the ^^^ March 1881 that a party of fanatics, consist-

Muf^to'^Puri^by ^"^ ^^ '^ ^^^ ^^^ 3 wo"^c"» ^^i^ entered the
fanatic*. Temple of Jagannath in Puri on the ist idem,

with the object of burning the idol of Jagannath, and that a dis^
turbance had taken place, in which one of the fanatics had I(^t his
life. The party in question were residents of Sambalpur in the
Central Provinces, and they stated that they were induced to come
to Puri in consequence of one of their co-religionisls (the deceased)
having been commanded by their " guru/' an invisible being without
shape or form, to bring the images of Jagannath, Balaram, and
Subhadra out of the temple and to burn them on the road. For the
purpose of carrying this order into effect, a large body of men and
women left their homes in Sambalpur, taking their children with them,
but, when within a few miles of Puri, 12 men and 3 women separated
themselves from the main body and preceded them to the temple.
The disturbance formed the subject of an immediate investiga-
47

7'9i BENGAL UNDBH THE LIEUTENANT-GOVERNORS.

tion by the local authorities, from which th6 following facts were
collated.

One of the doorkeepers of the temple, who was on duty at the
Lion gate when the disturbance occurred, in describing the scene,
stated that about 12 men and women, who were almost in a state
of nudity, came up to the temple shouting " alekh,'' ** alekh."
They had with them an earthen pot containing cooked rice, of which,
judging from the state of their hands, they had evidently only
recently partaken. The door-keeper tried to prevent them from
entering the temple by closing the gate, but they succeeded in push-
ing it open and forcing their way into the building accompanied by
some 200 pilgrims. One of the fanatics still held in his hand the
pot of rice, but, on being remonstrated with by the door-keeper, he
consented to leave it outside and was then permitted to enter. The
party next proceeded to break down the door of the Bhogmanadab^
the apartment in which the offerings of the worshippers of the idols
are usually displayed, but which was at the time empty. They then
made their way into the great hall of the temple in front of the
shrine, the crowd of spectators having by this time doubled. Find-
ing the door called yaibijai shut, the fanatics went out into the
enclosure and rushed about like mad men and women, endeavouring
to find an entrance in some other direction. The crowd of pilgrims
at this time was estimated to number upwards of 1000, and a

great deal of pushing and struggling took pkice, in the midst of
which one of the fanatics fell or was pushed on to the stone pave-
ment. He was lifted up by some of his companions and was assist-
ed out of the temples, and shortly after expired.

The rioters were arrested by the police and were placed on their
trial on charges framed under sections 147 and 297 of the Penal
Code before the Deputy Magistrate of Puri, and on conviction were
each sentenced to 3 months' rigorous imprisonment.

Shortly after the arrest of the party of fanatics above referred to,
the Assistant Superintendent of Police learnt that a second party
were on their road to Puri, with a similar object in view, and he
accordingly sent out a patrol and caused them to be arrested before
they could enter the town and do any mischief. This second party
consisted of 6 men, i x women, and 1 1 small children. The adults
were placed on their trial as persons having no ostensible means of

SIR ASHLBT BDEN. 735

subsistence, but they were acquitted by the Deputy Magistrate on' the
grounds ihat they were in the same position as hundreds of other
beggars, and that there was nothing in their case to raise a suspicion
that they earned their livelihood by improper means. '

The rioters being inhabitants of Sambalpur, the Chief Commis-
sioner of the Central Provinces was asked to favor the Lieutenant-!
Governor with information regarding the tenets of the sect to which'
they belonged and with particulars regarding their place of residence,
habits, and pursuits. In compliance with this request, the Chief
Commissioner furnished the following particulars : —

' There is a peculiar sect of Hindu dissenters in the Sambalpur
district, known as Kumbhupatias. The word Kuinbhupatia.is deriv-
ed from '' Kumbhu/* the name of a kind of tree, and " pat,'' the
bark of a tree, and the sect is so called because its followers make
ropes from the bark of the tree and wear them round their waists:
The religion is also known as that of Alekh, and its followers claim
revelation as its foundation. Alekhswamy, the god incarnate, used,
it is said, to reside in the Himalayas, but about the year 1864 he
came to Malbaharpur in Banki, ziila Cuttack, and revealed the
religion professed by the Kumbhupatias to 64 persons, the principal
of whom was Govind Das ; and it is chiefly owing to the exertions of
these disciples that the religion was propagated. Alekhswamy (which
signifies " the lord whose attributes cannot be described in writing ")
removed to Dhenkanal, a feudatory State, where, for 3 years imme-
diately preceding his death, he led the life of a mendicant and
wanderer. Although the religion originated in Cuttack, it spread
more rapidly in the district of Sambalpur, and men of all classes
and castes, except the Uriya Brahmins, are freely embracing it. It
is not so much the peculiarity of the rules of any particular caste or
sect that tends to increase the number of converts to it as the posi-
tion in life of the converts themselves : thus in Khinda the people
of a whole village embraced the Kumbhupatia religion because the
Gaontia had done so. The names of some 30 villages are given
as those in which the Kumbhupatias chiefly reside.' A full account
(rf their sects, tenets and habits was addttd.

The Census of Bengal (as part of the general Census of India)
^ ^ , was taken on the night of the 1 7th February 18 8x.

Th« ConsiM 01 1

i8«i. The general plan of operations was to make a pre-

736 BENGAL UNDER THE LlEUTtSNANT-QOVERNORS.

iiminary enumeration of the population at leisure sometime before
the date of the actual Census, and then, on one night, the 17th
February, to finally correct the previous entries. Special arrange-
ments were made for the enumeration of boats ^nd their occupants ;
for counting the population on railways ; for the Census of persons
in cantonments, in camp, travelling by road, or living without a
home ; for jails, hospitals and other public institutions ; and for the
Census of the Sundarbans. The demeanour of the people during
the preliminary operations as well as on the night of the Census was,
in most places, all that could be desired, but in many places dis-
quieting rumours as to the object in view were spread abroad, and
in a few tracts of country there was a show of resistance to the
taking of the Census. In the Sonthal Parganas and in those parts of
the neighbouring districts where Sonthals formed a large proportion of
the population, interested agitators seized the opportunity for a tribal
demonstration. In the districts adjoining the Sonthal Parganas the
exertions of the district officers were sufficient to allay the irritation ;
but in the Sonthal Parganas themselves, where the people were terri-
fied by the rumours circulated among them, and were in a highly
excited condition, it \^'as thought advisable to dispense with the final
nocturnal checking, and to march detachments of troops through
the country. The figures showed that the population of Bengal
(after allowing for the separation of Assam) had increased from
62,705,718 to 69,536,861 during the 9 years which had elapsed
since 1872, there being thus an increase of 6,831,143 or io'89 per
cent. Out of the grand total of 69,536,861 the males numbered
34,625,591, and the females 34,911,270, the latter thus exceeding the
former by 285,679. The population of the town of Calcutta on the
17th February was 433,219 as compared with 409,036 in 1876, the date
of the previous Census ; the population of the suburbs was 251,439
and of Howrah 105,575, total 790,233. The Hindus were 45,452,806
and the Muhammadans 21,704,724 : the Christians 128,135. The
apparent rate of increase varied enormously in different parts of the
province : one Division only, that of Burdwan, showed an absolute
decrease by 277 per cent, ctearly attributable to the effects of the
Burdwan fever from 1864 to 1874. The average density of the
population of the entire province was 371*41 persons to the square
mile, and this varied much in different districts. The total urban

SIR ASHL1&T KDEK. 737

population of the province svzs only 36,64,229 and there were only 96
towns with a population exceeding 10,000 souls : while there were
2^4^523 villages, each containing less than 5,000 inhabitants. Of
the castes or tribes in Bengal, 65 claimed more than 100,000
members, each. The number of houses in Bengal was returned at
i'.^43»3S3» of which 11,036,774 were occupied, giving an average
of 6.30 persons to each occupied house. Between 1872 and i88t
the Hindus increased at the rate of 13*64 per cent, the Muhammadans
by 10*96 per cent, Christians by 4071 per cent, and Buddhists by
93*29 per cent (the last named figures being for the most part due to
more accurate enumeration.) The increase among Christians was
attributed, partly to immigration from Europe and partly to conver-
sions, especially in the districts of the Chota Nagpur Division*

Sir A. Eden was able, by careful management and a full treasury
to incur a large expenditure on Ordinary Public

Public Works. or /

Works under the contract of 1877. The expenditure
on works during the scarcity of 1874 was abnormal, the provincial
balances were exhausted, and the Government of India found it
necessary to accept the outlay, and to make the I.ocal Government
a net grant of 5 /akhs with which to begin the year 1876-77,
The expenditure on Ordinar)- Public Works during that year was
Rs. 25,59,000. In 1877-78 it was thought necessary to proceed with
extreme caution in the matter of expenditure. The charges thrown
upon the provincial revenues on account of Productive Public Works
were very serious ; the full outturn of the P. W. Cess could not be
obtained during the year, and it was considered necessary to secure-
a substantial working balance to provide for emergencies. The
expenditure in that year was therefore restricted to Rs. 25,12,000.
In framing the revised estimates for 1878-79, it was found possible
to make provision for various important and useful schemes that
had been left in abeyance for want of funds ; but in that year and
the next the expenditure was, under the instructions of the Supreme
Government, kept down in consequence of the financial difficulties
which famine, v^-ar, and adverse exchange had brought upon the
Government of India. In 1879 the Government of India found
itself compelled to call upon Local Governments to make all possible
reductions in expenditure. The orders went so far as to direct that
no new work estimated to cost more thao Rs. 2,500 should be

798 BENGAL UNDE& THE LIEUTSNANT-GOVERNOBS.

cominenced, even though it might have already received the sanction
of Government. Under the influence of the same policy of retrench-
ment, unduly low estimates were made for 1 880-81, but the Local
Government was afterwards permitted by the Government of India
to increase the grant by 20 lakhs and the expenditure during the
year was Rs. 47,60,600. The provision for 1881-82 was Rs. 67,93,000.
It included, besides the estimated expenditure on miscellaneous
improvements, on buildings and on the construction, bridging and
metalling . of provincial roads, provision for new Court houses at
Sealdah, Jessore, Mymensingh, Dacca, Ranchi, Gaya, Darbhanga, and
Motihari, for various sub-divisional buildings and Munsifs' Courts,
for new Jails at Jalpaiguri, Bogra, Pabna, Gaya, Darbhanga and
Motihaci, for a College at Rampur Boalia, and a Railway school at
Kurseong, and for the completion of the new Secretariat buildings
and the new obstetric hospital at the ^ledical College. It seemed
to Sir A. Eden wrong that large balances should be allowed to
lie idle, while the revenue was increasing and numerous works of
improvement remained to be executed.

The concentration of the public offices, contemplated by his 2
„! , predecessors, was effected by Sir A. Eden. It

^ow Bengal * '

Snrttora^*' BaiiS ^^^^ decided to bring together the various Secreta-
^' riats of the Bengal Government and the more

important departments with which the Government Js in continual
communication, into a single set of offices in Writers' Buildings, as
such' an arrangement would greatly facilitate the transaction of public
business. The necessary accommodation was obtained by adding
^ large wings on the north side, at right angles to the rear of the
existing building. The works were in progress in 1878 and it was
hoped that they would be sufficiently advanced for the Government
to complete the concentration of its office establishments towards the
ebd of 1879^

» These new wings were completed during 1879-80, and were partly
occupied • and designs were prepared for a new fa9ade to Writers'
Buildings, the construction of which would give some additional
accommodation and admit of easy communication between the differ-
ent departments. The new fa9ade would, it was believed, be effect-
ive without being expensive and add greatly to the appearance of
that portion of . Calcutta*

SIR ASHLEY BDBIX. 739

The south fa9ade towards ' Dalhousie Square, was practically
finished in 1881-82: all that remained to be done >vas the. finishing
of some of the ornamental parts of the building and the completion
of the railings. An octagonal building was constructed as a Chamber
for the Bengal Legislative Council in the southwest corner of the
range of Writers' Buildings, and advantage was taken of its position
to add to the architectural effect of the new Government Offices. The
new Council Chamber ^'as first used in the [cold weather session of
1883-84.

In reviewing the Provincial Finance in June 1881 Sir A. Eden
was in a strong position to assert that the system of

Provincial ^

ananoe : resuito of decentralization had been thoroughly 'successful in

Bengal. ** The revenues have rapidly increased,
independently of any new taxation; useless expenditure has been
curtailed; and funds have been made available for improvement
under all branches of the Administration. All grades of the service
have shown the deepest interest in increasing the resources of Gov-
ernment, under the belief tliat the surplus revenue would be available
for the good of the province. The 3 heads of improvable revenue
made over to the management of the provincial Government, with an
income of 165 J lakhs in 1876-77, will stand with an income of not
less than 217} iakhs'm 1881-82. In the meanwhile the Lieutenant^
Governor has been able to carry out numerous works of improvement
on his own responsibility, many of which, under the previous system,
would have been indefinitely postponed. Besides making a special
contribution of 20 lakhs to the Imperial treasury' in time of need, he
has beeii able during these 5 years to increase the staff of executive
and judicial officers ; to provide increased facilities for the adminis-
tration of justice ; to increase the grant for education ; to make
grants-in-aid of district communications and of works of drainage^
sanitation, and municipal improvement ; to biiild schoblsi colleges',
and hospitals ; to replace the huts in which the public business was
transacted or prisoners were confined, by substantial masonry court*
houses and jails ; to spend 20 lakhs on railways which will bring'in a
large return, 5^ lakhs on tramways, f of a lakh on a steamer service
to improve communications with Assam, and 2 lakhs on a road to
develop th6 trade with Tibet ; to spend 1 1 lakhs on the first portion of
a Wor^ tvhi'ch will develop the .trade of Oritsa and protect it froih

74Q BENGAL UNDER THE LIEUTENANT-GOYBBNORS.

famine ; and to spend 38^ lakhs on improving navigation and provid-
ing a supply of pure water for the people. While J7\ lakhs have
thus been expended on great measures of material improvement, and
the expenditure on Ordinary Public Works has been increased from
Rs. 25,12,000 in 1877-78 to Rs. 63,53,000, exclusive of expenditure
on preliminary works of railway construction in 1881-82, and wVile
no legitimate outlay has been spared to strengthen every department
of the Administration, the 5 years' period, which opened with a
credit balance of Rs. 2,68,000 only will close with a credit balance
of at least Rs. 14,46,000. When it is recollected that, under
the system which prevailed before 1871, every new charge required
the sanction of the Imperial Government, that the decision on
the demands of each province took no cognizance, of the extent
to which it had contributed to the general Exchequer, that nothing
was to be gained by economy, because money left unspent by
any one Governlnent was practically lost to it and only went to
increase the amount to be sc^^mbled for by all, some idea may be
gained of the advantages which Bengal has reaped from the control
of its own finances. There is no department of the service which
has not felt the benefit of the financial independence conferred on
the Government immediately responsible for its administration.'*
On the eve of his departure Sir A. Eden was able thus to sum up
the results of his 5 years' financial administration : — " The revenue
has increased by 26^ lakhs under Excise, 25 lakhs under Railways,
12 lakhs under Stamps and 5 lakhs under Irrigation and Navigation.
The general increase since 1878-79 has been at the rate of 17^ lakhs
a year. Improvements have been made in the general administration,
and the expenditure under the great heads of Land Revenue
Administration, and Law and Justice, has in consequence been
increased by 8 lakhs of rupees a year between 1877 and 1882. The
funds available for Education have been increased, while the charges
of the 2 spending Departments of Jails and Medical have been
reduced. Finally Sir A. Eden has spent during the 5 years from the
surplus revenue of the province, Rs. 20,78,000 on Railway works,
Rs. 39,00,000 on Irrigation and Navigation works, and Rs. 141,00,000
on the construction of Roads and Buildings or in contributions to
district works : in all Rs. 2,00,00,000 on original works of all kinds.
This useful expenditure would have been even greater had not the

SIR ASHLEY IBEN* 741

Government of India exacted from the Provincial Revenues a special
contribution of Rs. 20,00,000 for its own purposes. This contribu-
tion has now been generously returned, but it only goes to swell the
closing balance at the credit of the province. The 5 years' period
opened with a credit balance of Rs. 2,88,000. It closes with a
balance of Rs. 42,62,000, exclusive of the special grant which forms
a part of the new contract."

The figures were stated somewhat difEerently in another place
as follows : —

"The total provincial revenue in 1881-82 amounted to
J^s. 3.77,97,000. Compared with the income of 1877-78 the first
year of the contract, the revenue for 1881-82 gave an increase of
25 lakhs in excise, 12 lakhs in stamps, one lakh in law and justice,
i\ lakhs in jails, 254- lakhs in railways, and 7 lakhs in irrigation and
canals ; while the expenditure showed an excess of 3^ lakhs in
land revenue, i^ lakhs in administration, 4} hikhsm law and justice,
\ lakh in jails, 2^ lakhs in education, 24^ lakhs in railways,
2\\ lakhs in irrigation and canals, and 4 if lakhs in roads and
buildings, and a decrease of 3^ lakhs in medical relief. More than
four-fifths of the additional income from excise had accrued within
the past 2 years, in consequence of the abundance of the harvests,
the cheapness of food, and the greater spending power of the
people ; but it was not probable that this source of revenue would
maintain in future the rate of progress reached within this period,
and the advance in the revenue in 1881-82 was comparatively small.

Both the gross revenue from, and the expenditure on, railways
advanced rapidly during the 5 years 1877-1882, the former having
risen from Rs. 7,32,000 to Rs. 33,08,000, and the latter from
Rs. 6,26,000 to Rs. 30,84,000. These results were to be expected
from the great development which had taken, and was still taking
place, in the railway system. The net receipts of the last year, after
deduction of the working expenses, amounted to Rs. 14,02,000
or nearly 9 times the revenue in 1877-78; while the total charge
for interest on the capital expended was only Rs. 12,86,000. Not
only were all the enormous advantages derived from the railways
thus enjoyed free of cost by the people, but the Government actually
received from them a clear gain of over a lakh pf rupees. The
revenue from irrigation and canals was advancing, though the rate

742 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

of progress was still slow in comparison with the large increase of
expenditure which it had been found necessary to incur for the
improvement of existing works and the completion of new projects.
The \'ast excess in public works expenditure on roads and buildings
had been caused by the construction of works which had been
postponed for years^ and of which the Administration stood in much
need. Apart from the Government expenditure on public works,
a gr^at deal was also accomplished by means of the large sums
granted from the provincial finances during the past 5 years in aid
of projects undertaken by local bodies."

The attention of Sir A. Eden's Government was specially directed
Locfti4i6if. during 1881-82 to the development of the policy

Government. q{ Local Self-Govemmcnt and financial decentra-

lization. In accordance with the instructions of the Government of
India, a careful scrutiny was made of the provincial, local, and
municipal accounts, \fith the object of ascertaining what items of
receipts and expenditure could be transferred from ** provincial " to
** local ' heads, for administration by Committees containing non-
ofilicial, or where possible elected, members, and what redistribution
could be made of items already so administered, in order that only
such items should be made local as the people were most likely to
be able to understand the use of and to administer well. Inquiries
were also made as to the most suitable form to be given to the local
bodies by which the funds thus localized should be administered,
endeavours being made, as far as possible, to utilize the existing
Committees. Attention was also given to the relations between the
various local bodies and the ofiicets of the general administration,
and to the degree of control and inspection to be retained in the
hands of Government. The general lines of the plan which com*
mended itself to Sir A. Eden were commtmicated by him in April
1882 to the Government of India. It was considered that the unit
of the system of Local Self-Government should be as far as possible
the sub-division, and not the district. Provision was made to ensure
that the Local Boards should have a more representative, and, where
feasible, an elective character. They were to be entrusted with
very extensive powers for the management of local expenditure on
communications, village sanitation, education, and medical charity,
and to be provided with funds over |pd above the proceeds of the

SIR ASHLET EDEN. 743

District Road Fund by grants from Government to supplement, if
necessary, the receipts from pounds and ferries. Meanwhile all
municipalities, except Calcutta, the Suburbs and Howrah, were
relieved from all charges on account of police, and it was stipu-
lated that the sums so set free should be devoted to the purposes
of education, sanitation and charity. Sir A. Eden thought that
in many districts in Bengal there were able and energetic men
willing to take a share in the management of public affairs, whose
readiness to assist only required judicious management and direction.
He anticipated that the ultimate result of the legislation contem-
plated would be a large measure of relief to the public departments
and of lasting benefit to the best interests of the people.

Early in 1877 it came to notice that certain Burmese gentlemen,

who had been deputed by the King of Burma to
repair the inclosure of the Buddha Tree and Temple
at Bodh Gaya, were working in such a manner as to injure rather
than improve the buildings. Dr. Rajendra Lala Mitra was therefore
requested to visit the place and report on the work done, and the
manner in which the operations should be controlled. It appeared
from his Report that large portions of the building, of great histuricai
interest, had been virtually swept away by the demolitions and exca-
vations which had gone on. Arrangements were accordingly made
to complete the repairs of the temple under the supervision of the
District Engineer of Gaya, working in communication with Dr.
Mitra and the Commissioner of Patna.

An important change was introduced during the year 1877 into
the constitution of the Marine Service of India.
The whole of the marine establishments, afloat and
on shore, employed under the several Governments and provinces of
India, were amalgamated into one Imperial ser\'ice, designated " Her
Majesty's Indian Marine." This service was entirely under the
Supreme Government, but it was intended that such portion of it as
might be required for service within the limits of Local Governments
should from time to time be placed at the disposal of these
authorities.

The obstetric hospital was designed by Mr. G. A. D. Anley on
The Eden Hospt- P^^^s fumished by Dr. T. Edmonstone Charles, and
*^' was considered to be one of the most complete

744 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

hospitals in India. It was made to afford accommodation for 78
patients and all tiie necessary staff for such an institution ; the wards
and verandahs were paved with marble, and a well-proportioned stair-
case afforded access not only to the different floors but also to the
roof, which was intended to form a pleasant promenade for the patients.
The building was completed and formally opened by Sir A. Eden on
the 19th of April 1882, and is now known as the Eden Hospital.
It was not until Sir A. Eden's time that an official residence was
assigned to the Lieutenant-Governor when at Dar-

The Lieutenant- . i j r .. . »•

Govomor'a real- jechng. His predcccssors had from time to time

visited this hill station, for longer or shorter periods,
as they pleased, and had sometimes occupied the little old cottage
(for it was nothing more) which stood on the site of the present
building in * the Shrubbery ' grounds on Birch Hill. This property
had passed from ' Mr. Barnes' Estate ' to the Maharaja of Kuch
Bihar, and during the latter's minority was purchased by Government,
on 31st October 1877. Additions and alterations were made to
adapt it for a Lieutenant-Governor's residence. The Public Works
Department completed the main work of construction in October

1879, so that the new house was first occupied in the summer of

1880, Subsequently, the porch and tower were added by Sir A. Eden.
A photograph of the original building is still extant as a curiosity.
Only small portions of the old building were retained in its enlarge-
ment. The grounds were tastefully laid out under the instructions
of Sir G. King in 1878. In a few years, owing to the increase in
the number of residents and visitors to Darjeeling, it was found that
the reception-rooms as constructed in 1877 — 79 were not nearly of
sufficient size, while the want of proper accommodation for public
ceremonies and State occasions had long been felt. A Darbar Hall
of a light and cheap character was accordingly built by Sir C. Elliott,
on Birch Hill, N. of the residence. The picture on the opposite
page shows the S. aspect of the main building.

The construction of a hospital at Darjeeling for European
patients from the neighbouring tea-gardens of the

The Eden Sanl- ... ti r i i . .3

tarium at Darjoe- distnct as Well as from the plams was sanctioned

in accordance with a Minute recorded by Sir A.
Eden on the nth June i88i. The project consisted of cutting
dowii the old Post Office Hill whese the Bhutia school stood; and

^ ^

Survey of !i.dia Offices.CaltuUaDccm

THE SHRUBBERY, DARJERLING.

SIR ASHLKt EDEN. ^45

thus making a site for an extensive two-storied building sufficient
to accommodate 16 first .class, 20 second class, and 20 third class
patients. While the designs and estimates for the building were
being prepared by the Government Architect, the preparation of
the site was taken in hand and vigorously prosecuted, and was
sufiiciently advanced for the commencement of building oper*
atlons In November 1881 : owing to delay on the part of the
contractors, it could not be thrown open to the public until the
22nd April 1883: the construction cost Rs. 1,67,752, besides
Rs. 23,750 for furniture &c. During its construction, a temporary
hospital was opened in a building adjoining the municipal dis-
pensary.

Among the other measures which Sir A. Eden carried out were
the following — the transfer to the Government of

other meaaures.

Bengal of the management of the affairs of the Ex-
King of Oudh and of the Mysore Princes — the appointnient of a
Surgeon General for Bengal, the control of the provincial medical
work being accordingly withdrawn from the Surgeon- General of the
Indian Medical Department — nledical education at the Campbell
and other vernacular schools of medicine — ^the establishment of 2
scholarships of ^"200 a year each to be held for 2 J years by Bengal
B. A. 'sat Cirencester — police investigations and magisterial inquiries
in Sessions cases — the publication of a Police Gazette in 3
languages, so that the departure of every professional thief from
his house should be notified for the information of the police of
other districts — extension of Muhammadan education — the aboli-
tion of the Assistant and Joint Sessions Judge of Darjeehng and
Jalpaiguri in 1878-79— the abolition of the appointnient of Political
Agent of Hill Tippera— the constitution of the district of Noakhali
into a separate judgeship— the substitution of the Kaithi for the
Persian character in the Bihar Courts and offices— the re-arrange-
ment of jurisdictions with a view to reconstitute the districts of
Bankura and Birbhum into suitable charges and to relieve the too
large and unwieldy districts of Burdwan and Murshidabad. He
sanctioned an Exhibition of Art manufactures which was entrusted
to the Committee of the Economic Museum and held at the Indian
Museum. It was opened by the Viceroy on the 4th January 1 88a
and lasted for 2 nionth$.

746 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

On the 2ist April iS%2, a public meeting was held at the Town
Hall, Calcutta, in honour of the retiring Lieutenant*

Town Hall meeting

on Sir A. Bden'a re- Govemor. It was attended by numerous and

tirement.

enthusiastic representatives of every, class of the
community. The Chief Justice, Sir Richard Garth, was in the
chair : Mr. G. H. Morrison, Vice President of the Chamber of
Commerce, and the Maharaja of Hatwa- moved and seconded the
first Resolution, viz., ^' that this meeting desires to record its high
appreciation of the successful administration of Sir Ashley Eden as
Lieutenant-Governor of Bengal."

Mr. Branson, Barrister-at-law, moved and Maharaja Sir Jotindra
Mohan Tagore seconded, the next Resjljtion " that a marble status
of Sir Ashley Eden be erected in this city as a memorial of his
distinguished career in this country."

Archbishop Goethals and the Maharaja of Gidhore moved that
subscriptions be collected for the statue and the work entrusted to
an artist in England.

A farewell address to Sir A. Eden was agreed up3n at the
meeting and presented by a Deputation as follows : — To the Hon'ble
Sir Ashley Eden, k. c. s. i., c. i. e.

Sir, — We, the undersigned, on behalf of a meeting of the
admirers of your administration, desire, on the eve of your depar-
ture from this country, to approach you with this expression of bur
appreciation of your meritorious, vigorous, and successful rule as
Lieutenant-Governor of Bengal.

About 30 years ago you first arrived in this country, and, after
passing through the usual noviciate, have held from time to time
high positions of trust and responsibility. In all those positions,
whether ruling a district or a province, aiding in the suppression of
a revolt or fulfilling a political mission, presiding over the Secretariat
or assisting in the work of legislation, you have evinced a breadth
of mind, thorough knowledge of the countr}', strong common-sense,
great vigour, firmness and frankness, and above all a generous and
enlightened sympathy with all classes of the people.

As the Lieutenant-Governor of Bengal, your task has been one
of grave diflSculty istnd delicacy. Inhabited by a varied population,
representing on the one hand European commerce and enterprise,
and on the other the most advanced Indian intellect, and with

SIR ASHLEY EDEN. 74T

political aspirations such as sometimes give rise to conflict of
interests not only as between the 2 races but also among the
different sections of the vast native public, this province presents
an administrative problem o\ no ordinary difficulty ; but during the
last 5 years your ability and prudence have kept these jarring
interests subordinate to those of justice and the good of the general
community.

Bengal has long since passed the patriarchal epoch, and in the
present state of its political existence the administration of its affairs
has in a great measure to move in well-defined grooves. It is not,
therefore, given to the ruler of the province to strike out new and
bold paths for progress. His task is not so much one of construc-
tion as of consolidation. His special duty it is to see that the
administrative machinery be kept in perfect gear, that all the wheels
move freely and smoothly, and that those in charge of the machine
do their duty honestly and faithfully. Beyond question such merit
may justly be claimed for your guidance of the State machinery of
Bengal.

. You have done more. There have been Treasures adopted by
you, which will form land-marks In the history of the administration
of this province.

In the practical working of the scheme of local finance, Bengal
has 'shown that, if she be allowed to use her own money for her own
benefit, her resources are ample for alt purposes without necessitating
fresh taxation ; and this result is entirely due to your careful, vigilant,
and skilful management.

As regards internal communications Bengal has, under your
auspices, during the last 5 years, received far greater impetus to
material improvement by the construction or extension of roads,
railways and canals than it had been her lot to see during the whole
period since the creation of the Lieutenant-Governorship.

Education has found in you a zealous champion, and the grants
for both liberal and primary education have been increased under
your Government, scope has been given to the development of the
voluntary system^ and encouragement accorded to Sanskrit learning,
You have also established a College of practical engineering at
Sibpur, and founded scholarships to enable students to study
agriculture -in the Cirencester College in England.

74S BENGAL UNDER THE LIBUTANANT-GOVERNORS.

Justice has been brought nearer to the poor man^s door by (he
multiplication of Courts, both civil and criminal, which has also served
to extend the employment of native agency. Steps have been taken
for the better training of Covenanted Judges by giving those who may
select the judicial branch an opportunity in their early career to
familiarize themselves with the trial of civil suits. In the adminis-
tration of the law, the liberty of the poor subject has been protected
by the imposition of proper checks upon the arbitrary and capricious
manner in which certain sections of the Criminal Procedure Code
used to be enforced.

The public health has occupied a large share of your attention,
and large grants have been made from the provincial treasury to
several districts for the improvement of drainage and water-supply.

Although Bengal is fortunately not prone to political convulsions,
there was last year an uneasy feeling amongst the Sonthals, but the
knowledge which you had gained of that people during the revolt
in 1855 enabled you on this later occasion to pacify them without
having recourse to extreme measures.

In matters of legislation you have sought to give the land rest,
not only by your immediate action in the local legislature, but also
by your earnest and well-timed protests in the Supreme Council.
Vour intimate knowledge of the circumstances of the people of this
country has convinced you how ill-suited to it is direct taxation, and
you have lost no opportunity in protesting against the imposition
or extension of anything partaking of the character of an Income
Tax, You have been a warm advocate of the principle of governing
India for India, and the manner in which you have asserted this
principle will be gratefully remembered by the people of this country.
You have always supported judicious proposals for the reduction of
public, and particularly of military, expenditure, and as President of
the Army Commission you have, in conjunction with your colleagues,
made recommendations, which have been generally approved by the
Government of India, and which, if carried out, are calculated to
effect large savings without impairing the efficiency of the Army.

It could not be expected that all your measures should meet
with universal assent, but it cannot be denied that your rule, as a
whole, has conferred solid benefits upon this country. Every class
in the community without distinction of race or creed has rea^on^

SIR ASHLEY KDKN. 749

to be grateful for services rendered to it. Whilst to commerce, trade,
and private enterprise you have accorded every encouragement, the
peasantry are. indebted to you for a considerable improvement in
their condition^ and some of the oldest native families have been
laid under deep obligation by your friendly offices for their rescue
from the disastrous effects of protracted litigation.

We cannot conclude without acknowledging your personal
qualities, which have endeared you to all who have the pleasure of
your acquaintance. Your kindness, courtesy, unfeigned friendship,
and desire to do good to all, consistently with your position and
duties, have not a little heightened the value of your services as a
ruler. By freely mixing with natives, by your generous treatment of
them, and the kind and warm sympathy you have always manifested
towards them, you have set an example, which has already borne
fruit on congenial soil, and the beneficial results of which, it is to
be hoped, will not pass away with your departure from this country.

In now taking leave, we have the consolation of knowing that with
your departure from this country your official connection with it
will not cease. In your seat at the Council of the Secretary of State
you will still have opportunities for the exercise of your knowledge, ex-
perience, and sympathies in promoting the cause of good Government
in India. We wish you a safe voyage home, and pray that the Author
of All Good will bless you with long life, prosperity and happiness.^'

This address was duly presented at Belvedere and suitably
acknowledged by Sir A. Eden, who at the same time consented
to sit for his statue, to be placed in Calcutta.

Similar addresses were presented by the Bengal Chamber of
Commerce, The Trades' Association, The Bihar Landholders' A$so*
elation, the Rajas, zammdars &c. of the Bhagalpur Division, and
by other bodies. On Saturday 22nd April, Sir A. Eden was enter-
tained at a farewell dinner by the Civil Service at the Town Hall.:
His departure on the 24th April from Calcutta for England was
signalized by an enthusiastic demonstration of loyalty and regard
on the part of the public, European and native. Crowds assembled in
the streets, the ships in the Port were decorated, and repeated cheers.
vere given as he passed, and as his steamer started from the jetty.
Strong as he was, not easily moved by his feelings, he could not but
be overcome by emotion at the remarkable honours paid to him. .
48

750 BENGAL UNDER THE LIEUTENANT- QOVERNORS.

It must always be remembered that Sir A. £den had a turn of
good fortune which was denied to many of bis prede-

Observations. / r

cessors and successors. It has been well observed
that his term of office was favoured with entire immunity from
famine and other forms of natural disaster ; the commercial torpor
then paralysing the industries of the civilized world had not yet spread
to India ; and a succession of splendid harvests raised the cultivating
classes almost into temporary affluence. He also enjoyed the
advantage of a financial contract with the Government of India
which secured to Bengal the entire benefit accruing from improved .
administration and in the event yielded financial results sur-
passing all anticipation. The ample resources thus unexpectedly
brought within his reach he liberally employed in improving many
branches of the machinery of Governmsnt and in supplying the
province with railways, canals, public buildings, and other permanent
improvements, of which the want had long been admitted. He said
himself — '' I can imagine no policy more shortsighted than that of
starving public works." As the Englishman said on his retirement —
"He looked upon the work of developing the resources of the
country, of spending its surplus revenues for its own improvement^
of diffusing education, of protecting life and property, of strengthen-
ing the administration of civil justice, of removing all avoidable
restrictions on trade — he looked upon this work as the simple duty
not the special policy, of a Governor. Beyond this he had no
policy *' — as he himself declared. " To use the words of Carlyle,
he had no ambition to swallow the universe. ... He had no
crotchets and no perverted ambition. He sought to give the land
rest, to let the trees that had been planted grow where they had been
planted, to keep the machine which had been bequeathed to him
strong and efficient. His policy was the prosperity of the country
and the happiness of its people. '' By his own singular tact and
ability and by inspiring confidence, he induced the Bihar planters to
reform their own body and their relations with the cultivators : he
greatly advanced the reconstruction of the rent law : he exerted him-
self to adjust differences between the members of old families and
save their estates from ruin by litigation : he did much to reform
the great administrative departments of the Police, Jails^ and Medical
Service: in £lducation his progressive policy was all in a practical

aiR ASHLKT BDKN. 751

direction: of the wisdom of his financial administration enough
perhaps has been already said : he showed himself '' a true though
discriminating friend to commerce": his work on the Army Com-
mission has been separately mentioned. Fearless honesty of purpose
was the keynote of his character and work. The social aspect of his
Lieutenant-Governorship did not escape notice. It was undemons*
trative and unsensational but sterling, genuine and true. His kindly
presence, his cordial humour^ and his utter ignorance of parsimony
lent a grace to the hospitality of Belvedere, which he greatly improved.
His private liberality, his broad sympathies and his kindness of heart,
secured to him a host of friends. In the exercise of his power he
bore no malice to his former rivals. He was a wonderfully quick
worker and saw at a glance the weak point in any case. Though
an indifferent linguist he could elicit all the information he wanted
from any native. Though he was a very ready writer, he
wasted no time or labour in composing model Minutes or
despatches. He was quick-tempered, but his anger never lasted.
Lord Ripon said of him that he never knew a man less likely to be
led away by \'ague sentiment or mere theory than Sir A. £den.
Briefly, — though I make no comparisons^t must be acknowledged,
as it has always been, that Sir. A. Eden was a great and successful
Lieutenant-Governor.

Sir A. Eden's marble statue* at the North- West comer of Dal-
UnveUin of housic Square, (on the site of the former memorial

stetue. tQ those who perished in the Black Hole in 1756)

was unveiled by Sir Steuart Bayley on the 15th April 1887, in the
presence of a large gathering of European and Native gentlemen, both
official and non-official. The Hon'ble Mr. Justice H. T. Prinsep
first spoke on behalf of the Eden Memorial Committee as follows : —

" Before I ask you, Sir, to perform the ceremony for which we
are here assembled, I propose shortly to state the origin of the
movement which we are now bringing to a conclusion. Five years
ago, at the termination of Sir Ashley Eden's tenure of office as
Lieutenant-Governor of Bengal, a public meeting was held at the
Town Hall, at which all classes of the community in Calcutta and
throughout Bengal were numerously represented, and it was there

* Now in process of removal to the middle of the North side of the
square, while these pages are being printed.

752 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

unanimously determihed^ in appreciation of his eminent services, to
erect in this city some memorial of the high estimation in which his
administration was held. To carry out this, a Committee was
appointed, many members of which are no longer present among us,
and of them I would only mention the Chairman, Sir Richard Garth,
in whose absence I have been invited to preside on this memorable
occasion. A marble statue of Sir Ashley Eden has been constructed
by Mr. fioehm, an eminent sculptor of London, which is now before
us. It is not for me at present to ask your criticism of that work,
but I have no doubt that, when it is exposed to your view, you will
not fail to recognise its excellence, both as an accurate resemblance
of its illustrious original and as a work of art. I am fortunately able
to express my own opinion, as I had an opportunity, some i8 months
ago, in London, to accompany Sir A. Eden to his last sitting
to Mr. Boehm. I was then able to compare the original with its re-
presentation and to appreciate the labour and talent of the artist.

** It seems almost unnecessary that I should attempt to remind
you of the successful character of Sir A. Eden's administration as
Lieutenant-Governor of Bengal, which we desire now to commemo-
rate. Those who were present in Calcutta and in Bengal 5 years ago
cannot have forgotten the enthusiastic meetings held everywhere to
do honour to our departing Governor, or the overpowering outburst
of feeling shown by assembled crowds at the place of embarkation to
bid him a regretful farewell. You^ Sir, as one who has long been
intimately associated with him in the public service, are in a better
position than I to expatiate on the distinguished character and services
of Sir A. Eden, and I therefore feel that in your presence it is not
fitting in me to undertake this duty. History will record, and future
generations will admit, that, without any invidious comparison with
his brilliant predecessors, he fairly surpassed them all in the brilliancy
and soundness of his administration and in the lasting benefits that
be conferred on all classes of the community. It may be said that
he was fortunate in his opportunities, but I venture to assert that no
one, not even the most captious critic, can fairly say that he failed to
grasp the situation, and did not avail himself to the utmost of every
one of those opportunities. It was on such an occasion that the
force of his character as an administrator asserted itself to our
admiration. The keenness of his perception *, his incisive analysis

SIR ASHLEY EDEN. 753

of eveiy scheme suggested to him ; the vigour and resolution with
which he carried through what he had become convinced was for the
benefit of the country ; the fertility ot his resource to overcome obs-
truction; his long and varied experience ; and, above all, the thorough
honesty of purpose and the confidence he inspired among all, official
and non-official, with whom he was placed in contact, combined to
secure that brilliant and successful administration which will ensure
for his reputation a monument more durable than it is in our power
to erect.

" One word more. To the lasting honour of Sir A. Eden be it
borne in mind that on more than one occasion, and with some risk
to his own public career, he has courageously stood forth as the re-
dresser of wrongs, the champion of the oppressed, and has been the
means of securing liberty and freedom of action to the poorest
classes of the community. We are justly proud of such a distingui-
shed public servant, and rejoice at doing honour to his memory in
India." (Applause).

Sir Steuart Bayley, before unveiling the statue, made the following
speech :— •

" Mr. Prinsep, Ladies, and Gentlemen, —

^* It is with special pleasure tjtiat I respond to the call made on me
!by the Committee to preside at the unveiling of the statue of Sir
Ashley Eden. This statue, as you have heard to-day was Subscribed
for and voted 5 years ago by a very full and enthusiastic public
meeting, representing all classes of the community, classes with very
conflicting interests and with very diverse views on many matters,
but all determined to sink those differences and unite in the common
object of doing honour to their departing ruler.

" But many members remain, and to them, as representing all the
most distinguished elements of the Calcutta community, I return my
thanks for the privilege of presiding on this occasion. I began by
saying it gave me special pleasure to do so, because though I could
have well desired that the occasion were graced by better oratory than
I can boast^ and I confess the making of speeches is to me always a
difficult and painful duty, but inasmuch as I have for nearly 30
years been on terms of close intimacy, both personal and official,
Vfith Sir Ashley Eden, and it is so greatly due to his encouragement,
guidance, and support, that I owe what measure of success I have

754 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

achieved, I feel that there is a certain appropriateness in his former
pupil and subordinate being called on to offer the crowning honour
to his Indian career.

'' tt was when he was Magistrate of Barasat that I took charge of
my first sub-division, Halasor, in his district, and it was then I learned
from him some of the most valuable lessons of my career, especially
that of unrestrained intercourse with natives. Later on, during almost
all his career as Secretary to the Government of Bengal, I was his
Junior Secretary, I was again his Secretary when he became Lieuten-
ant-Governor of Bengal, and during his absence on the Army Com-
mission I was selected to officiate for him.

** It is this intimate knowledge which emboldens me in under-
taking a task^ which in other circumstances I should gladly have
transferred to more accomplished hands. I will not go at any length
into the incidents of his career. He first distinguished himself by his
bold and vigilant attitude during the Sonthal outbreak, and the sound
and practical advice he gave in regard to Sonthal administration.
On going for his health to the Mauritius the oppressions practised
on the Indian emigrants attracted his attention, and he succeeded
in arousing the authorities here to vigorous and successful action on
their behalf. His next fight was the great battle against the old
system of indigo as then carried on. The interest opposed to him
was enormously powerful, and he entered on th(s struggle, so far as
he knew, almost single-handed. It was not lon^, however, before
he received the full support of Sir J. P. Grant, without whose deter-
mined aid and sympathy the battle would not perhaps have been won
so soon ; but to Sir A. Eden is due the initiation of the struggle, and
on him was heaped the obloquy which those who enter on such a
struggle must be content to accept as one of its accidents. From
this he soon rose, first to the Secretaryship of the Board of Revenue,
and then, after a service of only lo years, to the Secretaryship to
the Government of Bengal. From this period, with brief intervals
of his mission to Bhutan, and his absence on leave, with the
exception of the 5 years during which he administered Burma,
his official history is to a great extent a history of Bengal, for as a
strong and trusted Secretary he took an important part in shaping the
measures of Sir Cecil Beadon and Sir William Grey, and from the
beginning of 1877 till he left these shores the administration of the

SIR ASHLKY KDEN. 755

province was in his own hands. The address which was presented
to him by the meeting, of which you have heard to-day, recapitulated
briefly those points in his administration as Lieutenant-Governor
which had specially attracted attention. The address dwelt on his
administration of Bengal finance, on the extension of internal com-
munications, roads, railways, and canals ; on the development of
education, and especially the foundation of the Sibpur College, on
the improvements of the Courts, on improved judicial administra-
tion, on his encouragement of sanitation, his sound views in regard
to legislation, and above all on that which came upon him daily —
the smooth working of the administrative machinery. It is un-
necessary that I should go over the same ground again. I would
add a few points : the great care which he bestowed on the adminis-
tration of the hospitals so as to combine economy with efficiency,
the wise action he took in dealing with threatened indigo troubles
in Bihar, the interest he displayed in the foundation of industrial
and art museums in Bengal, and the pains he took to maintain peac^
and harmony in the great historic families of Bengal. The greatest
perhaps of all his labours, and the one which gave most evidence of
his singular ability and mental vigour, \^tis the work he did as
President of the Army Commission. The work has hitherto been
weii-nigh fruitless owing to difficulties and obstructions which have
their origin elsewhere than in India, but the day will come when men
will wonder why such obvious reforms should have been delayed,
and his work on the Commission will be properly appreciated. These
were the acts of his administration which exacted general admiration,
and which led them to vote to him the honour, unique as applied
to the Lieutenant-Governor of Bengal, of erecting his statue in
Calcutta. A very capable judge of these matters, who is well known
as a keen critic and a cautious observer, said to me the other day
that Sir A. Eden was the best Lieutenant-Governor Bengal had ever
had. Without entering into comparisons of this nature it will perhaps
be admitted that he was the most successful, and one ' great elefnent
of his success was, no doubt, as pointed out to you just now, the
use he made of opportunities in managing to secure the approbation,
not of this class . or that class, but of almost all classes* Looking
through the speeches made on the occasion of the Town Hall
meeting 5 years ago, I find all the speakers alluding very much

756 BKNGAL UNDER THE LISUTSNANT-GOVBRNORS.

In the same terms as my honourable friend has done to-night to the
qualities which specially characterised Sir A. Eden as a ruler. Thus

. Mr. Morrison spoke of his '' quick appreciation of facts, calmness
of judgment, courage for the truth, vigour in action, and the faculty
of effective organization and command.'' Mr. Branson said that
which above all commended Sir A. Eden to them was his " strong
common sense.'' He had the power of quickly seeing the true aspect
of any schemes which were propounded to him. The address itself
says "he evinced thorough knowledge of the country, strong common
sense, zeal, vigour, firmness, and frankness, and above all a generous
enlightened sympathy with all classes of the people." And lastly,
his aged friend, Raja Rajendra Narain Deb, dwelt on his knowledge
of the people, his unshaken allegiance to his convictions, and his
fearless efforts to'carry them out.

" To this sketch of his character drawn by various hands (and
I have intentionally preferred to place before you their words rather
than my own), I can add little; but, apart from the strength of his
character and his sound common sense, which were obvious to all,
I was always struck by the extraordinary quickness and acuteness of
his mind. He had an intuitive faculty, which Lord Ripon in one
of his speeches has also noticed, of getting . at salient facts. He
would grasp all the leading points of a complicated bundle of papers,
while another man would be still fumbling over the top letter. He
managed to be acquainted with all that was going on around him,
and he had a genius for supplying the missing links in a chain of
circumstances, which he applied to the &cts of everyday life — a
genius almost like that which enabled the great palaeontologist.
Professor Owen, to reconstruct an antediluvian monster from a single
bone. But nothing served him better than the genuine and sympa-

• thetic friendship unrestrained by constant intercourse with the native
friends who had gathered round him in the early part of his career
and clung to him to its close, and in this respect he offered an
example by which I hope the younger members of the service,
anxious to walk in his footsteps and render their service of real use
to the country, will not fail to profit. He was always ready to receive
his native friends, and talked to them with the utmost fondness. He
was never stiff or formal, nor did he shrink if necessary from saying
unpleasant things. But he treated them as friends because he felt

SIR ASHLBT EDEN. 757

towards them as friends, and this was one of the many elements of
his success. Of course there were faults on which his policy failed
or stumbled. This however, is not the time or place to speak of
these, and I leave the ungracious task to others. Of course also he
was extraordinarily fortunate in the 2 facts that the years of his
Lieutenant-Governorship were blest with bountiful harvests, and that
his provincial contract was made in 1877 rather than in 1887. I look
back upon the resources at his command with feelings of envy and
amazement He was able to spend out of strictly provincial re-
sources no less than 103 iakhs in 5 years on original civil works,
besides devoting 60 iakks to capital expenditure on railways and
canals. Those were halcyon days indeed. If I am able to devote
one-fourth of this sum to the same purposes, I shall deem myself for-
tunate, and so far as I can see what he could afford to spend on mate-
rial progress in one year must now last Bengal for five. I need not
tell you, gentlemen, what this means. You know as well as I do
that with an empty treasury neither administrative nor material
progress is to be looked for. I do not complain of this. Of the 2
alternatives of increased taxation or diminished provincial resources,
I for one do not hesitate to choose the latter. But be it well under-
stood that the price we pay for this is a check on our administrative
progress, and a policy of strict economy and niggardly public works,
and I cannot help looking back with feelings of envy to the opportu-
nities which Sir A. Eden had, and of which, be it added, he made
such excellent use.

'' One word more about Sir Ashley's administration before I sit
down. He once said in public that he had no policy. This I take
it, if analyzed, means the same thing as a remark which I once heard
fall from Sir J. P. Grant, that good administration was like a good
digestion. It did its work, and you heard nothi g about it. Sir
Ashley meant that he did the day's work as it came, and distrusted
political formulae — large generalizations which require a great deal of
piecing and cutting off of angles before you can square them with the
facts to which they are to be applied. Of course this can be carried
too far, but with him it merely meant *' take your stand on facts rather
than on theories," and as a matter of fact his well-known dislike of
fads and theories was consistent with a very sound appreciation of
political and economical science.

758 BBNGAL UNDER THE LIBUTBNANT-GOVBRNOBS.

'' I will not detain you longer, or I would have liked to say
something about' his faculty for getting the best work out of sub-
ordinates, while interfering very little with them or confining him-
self to the Captain's duty of setting the ship's course without always
laying hold of the helm. His Secretaries knew what he wanted
done, and how he wanted it done, without constant reminding, and so
thoroughly was his vigorous mental attitude impressed on them that
their personal idiosyncrasies were wholly absorbed in it. I should
like to have said something of his admirable hospitality, guided as>
it was by excellent taste on a strong sense of decorative art and
beauty, of his personal qualities, which made him the best liked and
most trusted of friends, while to many outsiders he seemed reserved
and morose. But I have already detained you too long, and I can
only in conclusion congratulate this City of Statues, as Lord Lytton
called it, on the addition of one more worthy endowment to those
works of art which form one of its special claims to distinctign."

A story is on record that, when the report of Sir Steuart Bayley's
speech appeared in the papers in London, one of Sir A. Eden's
colleagues in the Secretary of State's Council, meeting him, remarked
laughingly — ** Eden, do you see what Bayley has been saying
about you ? You should be in one perpetual blush !" " No,"
replied Eden ; what has he been saying .?" *• Why, Bayley says
you are the most enlightened and the ablest administrator India,
or rather Bengal, has ever had." ** Is that all ?" said Eden. " Why,
I knew that before well. Can't he say anything more original than
that?"

Sir A, Eden died suddenly of paralysis on the 9th July 1887 in
London, and was buried at Armthorpe, near Doncaster.

At a luncheon given at the Northbrook Indian Club in London,
8 h b Lord ou the 1 2th July 1 887, Lord Northbrook made the
Northbrook. following remarks regarding Sir Ashley Eden, who

had so recently died. '' The Indian Civil Service has been rich in able
administrators, but I do not think that any Indian gentleman will
hesitate to agree with me that we have seen of late years, no abler
administrator than Sir Ashley Eden. He was a member of the
Council of the Viceroy and Chief Commissioner of British Burma
when I was in India ; while filling the latter office he showed great
financial ability. During the Bengal famine it ^as necessary to buy

SIR ASHLKT EDBN. 759

enormous quantities of rice in Burma and despatch it to Bengal.
The business was entrusted to Sir Ashley Eden, who transacted it
admirably, and thereby contributed most materially to the success of
the relief operations ; but it was afterwards, as Lieutenant-Governor
of Bengal, that he most particularly made his mark in India. When
he left Calcutta 5 years ago a great meeting was held in his honour,
and it was determined to erect a statue to his memoiy, and last
April the statue was uncovered by Sir Steuart Bayley, the present
Lieutenant-Governor of Bengal ; on both these occasions the expres-
sions of gratitude to Sir Ashley, and appreciation of his high
qualities from all classes in Calcutta, were very remarkable. Sir
Ashley Eden was distinguished for quickness of perception, for
sound judgment, for firmness in carrying out his views, and
for his power of securing the confidence of those who served under
him. It was said, and very rightly said, at the great meeting at
. Calcutta that these qualities were rendered still more valuable by '' a
generous and enlightened sympathy with all classes of the people."
Some of us recollect the great troubles in Bengal many years ago
connected with the cultivation of indigo. The man who instituted
the reform of the abuses of the old indigo system was Sir Ashley
Eden. As Mr. Prinsep said, *' he courageously stood forth as the
redresser of wrongs at some risk to his own career, and was the
means of securing liberty and freedom of action to the poorest
classes.'' Sir Steuart Bayley made a remark in his speech which is
so true, and at the same time so much in accordance with the objects
of the Club, that I will venture to quote it. He said that nothing,
served Sir Ashley Eden better throughout his successful administra-
tion of Bengal ** than the genuine and sympathetic friendship of his
native friends, who had gathered round him in the early part of his
career, and clove to him to its close, and in this respect he offered
an example by which, I hope, the younger members of the Service,
anxious to walk in his foot-steps, will not fail to profit." These two
distinguished statesmen (Sir Barrow Ellis and Sir Ashley Eden) were
also members of the Council of the Secretary of State for India for
many years, and I am sure you will agree with me that we not only
regret their loss upon personal grounds, but because the country has
lost the services of two men whose opinion on all Indian questions
was entitled to great weight/'

CHAPTER VIII.

SIR AUGUSTUS RIVERS THOMPSON, k.c.s.i., c.i.e.

1882-87.

The appointment of a Lieutenant-Governor has always been made
Previous ^^ Selection, though seniority has necessarily to

°*"^'- some extent affected the choice. Sir A. Eden was

the only Lieutenant-Governor who preceded another Lieutenant-
Governor senior to himself: he had for years held a higher
position than his successor, Augustus Rivers Thompson. The
latter was a son of G. Powney Thompson of the Bengal Civil
Service, a member for many years of the Sadar Court at Agra. His
great-grandfather George Nisbet Thompson, was Private Secretary
to Warren Hastings. At Eton he distinguished himself, by both
playing in the Cricket Eleven (beating Harrow and Winchester) and
rowing in the Eight (beating Westminster) in 1847. I heard him
say at an Eton dinner at Belvedere that the proudest day of his life
was that on which he had both rowed against Westminster and
played against Harrow. Having been appointed after the usual
course at Haileybury to the Bengal Civil Service in Jime 1850 he
arrived in India on the 28th December 1850. After serving as
Assistant Magistrate-Collector, Bankura, 1852, he held the following
offices: — Assistant to the Governor-Generars Agent, south-west
frontier, September 1853 • Magistrate, Birbhum, 1855 : Deputy
Commissioner in the Sonthal Parganas, 1856 : (fuilough from
October 1856 to January 1859) Superintendent of Survey, January
1859 ; Junior Seccetary, Board of Revenue, April 1859 > Junior
Secretary, Government of Bengal, July 1859; Secretary, Board of
Revenue, April 1861 ; Collector of Customs, November 1861 ;
Magistrate-Collector of Rajshahi 1862 ; Civil and Sessions Judge of
Nadia, May 1862, confirmed August 1865 ; (furlough from February
1866 to February 1868); Superintendent and Remembrancer of
Legal Affairs, February 1868 ; Commissioner of Revenue and
Circuit, Presidency Division, January 1869 ; Secretary to the Govern-
ment of Bengal, Revenue and Genera! Departments, September

iio^'Mre. Surv^ of fadia Office s.Calcuna.,H[ivembi!r L3

SIR AUGUSTUS RIVERS THOMPSON. K.C.S. I., CLE.

SIR RIVERS THOMPSON. 761

1869; Ditto, in the Judicial and Political Departments^ November
1871 ; (furlough from March 1872 to December 1 873) ; Secretary
to the Government of Bengal, December 1873 ; he refused a seat in
the High Court in 1875, ^^^ ^<^^ afterwards went to officiate as
Chief Commissioner of British Burma, April 1875 » ^^s confirmed ist
May 1877; Member of the Govcrnor-Generars Council, i8th April
1878; Lieutenant-Governor of Bengal 24th April 1882.

The Provincial financial contract of 1882 with the Government
Provinefai ^^ India was in force for the 5 years 1882*83 to

Finance. 1 886-8 7, and its term practically coincided with

Sir R. Thompson's tenure of office. The previous contract of
1877 may be described as falling naturally into 3 parts: (i) in
respect of the branches of service which had been provincialised
by Lord Mayo, the old principle was retained ; a fixed annual grant
was made from Imperial revenues, which, together with the receipts
of those departments, was expected to cover their expenditure, any
growth of charges being provided for from the increase in the
receipts ; (2), in respect of the civil heads of revenue and expendi-
ture now provincialised for the first time, a separate contract was
made for each head of revenue and for each head of expenditure ;
the rates of increase in the payments on account of the revenue from
Excise, Stamps, and Law and Justice being advisedly taken at a low
figure, so as to leave the Local Government a margin wherewith to
meet the normal growth of civil expenditure for which no direct
allowance was made ; (3) in respect of public works constructed from
borrowed capital, the Lieutenant-Governor ^'as authorized to resort
to local taxation to make good the deficit of interest charges in excess
of net earnings.

The contract of 1882 differed materially from that of* 1877.
The principles on which it proceeded, in common with the contracts
for all other provinces in India, were summarised thus : —

'' Instead of giving the Local Government a fixed sum of money
to make good any excess of provincialised expenditure over provin-
cialised receipts, a certain proportion of the Imperial revenue was
devoted to this object. A few heads were reserved as Imperial ;
others were divided in proportions, for the most part equal, between
Imperial and Provincial ; the rest were made Provincial. The
balance of transfers, being against the Local Government, was recti-r

762 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

fied by a fixed percentage on its Land Revenue otherwise reserved
as Imperial. At the same time a distinct declaration was made of
the policy to be followed during the term of the. contract The
Imperial Government was to make no demand on the Local Govern-
ment except in the case of disaster so abnormal as to exhaust the
Imperial reserves and resources and to necessitate a suspension of
the entire machinery of public improvement throughout the Empire.
On the other hand, the Local Government was to look for no special
aid from the Imperial Government except in the case of severe
famine, and then only within the following limits: — (i) current
income must have been exhausted, every avoidable expense in every
department having been retrenched, and the public works grants
having been applied to famine work to the very utmost possible ;
(2) savings of past years in excess of the ordinary working balance
must have been drawn up to two-thirds of their total amount ; (3) the
margin of Provincial surplus in normal years was to be liable for
the completion of works begun as relief works, and, where there
was no need of such completion, was to be chargeable up to one-
fourth at most for payment of interest on any Imperial loans which
might have been raised to meet the excess cost of the famine in
general.

"The chief points in which the contract of 1882 differed from
that of 1877 were the following :—/rj/, — the excess of provincialised
expenditure over provincialised receipts was balanced, not by an
annual allotment of fixed amount, but by a fixed percentage of the
land revenue of the province : second, — ^the Local Government was
no longer permitted to appropriate the whole of the increase in the
3 principal sources of improvable revenue, viz,y Excise, Stamps, and
Registration : under the old contract the Local Government surren-
dered fixed sums under Excise and Stamps, and nothing under
Registration ; under the new contract one-half the receipts (including
one half of the profits) under all these heads was to go to
the Government of India : third, — in the new contract the Local
Government gained an interest in the revenue heads of Assessed
Taxes and Forests, and other less important heads of service:
fourth, — the contract of 1882 was a consolidated contract. In
other words, no attempt was made to estimate the future receipts and
expenditure under separate heads, and to fix distinct assignments

SIR RIVERS THOMPSON. 768

for each. The new arrangements were applied to the revised
estimates for 1881-82 as a whole, the total receipts were compared
with the total expenditure, and (after making a deduction of ^7 lakhs
from the revenue side, being the share of the profit on the old con-
tract which the Imperial Government decided to appropriate) the
adjusting percentage of land revenue was calculated so as to balance
the account.

The general financial result of the contract of 1882 was sum-
marised thus — the revenue, which was estimated at Rs 3,93,11,000,
had averaged Rs 4,19,58,000, giving an increase of Rs 26,47,000,;
the expenditure, which was estimated at Rs 4,48,53,000, had averag-
ed only Rs 4,31,27,000, being a reduction of Rs 17,26, oco; and the
deficit, which averaged Rs 11,69,000, had been met by drawing upon
the accumulated balances of the province to the extent of
Rs 58,49,000. The chief branches of revenue which had contribut-
ed to the increase in receipts were — Stamps, Provincial Rates, and
Registration ; while the reduction in expenditure had been almost
wholly confined to the Public Works Departments, in which the
grants for civil works, for capital expenditure on railways and canals,
and for irrigation (net charges), had been cut down so as not merely
to balance the account, but to provide for a large increase of expen-
diture on revenue establishments, judicial Courts, jails, police, educa-
tion, superannuation, and the net charges of provincial State Rail-
ways. The last year was expected to close with a credit balance in
the Imperial treasury of only Rs 16,94,000.

In February 1886 the Government of India appointed a Com-
mission (generally called the Finance Commission) under Sir C. A.
Elliott, then Chief Commissioner of Assam, as President, " for the
purpose of examining expenditure, whether Imperial or Provincial,
and reporting to Government as soon as might be possible, what
economies were therein practicable/* The Provincial contracts were
to expire at the end of the financial year 1886-7; the revision of
these contracts was to come before the Committee who were to ex-
tend their inquiries to all Departments of the Government, whether
Imperial or Provincial, also to examine the home Charges and
certain military charges. The Commission examined, in consultatioii
with the local authorities, the details of revenue and expenditure in
every province, so that the Government of India was in a position to

764 BENGAL UNDER THE LIEUTENANT-QOYBRNORS.

judge more accurately than on the former occasion of its financial
position and resources.

A new Inland Emigration Law (Act I of 1882) came into force
Inland Labour from the 6th of January, 1882. Its leading prin-
S^*^*BiSkr*'to ciples may be thus briefly described. WTiile re-
Burma. taining safeguards against irregular recruitment and

the improper treatment of emigrants on their journey to the
employer's estate and during the term of their engagement, it
sought to facilitate emigration to the tea districts by providing
for an increase in the number of registering officers in the recruiting
districts ; by permitting ' gaLrdQU-sardars to recruit any number
of persons, whereas they were formerly restricted to 20; by
severing all connection between them and contractors; and by
authorizing the employment of local agents to supervise the opera-
tions of gSLTdcn-sardars, or under special license, to recruit emigrants
themselves and despatch them to the labour districts without the
assistance of sardars. The term for which contracts might be made
was extended from 3 to 5 years, and no restriction whatever was
imposed on free emigration. The labourer was thus enabled to pro-
ceed to the tea districts either as a free emigrant, taking work on an
ordinary contract, or entering into a contract under the Act. In the
first case he was in no way subject to the Act ; in the second he was
subject onl> to such of its provisions as referred to the carrying out
of the labour contract ; and in the third he was completely under
the Act from the date of his recruitment until the expiration of his
engagement. As far as the Government of Bengal was concerned,
which chiefly had to deal with questions connected with the recruit-
ment and passage of the emigrant to the labour districts, the recent
extension of the railway system, the improvement in the means of
commimication, and the consequent shortening of the journey, had
much diminished the need of any emigration law. In the labour
districts, where the emigrant came under contract, the case was
different in the interests both of the employer and the em-
ployed ; but for Bengal the continuance of any special law at
all . was likely to be found unnecessary after the lapse of a few
years. An important step in the promotion of rapid communication
with the Assam Valley was taken in 1882-83 by the establishment
of a subsidised daily steam service between Dhubri and Dibrughar,

SIR RIVERS THOMPSON. 765.

the firms who took th6 contract having engaged to acc6niplish the
voyage between these places regularly in 4 days. To this service the
Bengal Government contributed JRs. 35,000 a year. In January 1886
a similar service was started by the same firm between Narayanganj.
and Sylhet and Cachar, with prospects of great advantage to the
health and comfort and' convenience of future emigrants. Hefe,.
too, the Government of Bengal promised an annual subsidy of
Rs. 10,000 for 2 years, when the enterprise was expected to be self-^
supporting.

It had for some years past been considered desirable to dis-
courage as far as possible recruitment through the agency of
contractors, and to promote in its place the general employment of
gSLrden-sardars ; and the provisions of the new law, permitting the
appointment of local agents^ were introduced especially to further
this object.

The great feature, however, of this period was the development
of free emigration. This third system worked outside the Emigra^
tion Act, and under it recruiters without any license might collect
labourers in the recruiting districts and tak^ them to Assam on their
own responsibility, unaided by Government. .This came to be the
principal method of recruitment, and accounted for the large
reduction in the year 1885 ^^ ^^^ number of coolies who emigrated
under the special protection of the Act. In 1886 free emigration
was both actually and relatively more active than in any previous
year, emigration under the other 2 systems having fallen to the
lowest numbers recorded for 5 years. It was expected that even-
tually the entire supply of labour to the province of Assam would
be by free emigration.

In 1882, the Bihar-to-Burma emigration scheme was introduced
with a view to*^elieving the congested tracts of some of the
redundant population. Most favourable terms were offered by
Government. The passage of each family was paid to Rangoon,
and their conveyance to the village in which they were to live was
defrayed by Government. Houses were supplied, and food given,
free of cost, until wages could be earned ; and work was assured
to able-bodied labourers for one year. After completion of a year's
work' holdings of culturable land in proprietory right, of an area
Varying from 10 to« 20 acres, w<^re to be allotted to each family*

766 BENGAL UNDISR THE LIEUTENANT-GOVERNORS.

THese holdings were to be exempt from land revenue for 5 years.
Finally a special officer was to. be deputed to take charge of the
colonists and to guard their interests. About 70 men and 4 women
were sent to the Pyuntaza plain. They remained for a few weeks
on the sites selected for them, receiving Government rations and
doing but little work. At the end of that time they abandoned their
homes, and took employment as coolies on the railway line or
returned to Rangoon. The scheme failed, after costing Government
Rs. 33,000; its failure was attributed to the dislike of natives of
India to abandon their homes and settle in a foreign country, to
the non-fulfilment of promises held out to immigrants by subordinate
emigration agencies, and to the annoyances .experienced in a new
country by the immigrants.

In the beginning of 1882 a Commission was appointed by the

Government of India composed of departmental

The IndiAn Bdu. . «« r ^ j

cation Commu. and executive omcers 01 Government and represen-

tatives of the educated native community of each
pro\ince (except Burma, to which the inquiry was not extended).
The main object of the inquiry was to investigate the working of
the system founded in 1854 and to ascertain the actual position of
education in India at the time (1882). Since the last reviews
prepared by the Government of India of the state of Education in
the country the control of the Education Department had been
transferred, under the decentralising policy, to the Local Govern-
ments^ and a more thorough examination was required than could
be obtained from Reports and statistics. The Commission was under
Sir W. W. Hunter, k. c. s. i. as President and reported in September
1883. The Government of India came to the conclusion that the
experience of nearly 30 years had brought to light no serious flaw in
the general outlines of the policy laid down in 1854 and confirmed
in 1859, ^^^ ^^^^ ^^y unsatisfactory result^ found to exist were
generally due to non-observance of the principles of the. despatches
of 1854 and 1859.

The recommendations of the Commission — so far as they received
the confirmation of higher authority, and were found to be compa-
tible with the circumstances and resources of Bengal, — were likely.
to largely determine the future progress of education in the province.
The changes recommended were expected not to. affect the Bengal

SIR RIVERS THOMPSON. 767

educational system as deeply or vitally as those of some other
provinces ; for in many respects it was the system and policy already
followed in Bengal that were recommended for general adoption.
In the support and countenance afforded to indigenous schools,
whether of elementary or of higher instruction ; in the encourage-
ment afforded to private enterprise in education by the grant-in-aid
rules, and the spirit in which they were worked ; in the reluctance
of the Department to open Government schools whenever private
institutions could be expected or encouraged to do the work ; in
the active support given to the higher education of Muhammadans ;
in throwing open Government scholarships to unrestricted competi-
tion and making them tenable as freely in institutions under private
as in those under Government management, — in these as well as
other vital points the Bengal system met with approval. In other
points the system was held to be defective. The InsufTiciency of
the grant allotted for primary education ; the necessity of raising the
standard of instruction ; the need of further provision for inspecting
primary schools and for securing a due supply of qualified teachers ;
the desirability of offering more liberal rates of aid to private
Colleges ; the need of increased provision for the supply of female
teachers, — these were points in which the Bengal system was regard-
ed as laying itself open to criticism. The possibility of some of the
reforms indicated depended on the possibility of increased funds
being granted for education.

The Government of Bengal, in accordance with the recommenda-
tions of the Commission, took steps to transfer the Berhampore and
Midnapore Colleges to private management ; while it recognised the
claims of private enterprise by sanctioning a grant-in-aid to the
College classes opened in connexion with St. Paul's School for
Europeans at Darjeeling and to the new second grade College
for native students at Narail in Jessore. The Colleges at Krish-
nagar and Rajshahi were retained under Government manage-
ment, in the absence of any local agency to which they could be
transferred with adequate guarantees of permanence and efficiency.
A special exception was made in favor of the small and expensive
College at Chittagong, on account of its distance and isolation. The
proposal of the Commission for the promotion of primary education
at an increased cost of lo lakhs a year had to be postponed for want .

768 BBNGAL UNDER THE LIEUTENANT-GOVERNORS.

of funds. On the formation of District Boards under the Local Self-
Government Act of 1885 all Government middle and primary schools
were transferred to their management ; and subsequently the grant-
in-aid allotment, and primary grant for middle and primary schools
in extra-urban tracts were similarly transferred. For primary school
teachers, training classes were established in connection with middle
schools. The proposal to>stablish an alternative standard at the
Entrance Examination, in the future interests of technical instruc-
tion, was referred to the University, Briefly the recommenda-
tions of the Commission received the fullest attention compati-
ble with the necessity of avoiding any considerable increase of
expenditure.

The excitement which "the llbert Bill" caused at the'time has

long since subsided and there are probably not

ThenbortBilL . i^ •

many persons -in India who could state correctly
offhand what was the exact object of that measure, though it may be
generally remembered that the intention of Government was in some
way or other to subject Europeans to the jurisdiction of native Magis*
trates in a manner which had not been previously authorised by law.
The measure was of such political importance, and aroused such
strong passions that it will be worth-while, even at some length, to
record precisely what was aimed at, what was effected and what
part Sir Rivers Thompson, as Lieutenant-Governor, took in the
controversy. The idea of legislating did not originate with him but
was the outcome of a letter of the 20th March 1882, written under
Sir Ashley Eden's orders, one of the last letters of any importance
issued before his retirement. Nor did the Bill originate in any
opinion given by Sir C. P. Ilbert, the Legal Member of Council.
He explained in Council that Sir A. Eden's letter was received and
circulated to the Local Governments before he took his seat (on the
jst, May 1882) in Council and that he never heard anything of the
subject until after the replies of the Local Governments had been
received. But the Bill, as it first issued, was accompanied by a
Statement of Objects and Reasons, to which his name vf2iS attached,
and was therefore always called after him. The letter of the
Government of Bengal of the 20th March, and Mr. B. L. Gupta's
note, (which initiated the whole matter) admit of no abridgment, if
the origin of the Bill is to be understood. They ran as follows : —

SIR RIVERS THOMPSON. 769

'* I am directed to submit for the consideration of the Government of
Datod the 80th. India, the accompanying copy of a note by Mr B. L.
January 1882. Gupta, of the Bengal Civil Service, representing the

anomalous position in which the native members of the Covenanted
Civil Service are placed under the provisions of the Code of Criminal
Procedure, which limit the jurisdiction to be exercised over European
British subjects in the interior to judicial officers who are themselves
European British subjects. Chapter VII of Act X of 1872, which deals
with the subject, has been reproduced in the new Code of Criminal
Procedure {yide Chapter XXXIII of Act X of 1882).

The question raised in Mr. Gupta's note is one which requires full
consideration, and on which the Government of India will probably
deem it desirable to obtain the opinions of all the Local Governments
and Administrations) inasmuch as it may not be expedient to apply to the
Madras and Bombay Presidencies a rule which may be applicable to
Bengal. Mr. Gupta desired that the question of the jurisdiction to be
exercised by Covenanted Civilians over Europeans in the mufasscd
might be considered in connection with the Bill to amend Act X of
1872 ; but the Lieutenant-Governor felt that a discussion on the subject
could not with propriety be raised at the final reading of that Bill. Sir
Ashley Eden is, however, of opinion that the matter should receive full
and careful consideration, whenever, on any future occasion, .a fitting
opportunity occurs.

As a question of general policy, it seems to the Lieutenant-Governor
right that Covenanted Native Civilians should be empowered to exercise
jurisdiction over Europsans as well as over natives who are brought
before them in their capacity as Criminal Judges, Now that Native Cove-
nanted Civilians may shortly be expected to hold the office of District
Magistrate or Sessions Judge, it is also, as a matter of administrative
convenience, desirable that they should have the power to try all classes
of persons brought before them. Moreover, if this power is not con-
ferred upon native members of the Civil Service, the anomaly may be
presented of a European Joint-Magistrate, who is subordinate to a native
District Magistrate or Sessions Judge, being empowered to try cases
which his immediate superior cannot try. Native Presidency Magistratei^
within the towns exercise the same jurisdiction over Europeans that they
do over natives, and there seems to be no sufficient reason why Cove-
nanted Native Civilians, with^he position and training of District Magis-
trate or Sessions Judge, should not exercise the same jurisdiction over
Europeans as is exercised by other members of the service.

For these reasons. Sir Ashley Eden is of opinion that the time has
Qow arrived when all native members of the Covenanted Civil Service

7 70 BENGAL UNDBR THE LIEUTENANT-GOVERNORS.

should be relieved of such restrictions of their powers as are imposed
Oft them by Chapter XXXIII of the new Code of Criminal Procedure,
or when at least Native Covenanted Civilians who have attained the
position of District Magistrate or Sessions Judge should have entrusted
them full powers over all classes, whether Europeans or native, within
their jurisdictions."

Jurisdiction over European British subjects.
As the law now stands— section 72 Chapter VII of Act Xof 1872 —
no Magistrate or Sessions Judge has jurisdiction to inquire into a
complaint or to try a charge against a European British subject unless
he is a Justice of the Peace and himself a European British subject.
An exception to this rule is allowed within the Hmits of Presidency towns
where, under Act IV of 1877, a Presidency Magistrate, whether himself
a European or not, has the same jurisdiction over Europeans as over
natives of the country.

Previous to the passing of Act X of 1872 (the present Criminal
Procedure Code) no Magistrate or Justice of the Peace, even though a
European himself, had jurisdiction (outside the limits of the Presidency
towns) to try a charge against any European British subject. But all
Magistrates who were Justices of the Peace had jurisdiction to inquire
into charges against Europeans and to commit them to the High Court
for trial. (See sections 39, 40, and 41 of Act XXV of <86i, the old
Criminal Procedure Code.) And by section 3, Act II of 1869, the
Government was empowered to appoint any Covenanted Civil Servant
to be a Justice of the Peace. Under Act X of 1873, however, a Covenant-
ed Civil Servant, even though a first class Magistrate and a Justice
of the Peace, would have no jurisdiction over a European British subject
unless he himself is a European British subject.

This provision of the law would give rise to an invidious distinction

and to many practical inconveniences
na^'SiSX^tr cM^h?^'^ in the case of those natives of the

?8?2rVuSf^^^n^Se^^^^^^^^^ <^ountry who in the course of time

India baxette of the 4th. May 1872, page expect to attain to the position of a

District Magistrate or of a Sessions
Judge. Hence, when the Bill for Act X of 1872 was still before the
Council, an amendment to section 72 in favor of the native members of
the Covenanted Service was proposed by the Hon'ble Mr. Ellis. The
amendment* was put to the vote and lost by a majority of 7 against 5*
. But it is remarkable that the minority in that instance comprised the
highest officials of the State. The President and Governor-General, the
Commander-in-Chief, the then Lieutenant-Governor of Bengal, and his
successor in office, all voted for the amendment, and I would humbly

SIB RIVERS THOMPSON. 771

invite attention to the utterances of those dignitaries on that occasion.
Nothing can be added to the eloquence or sound reasoning of those
speeches, and I shall content myself with appending a few extracts for
ready reference.

The Bill of the new Criminal Procedure Code now before the Council
proposes (section 443) to perpetuate the distinction noted above, and the
disability under which myself and other Indian members of the Service
labour. The arguments which were uttered in 1872 for its removal
present themselves with redoubled force after an interval of 10 years.
They are too obvious to require mention, and they would lose all their
grace and much of their force if repeated by one who is personally
interested in the matter. My only statement on the subject is, that if
you do entrust us with the responsible office of a District Magistrate or
of a Sessions Judge, do not cripple us in our powers. The question
affects seriously the efficiency of district administration ; and I make
bold to trust that the expediency of a change in the law cannot but be
recognized if the matter be put before the Council in its present true light.

Since the passing of Act X of 1872, however, the constitution of the
Civil Service has undergone an important change, with reference to
which a few words need be said. Under a recent measure of Govern*
ment, natives of India have been appointed to the Covenanted Civil
Service under a system of nomination and without the test of any
competitive examination or a compulsory journey to England. This
fact somewhat alters the aspect of the question discussed in the Council
in 1872, and under existing circumstances stronger objections would
probably be raised against any proposal to extend generally the criminal
jurisdiction over European British subjects to all native members of the
Covenanted Civil Service. -I would therefore venture to make a sugges-
tion which would probably meet the urgent requirements of the case,
at the same time that it would obviate all reasonable objections and
command a general assent. I would propose that the extension of
jurisdiction over European British subjects be limited to natives of
this country holding the office of a Magistrate of the District or of a
Sessions Judge.

B.'L. Gupta.

The Government of India consulted all the Local Governments
and Administrations, and on receipt of their replies a Bill was
prepared "to ameiid the Code of Criminal Procedure 1882, so far
as it relates to the exercise of jurisdiction over European British
subjects.'* The Bill and the Statement of Objects and Reasons,
dated the 30th. January 1883, were as follows : —

772 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

ThA UUt dauK of section 9S of 188S :

"Maj by notification in the official
Gazette appoint such European British
subjects as ho or it thinks fit to bo Jus-
tices of the Peace within and for the
territories mentioned in such notification."

P}'eat»bU,

Whereas It is expedient to

amend the Code
of Criminal Pro-
cedure, 1882, so far as it relates to
the exercise of jurisdiction over
European British subjects; it is
hereby enacted as follows : —

Aifuikdnunt 0/ Sec-
tion n.

For the last clause of sec-
tion 22, the
following shall
be substituted :— " may, by notifi-
cation in the official Gazette, ap-
point such persons as he or it
thinks fit, who, being

(a) members of the Covenanted
Civil Service,

{b) members of the native Civil
Service constituted under the
Statute 33 Vic, c. 3,

[c) Assistant Commissioners in
Non-Regulation Provinces, or

(d) Cantonment Magistrates,
are invested with the powers of a
Magistrate of the first class, to be
Justices of the Peace within and
for the territories mentioned in the
notification."

Section SS,

" In yirtue of their respectlTe offices the
GoTemor-Gtoneral, the Ordinary Members
Of the Council of the Oovemor-General,
the Judges of the High Courts and the
Recorder of Ranvoon and Justices of the
Peace within and for the whole of British
India, and Presidency Magtstofctes are
Justices of the Peace within and for the
towns of which they are respectively
Xagistrates.

Amendment qf
teetion 95,

2. In section 25, after the

words " British
India" the
following shall be inserted : — " Ses-
sions Judges and District Magis-
trates are Justices of the Peace
within and for the whole of the
territories administered by the
Local Government under which
they arc serving."

SIR BIVBRS THOMPSON.

773

Seeliwi U3.

"No MaglBtrato unless he Is a Justice
of the Pesoe snd (except bi the caseof a
Presldenoy Magistrate) unless ho is «
Maglstmte of tiie lint class and an BU'
ropean British subject, shall enqulio into
or try anj chaa^ against an Buropean
Britldi subject'*

8eeti<m IM.

"No JudfPB presiding in a Court of
Session shall exercise Jurisdiction oyer
an Buropean British subject unless he
himself is an Buropean British subject ;
and, if he is an Assistant Sessions Judge,
unless ho has held the office of Assistant
Sessions Judge for at least S years, and
hss been specially empowered in this
behalf by the Local Goyemment"

Seciion hSO.

If the Judge of the Sessions Dlyision
within which the offence is oxdlnarily
triable is not an Buropean British subject,
the case shall be reported by the com-
mitting Msgistrate for the orders of the
highest Court of Criminal anpoal for the
proyinoe within which sucn Diyision is
situate.

TheUut IB wordt of teetifm 1,59.

" or on any Magistrate or Sessions Judge
outside the Presidency towns not being
an Buropean British subject."

NevD HCtion

tvJbiiiiuUd for

iteiion lAU.

3. In section 443, the words
AmendiiuHt "and an Eu-

ropean British
subject '' shall be omitted.

4. For section 444 the follow-
ing shall be sub-
stituted : — ** 444.
An Assistant Ses-
sions Judge shall not exercise
jurisdiction over an European

British subject,
unless he has
held the office
of Assistant Ses-
sions Judge for at least 3 years,
and has been specially empowered
in this behalf by the Local Govern-
ment."

5. Section 450 and the last
„ , , 16 words of sec-

tkH^ielfo^ tion 459 are here-
on iection U69, ^y repealed.

Assistant Ses-
sions Judges
whomaytrv Bu-
ropean British
subjects.

6. (i) In this Act " section "
means section of
the Code of Cri-
minal Procedure, 1882.

X of 1883.

Statement of Objects and Reasons,

Shortly after the Code of Criminal Procedure, Act X.of 1882, was pass-
ed, the question was raised whether the provisions of that Code which limit
the jurisdiction over European British subjects outside the Presidency
towns to judicial officers who are themselves European British subjects
should not be modified. It was thought anomalous that, while natives
of India were admitted to the Covenanted Civil Service and held compe-
tent to discharge the highest judicial duties, they should be deemed

774 BENGAL UNDER THE J^IEUTEN ANT-GOVERNORS.

incompetent to be Justices of the Peace and to exercise jurisdiction over
, European British subjects outside the Presidency towns.

After consulting the Local Governments, the Government of India has
arrived at the conclusion that the time has come for modifying the
existing law and removing the present bar upon the investment of native
' Magistrates in the interior with powers over European British subjects.
The Government of India has accordingly decided to settle the question
of jurisdiction over European British subjects in such a way as to
remove from the Code, at once and completely, every judicial
disqualification which is based merely on race distinctions.

With this object the present Bill has been prepared. In section one
it amends section 22 of the Code, which provides that only European
British subjects can be appointed Justices of the Peace, and gives the
Government power to appoint to that office . such persons as it thinks
Qt belonging to the following classes : —

(a) Members of the Covenanted Civil Service ;

{d) Members of the Native Civil Service constituted by the rules made
under the Statute 33 Vic, c. 3 ;

((f) Cantonment Magistrates, and being persons invested with the
powers of a Magistrate of the first class.

The Bill then in section 2 amends section 25 of the Code, and makes
all Sessions Judges and District Magistrates ex officio Justices of the
Peace.

Section 3 repeals so much of section 443 of the Code as limits juris-
diction over European' British subjects outside the Presidency-towns to
Magistrates who are themselves European British subjects.

Session 4 repeals the similar provision of section 444 of the Code
with regard to Sessions Judges.

Lastly, section 5 repeals section 450 of the Code, which provides for
the case where the Sessions Judge of the Division within which the
offence is ordinarily triable is not an European British subject. The
same section of the Bill also repeals so much of section 459 of the Code
as provides that that section shall not be deemed to confer on Magistrates
and Sessions Judges outside the Presidency-towns, not being European
British subjects, jurisdiction over European British subjects.

The 30th. January, 1883.

C. P. ILBERT.

On the 2nd. February 1883 Sir C. P. Ilbert moved for leave to
nitroduce the above Bill and it was introduced formally on the 9th
idem : but the Council were not then invited to discuss Che principle

SIK RIVERS THOMPSON. 775

of the Bill until full time had been given for its consideration by the
public. On the 9th March Mr. Ilbert moved that the Fill be
published 4n the Gazettes. This motion was agreed to without a
division, but after a debate in which the most opposite opinions were
expressed, from those in support 'of the measure . to those urging
its immediate withdrawal. The latter was pressed by Sir R.
Thompson, who said : ' If it be the opinion of the Government of
India that this is a case of temporary excitement which will soon die
out I am sure they are mistaken ; for I feel that in the whole of my
experience in India this is unmistakeably the strongest and most
united and unanimous expression of opinion of public discontent
that I have ever known and that the last state will be worse than the
first.' The debate occupies pages 764-830 of the Supplement to
the Gazette of India of April 21, 1883, and is too long to
reproduce.

The Bill, with the Statement of Objects and Reasons was circulated
for the opinions of Local Governments and Administrations on the
17th March 1883 : but before that date, and indeed before the debate
in the Legislative Council on the 9th March, the fierce opposition
which the project of law was to encounter had manifested itself. A
public meeting of the European community of Calcutta was held
at the Town Hall on the 28th February. The room was crowded
and no one who was present can ever forget the scene. The speakers
were cheered again and again, and the utmost unanimity and deter-
mination to resist the measure were exhibited. The following
Resolutions were adopted. The first — proposed by Mr. J. J. J.
Keswick, seconded by Mr. J. H. A. Branson, supported by Mr. W.
Bleeck, was : —

'' That in the opinion of this meeting the Bill for the amendment
of the Criminal Procedure Code is unnecessary in the interests of
justice ; uncalled for by any administrative difficulty ; based on no
sound principle ; founded on no experience ; whilst forfeiting a much-
valued and prized and time-honored privilege of European British
subjects, it confers no benefit upon natives ; whilst imperilling the
liberties of European British subjects, it in no way affords any
additional protection to natives ; it will deter the investment of British
capital in the country by giving rise to a feeling of insecurity as to
the liberties and safety of the European British subjects employed

77& BENGAL UNDER THE LIEUTBNANT-aOVERNOBS.

in the mu/assal and also of their wives and daughters ; and it has
already stirred up on both sides a feeling of race antagonisn and
jealousy, such as has never been aroused since the mutiny -of 1857."
The second Resolution was proposed by Mr. J. Pitt Kennedy,
seconded by Mr. W. H. Pratt, supported by Mr. J. G. Apcar : —

" That memorials of protest be drawn up, and circulated for
signature in Bengal and other provinces ; and, when duly signed,
be presented to His Excellency the Viceroy and Governor-General
in Council and to Her Majesty's Secretary of State for India ; and
that the Sheriff be requested to sign the same on behalf of this
meeting."

" That jietitions for the protection of the rights, privileges and
liberties of Her Majesty's European British subjects be drawn up
and circulated for signature in like manner, and, when duly signed,
presented to both Houses of Parliament."

Third Resolution. — Proposed by Mr. J. Murdoch, seconded by Mr. D.
Cruickshank, supported by the Revd. H. Finter.

" That a Committee be formed consisting of the following gentle-
ment : — Messrs. Keswick, Flemington, Thomas, A. B. Miller, Apcar,
Branson, Ezra, Gubboy, Finter, Madge, Murdoch and Cruickshank,
with power to add to their number, for the purpose of preparing the
memorials and petitions in terms of the last Resolution."

The Viceroy and Members of the 'Supreme Government left
Calcutta for Simla while the question was in the state described
above. The opinions collected by the Government of India from all
India were published in an extra Sup pie men i to the Gazette of India
September 8th. 1883, pages 1-416.

Sir R. Thompson's opinion,, as Lieutenant-Governor, on the
Bill was laid before the Government of India in the Secretary's letter
of the 22nd. June 1883, as follows : —

I am directed by the Lieutenant-Governor of Bengal to submit his
opinion upon the Bill to amend the Criminal Procedure Code to which
his attention was called in your letter No. 25 C, dated the 17th. March
last. On receipt of that letter, a circular was issued to Commissioners
of Divisions, inviting an expression of their views upon the subject,
after consulting selected officers interested in the measure, and qualified
to express an opinion upon it. Copies of the replies received have
already been forwarded from time to time for the information of His
Excellency the Viceroy and Governor-General in Council. This is the

SIR RIYERS THOMPSON. 777

first time that an opportunity has been offered to the Bengal Government
and its officers to report upon the Bill ; and though the Lieutenant-
Governor has little doubt that the impassioned controversy which has
arisen, since the intention to legislate was declared, has strongly influ-
enced opinions on both sides of the question, the fact remains that the
general result, as gathered from the replies received, is, both in the
number and weight of judgment, decidedly against the principle and
policy of the proposal. It appears that, excluding the Judges of the
High Court in Calcutta, whose reply has been submitted direct to the
Government of India, there were 79 . officers in Lower Bengal whose
Reports appear in the published replies, and, from as fair an analysis of
these Reports as can be made, the result is that, while 20 gentlemen
approve of the principle of the Bill, and would recommend its enactment,
there are 59 who are either entirely against it, or who, accepting the
soundness of the theory upon which the Bill is based, object for
one reason or another to its being passed into law. Of the 20 writers
in favor of the measure, 19 are natives and one (Mr. Coldren) is a gentle-
man connected with the American mission in the district of Balasore.
All but one of the 19 natives are in the public service, and include
the Covenanted Civilians, now officiating as Magistrates and Collectors
in charge of districts. The others, with 2 exceptions, one of whom
is a Government Pleader, are Deputy Magistrates and Deputy Collectors
in Government employ. Mr. Coldren, to whom reference has been made
is an American, and, though in his brief remarks he recorded his per-
sonal support of the Bill, he adds that from inquiries made he finds that
a large majority of the leading members of the Christian community
under him are not in favor of having native gentlemen to try Europeans.
Out of the 59 gentlemen opposed to the proposed legislation, it will be
sufficient to notice that the list comprises the Superintendent and Re-
membrancer of Legal Affairs, all the Commissioners of Divisions, all
the district officers and Judges who were consulted, and includes Mr.
Badshah, the Covenanted Native Civilian in charge of the sub-division of
Goalundo, 9 native officers of Government, 8 of whom are in the uncove-
nanted Service (most of them being Deputy Magistrates), and one a
Government Pleader, besides 3 native gentlemen in independent positions
unconnected with Government employment. Besides these, it is evident
Ihat several other gentlemen, whose replies have hot been forwarded, had
expressed opinions unfavoiirable to the Bill, and that the non-official
European community is unanimously opposed to it. If the Lieutenant-
Governor had had any doubts regarding the necessity or the policy of
the contemplated legislation before, he must say that they would have
been entirely removed by the great weight and the numerical superiority

778 BENGAL UNDER THB LIEUTENANT-GOVERNORS.

of the earnest arguments now adduced in condemnation of the Bill ;
and he has only, therefore, to say that the opposition which he has con-
sistently maintained to the introduction of the measure from its first sub-
mission to the Executive Council of the Government of India in 1881
has only been confirmed and strengthened by the later developments of
the discussion.

Before referring to the grounds upon which this opposition, in which
Mr. Rivers Thompson regrets to find himself at variance with His
Excellency the Govemor-General-in-Council, is based, I am directed to
notice some points in the Bill which demand consideration. If the Bill,
as it has been circulated for opinion is passed (i) all native Sessions
Judges and Magistrates of districts will, by virtue of their office, be
empowered to exercise the same jurisdiction over European British sub-
jects as now belongs to European officials in the same positions ; and (2)
any native Magistrate Of the first class who is a Covenanted or Statutory
Civilian, or who is an Assistant Commissioner in a Non- Regulation pro-
vince or a Cantonment Magistrate, may be invested, at the discretion of
Government, with similar powers. Hitherto the Government has widely
exercised the power of appointing as Justices of the Peace many Euro-
peans who, not being in the Government service, do not come within
any of the classes above mentioned, and a great administrative conveni*
ence has been thereby secured. The withdrawal of this power, even if
vested interests are saved, will, in the Lieutenant-Governor's opinion,
operate to the detriment of the administration of Justice, because it may
very well happen that in many places such as the minor sea-ports, out-of-
the-way subdivisions, and occasionally at railway stations, the services of
an Honorary European Magistrate would secure all that was requisite,
when neither Covenanted nor Statutory Civilians were available for the
duty. The omission of course might be easily remedied ; but, if it is
remedied by the reservation of such powers in the hands of Government
as now obtain, it is obvious that one principle upon which the Bill is
based will be compromised, and the limitation of the grant of such judi-
cial powers to European British subjects alone could not be defended.
As the Lieutenant-Governor understands, however, the Government of
India is not prepared to go to the extent of conferring such powers upon
natives generally.

Again, in the matter of cantonments, the observations of His Ex*
cellency the Commander-in-Chief, speaking with the authority of Govern-
ment in the debate of the 9th. March last, seem to show that there was no
intention of conferring the office of a Cantonment Magistrate upon
natives. It is not readily intelligible why, if race distinctions in judicial
offices are untenable, such distinctions should be entertained in favor of

SIR RIYSRS THOMPSON. 779

the military, and not of the civil population of the country ; but assum-
ing that the decision is final (and the Lieutenant-Governor is clearly of
opinion that the decision is a right one\ clause (d), section i of the Bill
will have to be amended. But in this connection it is necessary to direct
attention to paragraph 1 1 of the Report received from the Commissioner
oC Orissa, where he points out that in Cuttack the Joint Magistrate, or^
in his absence the Magistrate of the district exercises the judicial powers
of the Cantonment Magistrate, and if, " either of these officers should be
a native, he would, as Cantonment Magistrate under the Bill exercise the
jurisdiction which His Excellency appeared unwilling to concede.'^ How-
ever, supposing the Bill to be modified as suggested, the difficulty, though
involving an anomaly, might be met by the executive arrangement of
never appointing a native Covenanted Civilian to the Magistracy or joint
Magistracy of Cuttack.

The Bill, as it proposes to enlarge the powers of Assistant Commis-
sioners in N on- Regulation provinces, does not aflect any of the districts,
under the Bengal administration, and the Lieutenant-Governor may
leave it to others to deal with this clause. He would only remark
that it vety often happens that an Assistant Commissioner is a native, in
no respects different from the Deputy Magistrates of the Regulation
province, and with but a tithe of the experience which the older Deputy
Magistrates possess in the administration of the criminal law. If
the Deputy Magistrate is not to exercise jurisdiction over European
British subjects, there is a much more forcible reason why the
native Assistant Commissioner should not have such a power. The
case as regards the Statutory Civilians seems stronger still ; and
the Lieutenant-Governor is constrained to refer more at length to the
question as it concerns the officers appointed under 33 Vic. c. 3,
because his own judgment is here entirely in accord with that of the
great majority of those who have commented upon and condemned the
proposal. The system under which natives of India are thus admitted
to the Covenanted Civil Service of the country has been in force for 3
or 4 years. Altogether, up to the present moment, 6 gentlemen have
obtained appointments to the Covenanted Civil Service under the Statute,
and all of them are still Assistants to Magistrates and Collectors, and
4 only out of the 6 have passed the preliminary departmental examina-
tions which .qualify them for promotion. It may be accepted as certain
that it will take at least 7 or 8 more years before any of these officers
will be in a position to enjoy the dignity of an officiating Magistrate
and Collector of a district. The chances of advancement to a Sessions
Judgeship are even more remote. On the ground, then, of any imme-
diate necessity for legislation on their behalf, even if the principle of the.

780 BIKGAL TENDER THE LIEUTENANT-GOVERNORS.

Bill be aBirmed, do cause whatever can be shown. But this is only a
very small part of the question. The system itself is in an early and
experimental stajg^e of its opera^on ; and if it is to be continued, which
the Lieutenant-Governor considers is likely to- evoke discussion very
soon (because any system of nomination is objectionable, and, as against
Europeans and Eurasians in India, one of the worst anomalies based
on purely birth and race distinctions), it has not yet justified, and
probably never will justify, the conclusion that the men so selected
and admitted to a great service will be competent for other than subor-
dinate positions in it. This is the common testimony, with a few
exceptions, of all the Reports upon the Bill. It is quite truly represented
that these nominated officers, chosen very often more for their social
connections than for any other qualifications, have given no guarantees
of ability and character which should place them in the same category
as the officers who have faced the difficulties and disabilities of a voyage
across the seas, and have, by open competition in England, won their
place in the Civil Service. What the Commissioner of the Presidency
Division says upon this part of the subject is quite true. " The officers
of the Native Civil Service came from the same classes as those from
which the uncovenanted service is recruited. They have the same race-
feeling as those of their brethren of the latter service ; and, save that
they . are not so experienced or so hardworking, there is no difference, as
regards race qualification or disqualification, between a Deputy Magis-
trate and a member of the Native Civil Service under the Statute 33 Vic,
c. >" • There is no magic in the words " Covenanted "Service "
which should be able to transform young men, taken from the same
ranks as the general run of the . Subordinate Executive Service, into
superior beings fitted for posts of high responsibility. If anything is
gained by a temporary sojourn of some 3 years in England, which is
claimed for the Covenanted Native Civilian who enters the service by
competition, the advantage is wholly wanting in the case of the Statutory
officers. There can be no kind of assurance that in their case they will
be free from native thoughts and native prejudices ; and ignorance of
the ways and habits of Europeans is a distinct disqualification for
dealing with criminal prosecutions against Europeans. The Lieutenant-
Governor would ask attention to the forcible remarks made by the
Magistrate and Collector of the z^-Parganas upon this point. Mr. C. C
Stevens, the officer in question, has had 20 years experience in many
districts in Bengal. His whole career has been marked with ah in-
telligent desire for the promotion of native interests. He has had under
him in his district work native Civilians of both classes, and his report,
throughout expresses that sense of regret which every one must share with

sm RIVERS TaaMPsoNv 7H

him, at having to deal with such a question of such invidious delicacy for
such a cause as this Bill represents. Yet the fact is apparent, not from his
Report only, but from the Reports of many other competent officers (and
in this native opinion seems to be almost as decided as European), that
there is an essential difference between these 2 classes of native
Civilians ; and that if the large body of uncovenanted officers are to be
excluded from having jurisdiction in cases against Europeans, on the
ground of unfitness, the disability extends with greater force to those of
the Covenanted Service who enter it by nomination in India.

The Lieutenant-Governor is quite willing to recognize that the case
of competition native Civilians stands on a different footing. They have
made sacrifices to secure the honorable positions which they hold, and
they are sacrifices of a kind which Englishmen, of all people in the
world, are best able to appreciate. They have abandoned caste, they^
have surrendered religious feelings, they have broken family ties and
set themselves against the devout sentiments and doctrines of their
ancient creeds. The sentiment may not be so strong now as it was 1$
or 20 years ago ; but, apart from the religious aspect of the case, the
expense incurred in such an undertaking, and the risks of a long sea-
voyage (exaggerated in its perils to every native mind) to a foreign
country, where they must live as strangers and encounter, in the com**
petition for the prize they are seeking, a large body of English youth
who have enjoyed the advantage of the highest training and education-*
all these circumstances justify a claim to consideration on the part of
the Government. There is weight, too, in the argurAent which finds a
place in many of the papers that, with the attainment of the status of a
district officer, whether he be European or native, there should be no
distinction on the ground of nationSility in the powers and privileges
to be exercised. As an abstract proposition, the Lieutenant-Governor
assents to. this, and, indeed, with much which Mr. Justice Romish
•Chunder Mitter advances in his Minute of the 25th May 1883, the
Lieutenant-Governor would be willing to agree, if the premise could be
accepted that to administrators and statesmen the policy of the measure
was irrelevant and a matter of indifference. The learned Judge carefully
excludes himself as a judicial officer from all such considerations in the
opening paragraph of his memorandum : but it can scarcely be conceded
that we are in India simply to make our laws symmetrical and to redress
the sentimental grievances of an infinitesimal minority. They are high
sounding phrases which have appeared very frequently in the discussions
upon this controverted measure, which talk of the abolition of *^ race
distinctions " judicially, and the suppression of what one officer has called
the enormous force of argument that is supposed to lie in the word

782 BKNGAL UNDBU fHifi LIBUTKNaNT-GOVKKI^ORS^

" anomaly.'^ But it appears to the Lieutenant-Governor that time at least
has shown, if not the arguments of the opponents of the Bill, that the
attempt to remove a single petty anomaly, which injures no one, reveals
only the innumerable anomalies with which our whole position as the
dominant power in India is surrounded ; and that the Bill itself exposes
that, so far from race disqualifications in judicial administration
being abolished, this very evil becomes very greatly intensified and
accentuated by the exclusion from the power, which it is proposed to
assign to a few, of a large body of equally competent and meritorious
public servants. The fact is that, with whatever sincerity finality may be
pleaded, finality in such legislation is impossible, if once the principle is
yielded ; and the Lieutenant-Governor is inclined to suspect that very
much of the vehemence of the agitation on both sides of the dispute
arises from the knowledge that such is the case. The single question,
then, is whether the time has come for the concession of the principle in
any form and subject to any modifications of the Bill ; and, for the
reasons to be immediately given, the Lieutenant-Governor is certainly
of opinion that it has not.

It has been put forward, not so much from any concession to popular
sentiment in the matter as from the necessities of. the case, that, with
the abandonment of much which now appears in the Bill as regards
Cantonment Magistrates, Assistant Commissioners and Statutory
Civilians, the power to try European British subjects should be extended
only to the Covenanted native Civilians who have entered the service by
competition and that the power should be restricted to such officers as
District Magistrates and District Judges by the virtue of their office.
In presence of the extreme animosities which the question has excited,
this seems rather a small object to l>e attained, and the descent from the
original proposal suggests something of the trivial results of great
efforts. In the first place, it may be noticed that such an issue would
prospectively affect just 9 individuals in India, and most of these at a
distant period. Immediately it would confer a privilege (if so it may be

called) upon 3 native' gentlemen 2 in Lower Bengal and i in

Bombay and, if legislation is justifiable only where a clear case is

made out for recourse to it, the condition seems hardly to be fulfilled in
this instance. But the objection seems to be valid still further, because,
of the 2 native gentlemen whom the Lieutenant-Governor has had re-
cently the pleasure of appointing to districts, one at least will, in all
probability, be relieved of this charge in the course of the next cold
season, by the return from furlough of senior officers ; and the Bill, by
the time it became law, would aflfect only the i native Civilian in the
Bombay Presidency, and possibly i in Bengal. It cannot be pretend*

SIR RIVERS THOMPSON. 783

ed, then, that there is any urgency for the legislation ; nor in the constitu- *
tion of the office of the Magistrate and Collector of a district in Bengal
is there any necessity for it. It may be asserted beyond contradiction
that, from the beginning of the year to the end, a Magistrate of a
district rarely, if ever, thinks of dealing with criminal cases. He has
the full power to do so ; but his avocations are so numerous and his res-
ponsibilities so various in the general supervision of district administra-
tion, and in the particular charge which he retains in his own hands in
connection with revenue and fiscal matters that he would never have the
leisure to attend to work on the Magisterial side, and, as a consequence,
the whole of this falls, by a necessary division of labour, and in the
regular course of procedure, to the Joint Magistrate of the district and
his native subordinates in that line. Mr. Romesh Chunder Dutt is now
officiating as Magistrate and Collector of the Backergunge district. The
Lieutenant-Governor ventures to say that, with the extremely heavy
revenue work of that district, he has no time, and probably has no incli-
nation, to touch any work in the criminal courts ; and if any case arose
in which a European was involved the parties would not be put as Mr.
Romesh Chunder Dutt asserts to '* the hardship and inconvenience of
travelling to a different district " but would find, in the European Joint
Magistrate on the spot, an officer not only competent to deal with the
case, but one who in the ordinary course of business would have to deal
with it without the necessity of any intcMrference from his superior. This ' '^^ '
is not; always the case : there are some districts in Bengal where Joint
Magistrates are not permanently stationed, but in such places not unfre^
quen^ly there are European officers of the uncovenanted Service, who,
as the law now stands, can exercise jurisdiction over European British
subjects. 71)e argument based on '* administrative inconvenience " is
utterly untenable in the present constitution of the Civil Service ; and
if it is untenable in Bengal, where 6 out of the 9 native Covenanted
Civilians are employed, it can scarcely affect any other administration
in the country. The consensus of opinion received from different pro^
vinces is very much invalidated by the fact that there is not a single
member of the native Covenanted service, who has entered it by com-
petition, in Madras, the Panjab, the Central Provinces, Burma, Assam,
Sindh, or Coorg. There are 2 such officers in the Bombay Presidency ;
one, a very junior officer, under the Government of the North- Western
provinces ; and 6 in Lower Bengal. There is scarcely an exception in
the support given to the irrelevancy of the "administrative inconve-
nience " theory among all the Reports from local officers. At the pre*
sent moment, there are 45 districts under the Bengal Government.
At the same time there are 2 native Civilians for whom, as Magis-

• '*.

784 BENGAL UNDER THE LIEUTENAKT-GOVERNORS.

trates in charge of districts, .immediate provision has to be made ;
and the contingency may arise of 2 third being appointed in the
course of next year to a Civil and Sessions Judgeship. Executive
arrangements will, it is obvious, quite easily provide, without detriment
to the public interests or to the personal claims of these native officers,
either that they should be in charge of districts where there are no
Europeans, or, as regards the Magistrates, that they should be in charge
of districts where the presence of a European Joint Magistrate, or of a
European Deputy-Magistrate with full powers, would prevent any kind
of inconvenience. Even if the time ever arrives when one-sixth of the
Magistracy of this province is in the hands of natives — though that is
quite a different thing from one-sixth of the Covenanted appointments
being filled by natives, and is in itself very improbable— there could be
no difficulty in carrying on the administration of criminal justice without
any change in the law ; but, as a question of very remote concern, it is
scarcely necessary to dwell upon the requirements of very distant
circpmstances.

The Lieutenant-Governor would have been glad if he could have
. stopped here. He is ready to admit that, if every thing which he has
already urg^d against the Bill was conceded, but the competency of a
native Magistrate to exercise jurisdiction in European cases was admitted,
the proposal for the present modification of the Criminal Procedure Code
would render the position of the advocates of the Bill, not unassailable, be-
cause many political considerations would still affect the issue, but much
stronger than it is now. But the question is to be met whether the legisla-
tion contemplated is justified by the fitness of the native judiciary for the
powers which it is proposed to confer upon them, and in the Lieutenant-
Governor's judgment the answer must be in the negative. He comes here
to that part in the discussion which, as contained in the StcUement of
Objects and Reasons appended to the Bill, represents the aim of it to be to
secure the fair and impartial administration of justice, and to the obser-
vations of the Hon'ble Member who introduced the Bill, that these
particular cases against Europeans were in India admittedly few and
exceptionally troublesome. Now the Lieutenant-Governor has little
sympathy with that section of the opponents of the measure which repre-
sents the possibility of unrighteous judgments leading to severe and
unjustifiable sentences at the hands of native Magistrates, who are sop-
posed to be a corrupt body biassed against the European. If bias there
might be in critical cases, there is little justification for any apprehensions
from excessive punishments. If we have taught the natives anything, we
have taught them to respect the purity of judicial administration, and, in
the Lieutenant-Governor's opinion, in these days of railways and tele

SIR RIVBRS THOMPSOK. 785

graphs no wilful injustice could occur in the remotest comers of the
country without being at once brought to light and remedied. Apart
however, from the main objection, which the Lieutenant-Governor will
presently advert to, there are other drawbacks which must be noticed.
The surroundings of a mufassal Magistrate's Court are not exactly the
surroundings of a Court at Westminster, or of the High Court in Calcutta.
An Englishman, much more an English woman, summoned to such a
Court (frequently, as evidence shows, on a false charge) has to undergo
many indignities which a European officer can at once control and check,
but which in a Court presided over by a native find free course amidst a
sympathetic audience. There is no exaggeration in this, as most persons
who have had to deal with such cases can testify ; and the absolute dis-
trust which the European in the interior has of such Courts arises, not so
much from any positive want of confidence in the Magistrate if left to
himself, as from the atmosphere of perjury, forgery and intrigue which is
about him and around him. Beyond this, however, the Lieutenanl-Gov-
c^rnor is bound to say that there is a much greater risk of the failure of
justice from a want of nerve in the native to deal in the presence of
public excitement with the kind of *^ troublesome cases'' to which these
papers refer. The experience of every officer in the country will supply
illustrations in which this independent force of character has been found
wanting in the natives, and the reports before Government show innumer-
able cases in which a constitutional timidity has led natives to shirk duty
because it is difficult. In judicial trials, it is a much easier thing to acquit
when the acquittal terminates all inquiry and disposes of a serious em-
barrassment, than to convict and punish in complicated cases against the
resolute determination of a violent Englishman backed by a strong local
opinion in his favor. The Lieutenant-Governor would ask if any Head of
an Administration in India would place a native officer in independent
charge of a frontier district. A Bengali in such a position at any rate
might know all our criminal codes by heart, and be animated by the
strictest desire to apply the law of evidence, and yet would certainly fail
if a crisis impended from any sudden irruption of frontier tribes. In the
recent discussions about Appellate Benches, one of the earliest, and as it
appears to the Lieutenant-Governor the simplest method suggested for
limiting petty appeals, was to constitute at capital stations a Bench com-
posed of the European and First Subordinate Judge to finally dispose of
all such cases, and yet the objection came from the most competent judges
of native character— the natives themselves— that on such a tribunal the
native Judge could exercise no independence. A good deal has recently
been heard of Local Self-Govemment schemes, in which the presence or
stbsence of the Magistrate of the district as President of the Committee

786 BENGAL UNDHR TttM LIEVTiENAKT-eOYEKNORS.

ia considered a very material point ; but the argument on which the
natives* objection is based is that the presence of even a single official on
a Committee would stop discussion, would paralyse the action of the
native members, arid would imperil the object for which the scheme has
been introduced. There is probably much more than this dtslike'of con-
trol which repudiates the co-operation of English officers in the prosecu-
tion of a great reform ; but, taking their own admissions, there can, in
the Lieutenant-Governor's opinion, be scarcely a stronger argunrent for
the unfitness of natives to carry on such a measure alone than the incapa-
city which they allege in the presence of the European. These may not
all be exactly apposite illustrations to the position of a Magistrate dis-
charging judicial functions ; but they indicate what many passages in the
Reports before Government describe, and what any practical experience
of the country confirms, that the quality of courage, whether moral or
physical, is not among the virtues of the people with whom we have to
deal in Bengal. The disqualification referred to is further evidenced by
the notorious fact, common to every district, that even native litigants in
emergent and difficult cases will ask for the trial of their suits by an
English tribunal. It can scarcely be a matter of surprise that what is an
object of distrust to the natives themselves should be an object of dis-
trust to Europeans.

The Government of India will scarcely need a more convincing proof
of the unqualified repugnance which the European community through-
out India entertain towards this Bill than the general reprot»ation of it
which public opinion in various forms has expressed. The strong feelings
which the measure has evoked have, it is to be regretted, found not
unfrequent expression in unnecessary bitterness and hostrlity towards
Government.

The Lieutenant-Governor would fain hope that this excess of feeling in
this matter will not influence the judgment which is to decide the fate of
the Bill. If he urges himself its withdrawal, it is in the conviction that
it is not necessary for the judicial work of the country, and that it takes
away a privilege, which Englishmen in India very highly value. In ask-
ing for the retention of that privilege, they ask only for what has been
theirs since British Courts of criminal judicature were established in the
country, and they ask it in no derogation of the claims of the natives
who, on their own side, enjoy privileges, which, if the question of an im-
partial administration of justice is concerned, affect it much more
seriously than the concession in favour of some half dozen native
Magistrates. The political issues are of course of much wider con-
sequence. "The very bad thing about the Bill is its principle ''—-
the principle, that is, that by a stroke of the pen we are to establish

SIR RIYKRS THOMPSON, 787

equality ; ignoring race distinctions, among a people who themselves
repudiate the idea in their intercourse with each other with the utmost
scorn and aversion. Our thoughts are not their thoughts nor are
their ways our ways ; and it has been quite justly pointed out
that as long as there is such a wide divergence between Englishmen
and Natives, as regards moral standards, social customs and political
status, any attempt to remove judicial disqualifications must be as
dangerous as it is premature. They will not be removed, at least, by
legislative enactment. Naturam expeiias furca^ tamen usque recurret.
It will recur in hostility and scandals and contentions, whenever a
serious case arises in which Englishmen are involved before native
Courts; and the result must be continuous agitation. Beit privilege or
prejudice which the Englishman asserts here, there can be no question
that amongst them the bare proposal to withdraw it has excited a fiercer
and more perilous conflict of races than was witnessed after the mutiny
of 1857 ; and so the work of 26 years in which every true Englishman
and native has welcomed the growth of a stronger mutual regard and tol<
eration for each other, and in which a spirit of charity and forbearance
was winning its way to a better understanding of each other's wants has
to be begun over again. It is the Lieutencint-Governor's hope that the
work may be accelerated by the abandonment of a measure which should
never h^v6 been introduced, for its very abandonment will contribute
more than anything else to the right union between all classes of Her
Majesty's, subjects in India, in advancing, through the social reforms
which are before us, our common interests in this great Empire."

The storm of indignation which had broken out in the European
community smouldered during the year, while the Reports called for
were under submission. All India was in alarm, on the look-out for
any manifestation of the intentions of Government. *' Nothing
could be more lamentable/' it has been said, '* than the animosities
cf race that were aroused, the prejudices, the bitterness and bad
feeling between Europeans and Natives that were excited." The
Governor-General, the Marquis of" Ripon, was personally insulted»at
the gate of Government House on his return to Calcutta for the
cold weather of 1883-84. A conspiracy had been formed by a
number of men in Calcutta, who had bound themselves, in the event
of Government adhering to their projected legislation, to overpower
the sentries at Government House, put the Viceroy on board a
steamer at Chandpal ghaty and send him to England vid the Cape*
The existence of this conspiracy was known to the Lieutenant

fSS BENGAL UNDER THE LlEtJTEN ANT-GOVERNORS,

Governor, and to the responsible officer who subsequently gave ine this
information. The non-official European community absented them-
selves with hardly an exception from the entertainments at Gov-
ernment House. . The tension could hardly have been prolonged
without some untoward rupture. The ptrsonel of the Government of
India had however changed in the autumn, by the succession of Sir
Auckland Colvin to Sir K. Baring (Lord Cromer) as Finance
Minister : and advantage was taken of this change to arrive at a Con-
cordat between the Supreme Government and the representative of the
European Community. The Viceroy meanwhile made a statement,
in the Legislative Council meeting of the 7th. December, of the
modifications of their original intentions which the Government of
India had proposed in a despatch of the loth August and which
had been accepted by the Secretary of State. Important debates
took place on the 4th. and 7th. January 1884, on Sir C. P. llbert's
motion that the Bill be referred to a Select Committee, in the course
of which the Viceroy mentioned that an arrangement had .been
arrived at, by which the Government undertook —

'* to agree in Select Committee, on the basis of the modifications
approved in the Secretary of State's despatch, to the right being
given to European British subjects, when brought for trial before a
District Magistrate or Sessions Judge, to claim trial by jury such as
is provided for by section 451, of the Criminal Procedure Code,
subject to the following conditions : —

'^ (i) No distinction to be made between European and native
District Magistrates and Sessions Judges.

'' (2) Powers of District Magistrates under section 446 of the
Code to be extended to imprisonment for 6 months or fine of 2,000
rupees."

The Bill was accordingly referred to a Select Committee, who
presented their Report on the i8th January. In moving on the 25th
January that the Report be taken into consideration, Sir C. P. Ilbert
thus explained the provisions of the Bill as altered : —

'' The effect of the amended Bill, so far as it relates exclusively
to European British subjects, is explained in the Report of the Com-
mittee, and is ^ follows \—

" (a) The power of appointing Jusltices of the Peace will jrpmain
on its present footing; ^ ,

SIR RIVERS THOMPSON. 789>

'* (d) All District Magistrates and Sessions Judges will be ex officio
Justices of the Peaee» and will have power to try European British
subjects ;

''(r) District Magistrates will be empowered^ to pass upon a
European British subject a sentence extending to 6 months' imprison-
ment or 2,000 rupees fine, or both, that is to say, a sentence twice
as severe as they are empowered to pass at present, but any European
British subject charged before a District Magistrate will have a right
to require that he shall be tried by a jury of .which not less than
half the number shall be Europeans or Americans, or both ;

" (d) A European British subject committed for trial before a
Court of Session will have a similar right, even in those districts
where trfals before the Court of Session are not ordinarily by jury.

" When a jury is claimed before a District Magistrate, and the
Magistrate has reason to believe that a jury composed in the manner
required by the law cannot conveniently be constituted to try the
case before himself, he may transfer it to another District Magistrate
or Sessions Judge. The question as to the particular Court to which
the case should l>e transferred is one which must obviously be
determined with reference to administrative considerations, and to
the varying circumstances of different districts. Accordingly it is
left to general rules, which are to- be framed by the High Court
with the approval of the Local Government. But there is power for
the High Court to make special orders in exceptional cases. The
Court to which a case is thus transferred is to try it with all conve-
nient speed, and with the same powers and according to the same
procedure as the Magistrate from whose Court it is transferred."

Besides the provisions relating exclusively to European British
subjects, the amended Bill contained other provisions of general
application, to which no further allusion is required. The Bill was,
after debate, passed on the 28th. January without a division, and
became Act III of 1884. In the debate Sir Griffith Evans made it
clear that the European community had not assented to the principle
of the Bill nor to anything of the kind, but that, retaining their own
view of their own privileges and rights, they had assented to the
passing of this Bill in order to procure peace. The agitation then
subsided. It may be mentioned here that on the day of one of
these important debates Sir {(. Thompson w^s so ill tH^t he was

790 BENGAL UKDBR THB LIBUTBNANT-QOVERNORS.

forbidden by his medical adviser to attend Council : he attended,
however, at the risk, it was said, of his life.

Sir John Strachey has* thus described the result eventually
attained : — " The ^jontroversy ended with the virtual though not
avowed abandonment of the measure proposed by the Government.
Act III of 1884 extended rather than diminished the privileges of
European British subjects charged with offences, and left their
position as exceptional as before. The general disqualification of
native Judges and Magistrates remains ; but, if a native be appointed
to the post of District Magistrate or Sessions Judge, his powers in
regard to jurisdiction over European British subjects will be the
same as those of an Englishman holding a similar office. This
provision, however, is subject to the condition that every European
British subject brought for trial before the District Magistrate or
Sessions Judge has the right, however trivial be the charge, to claim
to be tried by a jury of which not less than half the number shall
be Europeans or Americans. No such claim can be made by natives
charged with offences, and it is a claim which could not be made
by an Englishman in any Magistrate's Court in his own country.
The Legislature has virtually declared that the summary p>owers of
the European District Magistrate over European offenders shall be
taken away, not because this was held to be in itself desirable, but
because such powers could not be given to a District Magistrate who
is a native. While this change was made in the powers of District
Magistrates, the law in regard to other Magistrates remained un-
altered. All English Magistrates of the first class, outside the
Presidency towns, other than the District Magistrate, are appointed
to be Justices of the Peace, and they exercise jurisdiction over
European British subjects as they did before ; but no native Magis-
trates in similar positions can be appointed to be Justices of the
Peace or exercise such jurisdiction. There are many districts in
which it may happen, when a charge against a European British
subject comes before a District Magistrate, that a sufficient number
of Europeans and Americans cannot be found to constitute a jur}* ;
the case must then, under the orders of the High Court, be trans-
ferred .to another district where a jury can be formed. Thus
opportunity is offered for the occasional revival of the old scandals

* India, Editn, 1894.

Sift R1YBII8 THOMPSON. 7^1

and denials of justice and hardship which were common before 1872,
when the trial of European British subjects could only take place
before the High Courts, and complainants and witnesses were liable
to be sent away to great distances from their homes. It is true that
this is not likely often to occur in practice, because the District
Magistrate, to whom alone these new provisions of tlie law apply
will usually take care to try in his own Court no charge against a
European British subject, but will transfer it, as he can always do,
to one of his European subordinates, whose summary powers of
dealing with such cases have not been touched. The law has
certainly not been changed for the better, but for practical purposes
it remains much as it was before Act III of 1884 was passed. The
only other change was that District Magistrates trying European
British subjects with a jury were authorized to pass sentence of
imprisonment, which may extend to 6 months, or fine which may
extend to 2000 rupees, or both. "

In 1882-83 an important scheme was prepared, which provided
that admission to the Subordinate Executive Service

The Subordinate

Bxeciitiye atid shouM in future be by competitive examination.

Judicial SerYlces. , , , , , . . • ,

Attempts had been made m previous years to estab-
lish the competitive system in this branch of the public service.
They had failed because regard AH'as not had to the very small number
of vacancies to be filled up each year ; and when some 300 passed
candidates had been entered on the lists for some 8 or 10 annual
\'acancies it was found necessary to stop further examinations. The
principle adopted in 1882-83 was to declare only the number of
vacancies which would be open to competition. Thus 6 in the first
year, and 10, 12, and 8 in the 3 following years, respectively, were
competed for. As another special feature in the arrangements, the
successful candidates were at once brought on to the list of the
Subordinate Service and were deputed as Assistants to Commissioners
and Collectors to learn their work. While so employed they received
a moderate subsistence allowance, and as vacancies arose they were
appointed to them. It generally happened that the passed candidates
were all absorbed into the service a month or two before the next
examination (held in January) commenced, and thus an opportunity
was afforded to the Lieutenant-Governor of making one or two
direct appointments. This had its advanUges. In the year 1884-8.5

792 BBNGAL UNI>BR THE LIBUTBNANT-GOYERNORS.

a test of limited competition was introduced also amongst approved
candidates for the Statutory Civil Service, and 2 gentlemen out of
18 competitors received appointments. A similar system was adopted
for the selection of candidates for 3 out of 4 existing vacancies in
the Opium Department. To the fourth vacancy a native gentleman
was appointed ; and, finally, rules for the admission of natives
of India to the higher grades of this Department by selection were
published in 1886-87. I" J^^^^ ^^^^ ^ revised scale of establishment
for the Subordinate Judicial Service was sanctioned at an extra annual
cost of over a lakh of rupees. In March 1885 a Con^ission was
appointed to revise the salaries of ministerial officers and to re-
organise the system of business in executive offices. Their Report
was received in August 1 886.

At the beginning of 1883 a Commission appointed by the Govern-

opiumcommis. ^^^^ ^^ ^"^»* ^^^^ a thorough inquiry into the
8ioiiofi888. working of the Opium Department in Bengal and

the North-Western Provinces. The Commission submitted at the

end of the same year an exhaustive Report dealing with every detail

of the administration of the Department. They found that the

reforms chiefly needed were of an executive and not of a legislative

character. Their recOi-nmendations were considered by the Board

of Revenue, by Sir R. Thompson and by the Government of

India, and, while effect was given to some of them, the adoption

of others iiad to be postponed for a time on account of the expense

involved. One of the important recommendations made by the

Commission, to the effect that the conlrpl of the Department, which

extends its operation beyond Bengal both in the North-Western

Provinces and the Panjab, should be transferred from the hands of

the Bengal Government to a Director-General, under the direct

orders of the Government of India, was negatived by the Secretary

of State.

In 1883 the Government of India called the attention of the

Government of Bengal to the falling-off which had

occurred in the irrigated area in the province of

Orissa, and considered that the whole question deserved a thorough

and independent inquiry. For some time before Government had

received petitions and memorials from local associations established

ill Orissa, expressing general discontent s^mong (he rqiyais ia

SIR RIVERS THOMPSON. 793

connection with irrigation operations, and especially complaining
agaunst the alleged oppressive procedure on the part of the canal
revenue officers and their subordinates in the assessment and recovery
of water-rates, and in the application of the certificate procedure
under Act VII (B. C.) of 1880. There were complaints of a less
general character regarding drainage; and the existing tariff of
rates, both for long and short leases, was a grievance. While such
was the character of the objections and remonstrances locally raised
in Orissa, the canal revenue, which had been steadily, though slowly,
progressing, showed a sudden*falling-off. On the expiry of the five-
year leases in November 1882 the gross receipts had decreased from
Rs. 1,80,325 in 1883-83 to Rs. 1,11,856 in 1883-84 and Rs. 51,245
in 1884-85, while the net loss, after meeting the cost of maintenance
and working expenses, had been Rs. 35,271, Rs. 67,662, and
R& 1,85,781, in the same 3 years, respectively. The condition of
arrears was also unsatisfactory, and it was impossible to be indifferent
to the inadequacy of the realisations in relation to the demands,
and generally to the failure of the expectations, upon the strength
of which Government had takefi over the concern from the Madras
Irrigation Company, and subsequently spent very large sums in
extending the irrigation system in the province.

Upon a consideration of these facts Sir R. Thompson appointed
a Commission of Inquiry into the working of the Orissa Canal system.
It appeared to him that it was only by the personal investigations
on' the spot of an expert Commission that the real position of
things could be ascertained.

The members of the Commission assembled at Cuttack, the
capital of the province, on the isth December 1884, and from that
date till the end of January 1885 were engaged in examining wit-
nesses, in inspecting different parts of the canal on the Cuttack and
Balasore districts, and in investigating a large number of complaints
formulated on Vehalf of the people in the irrigated tracts by different
local Associations. The Report of the Commission was considered
by the Board of Revenue and the Commissioner of Orissa. Sir
R. Thompson, after the receipt of the Reports on the subject^
visited different portions of the canals himself, and a conference was
held of the chief local Civil and Public Works officers, when the
whole subject of the Commission's inquiries, and the connected

794 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

papers, were brought under discussion^ and definite orders passed
on each of the questions at issue.

The revenue administration of these canals had never come up to
their requirements ; there were scandals during the time when Sir
G. Campbell was Lieutenant-Governor — extraordinary divergencies
between estimates and actual receipts ; and throughout, continual
complaints by the people of oppression and illegal proceedings —
much the same sort of complaints as those towards which the inquiries
of the Commission of 1884-5 were directed. At the same time the
difficulties of the position were vtry great. The character of the
climate of Orissa ; the average rainfall, which is quite sufficient in
ordinary years for all agricultural purposes ; the apathetic and indolent
habits of the people ; and the hostility exhibited by both cultivators
and zamindars to all canals and distributaries, were elements, in a
purely optional system, which made successful administration almost
an impossibility. The zamindar, who never remits a pice of his dues,
IS indifferent whether the raiyat takes water or not ; or, if he is stirred
to any action, it is in the way of discouragement of the practice.
The raiyat in favourable years avoids all contact with the Irrigation
Department ; he trusts to good rains, and it is only when these fail
him at the last moment that he thinks of seeking for canal water to
save his crops. It was the common testimony of all concerned in
the business that on such occasions there was a general tumultuous
rush of raiyats willing to take any amount of water and willing to
promise any amount of payment. But as soon as the danger was
past, the obligation to pay for the benefits received passed a\>'ay \iith
it ; and the raiyat considered himself perfectly justified in employing
every subterfuge (and there were many) to avoid the payment of a
single pice.

These were some of the difficult conditions under which the
revenue officer had to labour. They were aggravated by the almost
entire absence of anything like a proper survey of the country, so
that recourse had to be had to detailed measurements of the several
areas of land for which water was originally «sked, with the result
that in almost every case it was discovered that the area had been
purposely understated, or the water passed on to lands for which no
application had ever been made and no lease granted. It thus
happened that a system which from the small amount of the indivi-

SIR KITgRS THOMPSON. 795

dual demands should, to be successful, be self-acting, Involved the
deputation of inferior officers given to greed and inclined to be
oppressive. As a result, there were complaints of exactions, with
litigation and disputes, and, in the end, a long list of arrears. The
measures adopted on the Commission's Report were expected to
give a partial remedy to these evils, but the substantial fact remained
that, except for a year of such exceptional calamity as 1866, works
of this magnitude were not required in Orissa, and that they would
never return a reasonable direct percentage upon the enormous
expenditure incurred.

The Orissa Coast Canal, which was to connect Orissa with Bengal
by inland communication and put an end to the isolation of the
former, would have been finished in Sir R. Thompson's time, but
for the cyclone of 1885 : it was completed soon after he left, having
cost about 40 lakhs.

In 1883 the subject of admitting females as students to the
AdmiBdon of classes of the Calcutta Medical College came before
oS^tto Medial Sir R. Thompson. The question had been raised
*^' in SirR. Temple's time and favourably received,

but had led to no practical results. When the Director of Public
Instruction brought it in 1882 before the Council of the Medical
College in accordance with wishes expressed to him by the parents
of some *young ladies, the Council resolved not to admit females
on any terms to the Medical College classes, whether after passing
the Entrance Examination or the First Arts Examination as a pre-
liminary qualification. Sir R. Thompson overmled the Council and
wrote as follows : —

*^ On this question, looked at from the standpoint of general policy,
as well as of individual freedom, there is not, in Mr. Rivers Thompson's
opinion, any room for doubt as to the action which Government should
take. It is indeed in the Lieutenant-Governor's judgment a subject of
great reproach to the Bengal Presidency, in which education has made
such wide progress, that it should be so far behind other provinces in
matters regarding the medical education of native ladies ; and this
reproach is the more appreciable in that the backwardness of Bengal In
this respect would seem to be due, not so much to the prejudice of native
parents and guardians (which might in the present circumstances of
India be only natural) as to the attitude which the Medical College
Council have thought fit to assume. Already these provinces have suf^ed

796 BENGAL UNDBR THE LIBCTBNANT-GOVERNORS.

from the Council's failure to take a broad and unprejudiced view on this
question ; for the Lieutenant-Governor learns to his regret that some
Bengali ladies, fully qualified by educational attainments for admission to
the College, have had to betake themselves to the more liberal Presidency
of Madras, there to prosecute those Medical studies from which the
Council of the Calcutta Medical College had excluded them. It is,
in Mr. Rivers Thompson's opinion, clearly opposed to the public good,
as well as to legitimate private interests, that such a state of things
should continue, and that the educational system of Bengal, progressive
in other respects, should be illiberal and retrograde in this. Illiberality
here has great and numerous evil consequences. It encourages zanana
prejudices ; it strengthen^ the barriers of caste ; and it suppresses the
natural and reasonable aspirations of Indian ladies to enter a profession
which would find, in India of all countries in the world, a wide sphere of
action and of beneficent service. Every day that passes widens our
knowledge of the fact that among the native community there are women
in every position of life who would prefer death to treatment by a male
physician, and the misery caused by neglected, and unskillfully treated
illness must be widespread and most lamentable. There is but one way
by which this suffering can be relieved, and that is by the medical educa-
tion of females ;.for in the present conditions of Indian life it would be
useless to wait till opposition, based upon prejudices (if such they can be
called), is removed. The Lieutenant-Governor therefore considers it his
duty to support this movement ; and he looks on the objections which
have been made to it, on the ground of the difficulty of teacl^ing mixed
classes, or the alleged inaptitude of females for the profession of medi-
cine, as unsubstantial and obsolete. Experience gained in Europe, in
America, and in Madras, has shewn that mixed classes can be taught
without any bad results ; while the aptitude of women for the study and
profession of medicine is, in the Lieutenant-Governor's opinion, no longer
open to discussion or doubt. Even if the aptitude of women for the
profession of medicine were still an open question, it would be an inade-
quate objection here, for the fitness or unfitness of women to practise
medicine can only be proved by experience. The issue therefore is, shall
it be put to that proof in Bengal } The ladies who apply for admission
to the College will be the only losers if they fail in the trial : the commu-
nity will be the great gainers if they succeed. For his own part the
Lieutenant-Governor has no doubt they will succeed far beyond the ex-
pectations of their most sanguine supporters, and he looks forward to a
not distant time when Calcutta hospitals shall be partly officered by lady
doctors. And if the success of the principle be established in the capital,
there is no reason why our medical, schools in the provinces should hot

SIR HlVKftS THOMPSON. 797

afTord opportunities for a more general extension of the policy, with
incalculable advantage to the country.''

Special inquiries were made in 1883 as to the feasibility of ex-
tending the jury system in districts other than the

. Jury syttt^m.

7 in which it then obtained. Judged by the com-
ments of the vernacular press, the subject had a special interest
for natives. Everywhere the suggestion was opposed by the local
Judges, on the ground chiefly that there was not a sufficient number
of educated natives in the districts to form a qualified jury list The
High Court Judges also were opposed to the measure.

During the year 1883 the Native Press was much excited on
EnsAiBh and ^"o^s subjects, such as, the Ilbert Bill, the Local
imuve jounuiiMii. Self-Govemment and Municipal Bills, and the im-
prisonment of the Editor of the Bengali by the High Court for con-
tempt. Sir Rivers Thompson expressed his views on the subject
as follows : —

- " The last year was one of exceptional excitement unfavourable to
calmness and moderation, and no one could be less desirous than Mr.
Rivers Thompson of judging th« Native Press on the evidence which such
times afford. Indeed, it must be admitted that the absence of calmness
and moderation was not peculiar to the Native Press last year, and that
English journals lost much of the s^lf- restraint and good feeling which
is usually their honourable characteristic in dealing with political and
social questions in India. But English journalism in Bengal has, with
insignificant exceptions, recovered its proper functiqn of temperate cri-
ticism ; while native journalism as a rule is still disfigured by a spirit of
reckless hostility, a ready acceptance of unfounded rumours, and a prone-
ness to impute unworthy motives to Government and its officers. Many
utterances of the Native Press and of the Anglo- Native Press, from which
the vernacular papers take their tone, were during the year such as to
bring the papers containing them within the scope of the criminal law.
In 3 instances applications were made to the Government by nativie
officers to sanction the prosecution of calumnious articles in vernacular
papers ; but the Lieutenant-Governor has been personally opposed to
any action which would put that law in motion, hoping for the time when
prejudice and passion would give way to better feelings. Some articles
have recently appeared in Anglo-Native journals which counsel modera-
tion, and the Lieutenant-Governor would be indeed glac) if he could take
them as the precursor of a better tone and temper. The benefit which a
free Press, acting with justice and indspendence in the interests

T9B BEKGAL UNPXR THE LI BtJTBN ANT- GOVERNORS.

of the ruled and the rulersi, can do in Bengal is incalculable.
Its assistance would be welcomed by the Lieutenant-Governor as
an invaluable aid to good Government, both in the denunciation of what
is wrong and in helping the people to an appreciation of the efforts of
Government to do right. A free Press can interpret the rulers to the
people and the people to their rulers ; and through the medium of the
press honestly conducted the Government can discover the wants of the
country much more clearly and usefully than through the medium of
official Reports. But when it is seen that day after day the Anglo-Native
and the vernacular Press abuses its opportunities and the forbearance of
the Government to pr6pagate among a credulous people libels on
individual officers, false imputations on the Courts of Justice, and dis-
loyal comments on the Government itself, then it becomes a serious
question whether, in the interests of the country and of the mass of
readers and their circles of auditors who are thus being misled, toleration
may not ,be pushed too far. If this expression of the Lieutenant-
Governor's views |ias the result of in any way influencing the Native Press
to reconsider what it owes to the Government as well as to the public,
then the result will be wholly good in establishing the confidence of
Government in the honesty and value of the criticisms of the Native Press.
Mr. Rivers Thompson may say at once,'' judging them from his inter-
course with all classes, that, constituted and worked as it is at present,
the Native Press is only an exponent of the views of its conductors, and
not of those of the people of the province."

During the year 1 8Sc-8 1 the question of improving the training
-.,,,., of officers of the Covenanted Civil Service who

JudicUl train-
ing of civilians. elected the judicial branch of the service was under

the consideration of Sir A. Eden, and a tentative scheme was pro-
posed by him and sanctioned in the following year by the Govern-
ment of India, which would, it was hoped, remove the .defects of
the system under which officers were called on to perform the
important duties of a District Judge without any experience in the
administration of civil justice, and with no experience of criminal
justice beyond that afforded by the work of a Joint-Magistrate. In
furtherance of this scheme, in 1881-82 several Covenanted Civilians,
whose duties had hitherto been confined to executive and criminal
judicial work, were invested with powers as Civil Judges, according
to the length of their service ; some with the functions of a Subor-
dinate Judge, and others with those of a Munsif. The scheme was
.oiv jts trial during, .the x following years with very little success.

SIR BIYKRS THOMPSON. 799

It was an attempt to obtain from officers already overburdened with
their own duties work of a new and technical character. It was
found to have occasioned a greater amount of inconvenience than
was at all commensurate with the advantages to be expected from it.
At length in 1883-84 it was pronounced a failure by the High Court,
and its abandonment recommended.

In the year 1883-84 an International Exhibition was held in

Calcutta. It was the first undertaking of its kind

Odcntta Inter- • , r«, . , ^

natkmmi Bxhiu- in India. The idea of havine an Exhibition in

tion, 188S-84. ^

Calcutta of the products of the Indian Empire was
under the consideration of Sir R. Thompson, when, in Octo-
ber 1 88a/ Mr. Jules Joubert, who had before successfully promoted
International Exhibitions in Australia, arrived in India and suggested
the wider project. With the consent of the Government of India,
and with a promise of assistance from other Jx>cal Governments, Sir
R. Thompson gave his sanction and support to the undertaking,
and preparations were commenced in January 1883 under the supers
vision of a General Committee. For the collection of samples of
the products and manufactures of India, the Bengal Government
provided a sum of Rs. 50,000, which was distributed by the Govern-
ment of India among the different Local Governments ; and in all
ca$es the allotments thus made were supplemented by grants made
by, the Local Governments from their own funds. A sum of Rs. 10,000
was at the same time placed in the hands of an Executive Committee
for the collection of exhibits in Bengal. Many exhibits were also
lent by Native and European gentlemen in India, and the Calcutta
community furnished and equipped a separate court entirely at its
own expense. Three of the Australian Colonies, viz : Victoria, New
South Wales and South Australia, appointed Commissioners to
promote the objects of the Exhibition, and official representatives
were sent to the Exhibition by the Colonies of Ceylon, the Straits
Settlements, Tasmania, British C^uiana and Mauritius. From foreign
countries delegates were sent by the Government of Austro-Hungary,
by the French colonies of Cochin China and Tonquin, and by the
Dutch colony of Batavia, and Great Britain, France, Germany,
Italy, Belgium, Turkey, Japan, and the United States of America
were represented by exhibitors. The Exhibition was held in the
Indian Museum building, and in extensive temporary buildings coi>

SOO BENGAL UNDER THE LIEUTEMANT-GOVERMORS.

Btructed by the Public Works Department :. part of the maidan west
of the Museum was enclosed for the purpose. The total sj>ace
enclosed for the exhibition amounted to nearly 22 acres. £ven this
space was, however, insufficient for the proper display of the exhibits,
which in some courts were overcrowded, and numerous applications
for space had to be refused. The total number of exhibitors in all
the courts of the exhibition amounted to 2,500. The exhibits
exceeded 1,00,000 in number, and 3,590 certificates of merit with
medals were given. The Exhibition was managed by the Executive
Committee acting in concert with M. Joubert. It was opened by
Lord Ripoh on the 4th December 1883, and was closed by him on
the loth March 1884. The total number of persons admitted into
the Exhibition exceeded a million. The number of visitors continued
to increase before the closing of the Exhibition ; and as its fame
extended only |^radually to distant places in the interior it would
certainly have attracted visitors for a much longer time if circum-
stances had permitted it to remain open. The gross expenditure on
the Exhibition amounted in all to nearly 5,80,000 rupees and the total
gross receipts to nearly Rs. 5,03,00c. A report was published,
giving an exhaustive account of the circumstances under which the
Exhibition was held and describing with much detail the exhibits
which were brought together. The beautiful collection of art work
in the Indian Courts was probably the most vividly recollected by
those who visited the Exhibition ; but the solid merits of the collec-
tions of raw products and rough industries in the Indian Economic
Court afforded special ground for satisfaction to all persons interest-
ed in the welfare of the Empire. It was an especially interesting
feature of the occasion that a very large number of native ladies
visited the Exhibition.

In return for the advances, amounting to Rs. 50,000, made by
the Government of Bengal to other Local Governments in India for
the purchase of exhibits, the Government of Bengal was permitted
to select articles from the collections sent from the various provinces
to the value of its advances. The selection made, together with the
collection of exhibits purchased in Bengal from the sum of Rs. 10,000
placed in the hands of the Executive Committee, formed the nucleus
of the Art portion of the Economic and Art Museum established
in the building adjoining the Imperial Museum, which, extended

SIR mVRRS THOMPSON. 801

s^d enlarged as funds became available, was a permanent memorial
of the Calcutta Exhibition of 1883-84.

The idea of the direct intervention of Government in agricultural

progress and reform in India was revived in 188 1,
Airriouituni in consequence of the Report of the Famine Com-

Doptftnwit.

mission. Struck with the absence of proper means
of collecting trustworthy information in times of prosperity, on which
action might be based in adverse times, the Famine Commission
made certain recommendations for the organisation of an agency for
its collection. Looking at the condition of the country from 2
points of view, namely, the prevention and the relief of famine, the
Commission recommended, (i) that better methods of cultivation
should be introduced, and that agricultural knowledge should be
more widely diffused ; and (2) that measures should be adopted
for the collection and record of results of past experience and current
events to enable Government to deal systematically, effectively, and
economically with famine.

These recommendations were considered by the Government of
India, and, though some points of detail were not approved, the
leading principles were adopted and submitted for the sanction of
Her Majesty's Government. This sanction was accorded in 188 r,
the Secretary of State, at the same time, defining the objects of the
new Revenue and Agricultural Department to be —

the collection and embodiment in convenient forms of the statis-
tics of vital, agricultural, and economic facts, in order that Govern-
ment and its officers might always be in possession of an adequate
knowledge of the actual condition of the country, its population, and
its resources :

the general improvement of Indian agriculture with the view jof
increasing the food-supply and general resources of the people :

better and prompter organisation of famine relief, whenever
the actual approach of famine might be indicated by statistical
information.

While the objects of the new Department were thus declared,
the attention of the Government of India was invited to the necessity
of establishing under Local Administrations a suitable machinery for
the collection and record of statistical information, and for the
improvement of agriculture throughout the country. It was the want

802 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

of such machiner}' which marred the usefulness of Lord Mayo*s
plans ; and, to avoid a repetition of such a failure, the Government
of India recommended that provincial agencies should be created to
give effect to what was its settled policy in the matter of agricultural
and industrial improvement and the prevention and relief of famine.
It seemed to Sir R. Thompson, on his assuming charge oC
the office of Lieutenant-Governor, that, apart from the question of
statistical information, the creation of an Agricultural Department'
was calculated to confer many benefits on a people 75 per cent of
whom were agriculturists, and many administrative advantages to
Government ; he accordingly submitted proposals for giving effect
to his views as well as to those which had been repeatedly expressed
by the Government of India and the Secretary of State. He showed
that nothing substantial had hitherto been achieved towards collecting
trustworthy agricultural statistics and obtaining correct records of
rents or tenures such as were found in other parts of India. Owing
to the want of village agency, this effect could not, as far as perma-
nently-settled estates were concerned, be remedied without special
legislation. The case was, however, different in estates the property
of Government and of disqualified proprietors. Government could
make surveys and settlements of rents in them, and establish village
records under the powers afforded by the existing law. The Govern-
ment of India, in expressing to the Secretary of State their general
approval of the views of the Bengal Government, and in advocating
the creation of a special Department, laid particular stress on what it
understood would, pending the adoption of more extensive opera-
tions, be the first duty of the new Department, namely, the organisa-
tion of the pahvari staff and the preparation of a scheme for the
collection of. agricultural statistics in estates under the management
of Government and of the Court of Wards. The Secretary of State,
while doubting the feasibility of the objects at which the Local
Governments and Government of India ultimately aimed, was
disposed to admit the importance of providing the. Lieutenant-
Governor with the requisite agency for advising the Government
generillly in all matters relating to agriculture and statistics, as well
as for undertaking the preliminary inquiries necessary in connection
with the experimental survey of the Patna Division, which had been
sanctioned by his predecessor. He accordingly sanctioned, as a

SIR RIVKRS THOMPSON. 80S

temporary' measure, for 2 years, the employment of an officer for the
purpose above explained, and also- for collecting the infoimation
necessary for enabling the Government of Bengal to submit in a
complete shape a detailed report on certain points connected with the
management of Wards* and Government estates, on which he desired
further information.

For the performance of these duties, Mr. M. Finucane, c. s.
was selected td be Director of the Agricultural Department, and was
first employed mainly on pressing work in connection with the Biil^
which subsequently was passed *as the Bengal Tenancy Act .On the
2nd May 1885 a Resolution was issued, defining broadly the func-
tions of the newly-created office to be of two kinds — agricuUural
resiorchy including the arrangements for the experimental survey in
the Muzaffarpur district, and for the maintenance of the results obtain*^
ed by a system of village records, as also for the collection of the
returns of the prices of food-staples required by the Bengal Tenancy
Act; and agricuUui^al impravemenfsy to be undertaken with the
co-operation of such societies as the Agri-Horticultural and the
Zoological, of local Committees, and of such landowners or farmers
as might be good enough to lend their assistance. In regard to
duties of the first class, the Director was placed under the control
of the Board of Revenue and instructed to report to them ; while
his efforts for agricultural improvement were to be made under the
direct orders of Government in the Revenue Department. The
services of 2 members of the Civil Service and of a Deputy
Collector, all of whom were graduates of the Cirencester College,
were placed at his disposal, so far as this could be done without
interfering with their other duties.

The period of 2 years, for which the Agricultural Department
was sanctioned, expired at the end of 1886. It was recommended
to be established as a permanent institution, and this was sanctioned.

The Bengal Tramways Act was passed to enable Gove^iment to
LegiJiUition • sanction, and local authorities or private persons to

Tramways: undertake, the construction and maintenance of

tramways throughout the province. It was an entirely new departure,
so far as Bengal was concerned, and prescribed the procedure to be
adopted in obtaining sanction, the manner of construction of tram-
ways, the powers and rights of the promoters. in respect of the use of

804 BENGAL UNDER THE LIEUTENANT- GOVERNORS.

roads, the rules as to fares and traffic, the penalties for [o£Eences, and
other conditions. •

By another Act the Port Commissioners were empowered to con-
Kidde i« stHict docks at Kidderpore and to raise the necessary

^^^- loans, the interest on which was guaranteed by the

Secretary of State for India in Council.

The question of affordinfi^ increased facilities to the trade of
Calcutta had been under the consideration of GoverniAent from time
to time since the year 1839. In 1881 proposals were again submitted
for the construction of docks at Diamond Harbour, and a strong
Committee was appointed by Sir A. Eden in December 1881 to
report on the scheme. In the Report the majority of the members
were in favour of it, but the merchants in a body opposed it on the
ground of the increased expense which double establishments and
offices at Calcutta and Diamond Harbour would entail. Apart from
this there were serious objections to this site on account of its ex-
posure to cyclonic waves, and the difficulty of taking large vessels
into docks on what would be for some months of the year a lee shore.
It was at this stage that the question came before Sir R. Thompson,
and by him a general Committee comprising several mercantile
members was again appointed in 1883, with the object of instituting
inquiries as to the measures possible for extending the existing accom-
modation of the Port, and the cost at which this could be provided.
After a most thorough inquiry the Committee reported that 21 jetties
might be provided on the Calcutta side of the river in positions where
they could be erected without causing public inconvenience, and 30
on the Howrah side between the Botanic Garden and the lower
boundary of the Port, But they estimated that the same amount of
accommodation could be provided in a wet-dock at not much greater
cost, and they pointed out that vessels lying at jetties would have
neither the security nor the convenience afforded by a well-arranged
wet-dock. They considered it also most undesirable to divide the
accommodation, and to place '.half on the Calcutta and half on the
Howrah side. Jetties, though they might cost less in the first instance
than docks, would cost more to maintain. The Committee therefore
thought the construction of wet-docks was the best and the most econo-
mical of all measures for affording the increased accommodation
required for the commerce of Calcutta. They also considered the

SIR RIVERS TH0MP80K. 805

Kidderpore site to be the most suitable for the purpose. After
further inquiries conducted hy selected medical officers as to the
sanitary conditions of the proposal, the scheme, which was strongly
supported hy Sir R. Thompson, received the sanction of the Gov-
ernment of India and of the Secretary of State. It consisted of an
outer dock and an inner one with entrance to the river through a tidal
basin. The supply of water for the docVs was to be drawn from
Tolly's nala which was to be provided with locks, and improved as
well as extended by Government so as to bring the boat traffic of the
province through the canal system into direct communication with
the docks. To connect Tolly's nala with the docks a canal was to be
cut. the entrance to which was to be provided by a lock 300 feet long
and 40 feet wide. The docks were to be connected with the jetties
and inland vessels' wharves by an extension of the river bank railway
from Chandpal ghat to Kidderpore and with the Sealdah terminus
by a direct line of railway. The cost of the scheme was to be 300
lakhs of rupees, to be raised by loans by the Port Commissioners on
the guarantee of the Secretary of State. The works were taken in
hand, and it was believed that they would be completed before March
1889.

The two most important measures which came before the Bengal
Local Self. Legislative Council while Sir R. Thompson was

Oovernment. Lieutenant-Govemor were the Local Self-Govem-
ment Bill and the Municipal Bill. The first of these provided for the
creation of a machinery for the development of Local Self-Govern-
ment. Lord Ripon's Government had laid down in a Resolution of
the 1 8th May 1882, the general policy which was to be carried out.
According to the Bill as originally laid before the Council in
1882-83, Union Committees were to be established for the manage-
ment of village affairs. A group of unions was to constitute the circle of a
Local Board, vested with certain executive powers and reponsibilities
and possessing a certain degree of financial independence. The
general control of Local Boards, as well as of all Municipalities
throughout the province, was to be placed in the hands of a new
authority, denominated the Central Board, consisting of members
appointed by Government. The Bill specified minutely the powers
that were to be exercised by each of the Local Government bodies so
constituted,^ the duties that were to devolve upon them^ the funds to

806 BENGAL UNDKR THK LIBUTBNANT-GOYBRNORS.

be placed at their disposal, and their relations towards each other and
towards the officers of Government. The decision of the Secretary
of State negativing the proposed appointment of a Central Board
rendered it necessary in the following year to recast many of the
provisions of the Bill. As so amended, the Bill provided that the
District Board should be an administrative body where there were no
Local Boards, and either wholly or partly a controlling body where
there were such Boards. Under this scheme there was to be a District
Board established in every district, but a Local Board, as far as
possible on a representative basis, might be constructed in any sub*
division or subdivisions, and must be constituted in any subdivision
in which the subordinate system of ihana Union Committees had
been introduced. Provision was made for the election of members and
for the control of administration. Power was given to the Lieutenant-
Govemofy and, subject to his direction, to the different Boards, to
make rules for the disposal of business. The Bill as preliminarily
amended was published for general information in April 1884, and
circulated to obtain opinions. It was again brought up in the session
of 1884-85, and passed with considerable modifications. As finally
passed. Local Boards were empowered to elect as members of the
District Board any persons qualified for election to a I^cal Board. A
schedule was added of districts, in every subdivision of which a
Local Board should be constituted and | of the members elected.
Provision was made for filling casual vacancies at Board meetings,
and for the appointment of Chairmen. Briefly, the Act gave the
Boards extensive powers and duties in regard to roads and communi-
cations, educations, hospitals, dispensaries, sanitation, vaccination,
famine relief, taking of census, maintenance of staging bungalows,
fairs and exhibitions, and other matters of public interest and
utility : also to construct and maintain tramways, railways and water-
works, and to take charge of and construct public buildings on
behalf of Government. It was made clear that District Boards were
to manage public, primary and middle class schools other than
those for Europeans and Eurasians, and power was given to the
Lieutenant-Governor to transfer funds to those Boards for the
improvement of such primary schools as did not submit departmental
returns. District Boards, with the sanction of the Lieutenant-
Governor, might guarantee the interest upon capital expended for

SIR RIVBRS THOMPSON. 807

the purpose of improving means of communication so as to benefit
their districts. No change of any importance was made with regard
to Union Committees. The rate at which the road cess might be
levied in any district could not be reduced without Government
sanction. The Commissioners were given the same power of dealing
with the estimates as was given in the Municipal Act in regard to
municipal estimates. When the measure was passed in the Bengal
Council on the 4th April, Sir K. Thompson expresbed his personal
satisfaction with it as proceeding on *a sound, practical and safe
basis, and as the time hsd come for securing the co-operation of the
people to some extent in district administration. The Bill became
Act III (B. C.) of 1885.

The Municipal Bill, as laid before the Council in the session of
The Municip.u 1 882-83, was mainly intended to consolidate and
Act of 1884. extend the existing law, and did not involve such

broad questions of principle as were raised in that relating to Local
Self-Government. As passed in 1883-84, the principal changes made
by this Act were the abolition of the classification of municipalities,
the extension of the elective system to all municipalities except the
few that were scheduled, and th& grant in nearly all cases to the
Municipal Commissioners of advanced municipalities of the right to
elect their own Chairman. The approval of Government was to be
no longer necessary for the election of a Vice-Chairman. While
greater freedom was thus granted to municipalities in the appointment
of their representatives and in the conduct of their business, special
provisions were introduced enabling the Magistrate to exercise an
effective control.

When Sir R. Thompson became Lieutenant-Governor in April

1882, the question of the amendment of the rent

The Bengal

Tenancy Act, law in the Lower Provinces, which had for nearly

VIII of 1886. ^

10 years been the subject of agitation and dis-
cussion, had reached a stage at which it was certain that some
legislative measure would be introduced, though the nature of that
measure *had not yet been finally determined. The necessity for
legislation had, indeed, been apparent ever since the occurrence, in
i^73» of the serious agricultural disturbances in Pabna. The Bihar
famine of the following year diverted the attention of the Govern-
ment to more pressing duties^ but the report of the Famine Commis-

808. BENGAL UNDER THK LIBUTBNANT-GOVBRNOR8.

sion dwelt strongly on the necessity of placing the relations of
landlord and tenant in Bengal upon a surer basis. The Agrarian
Disputes Act of 1876 was passed by Sir R. Temple's Government
as a temporary measure to meet emergencies like those of 1873,
pending the fuller consideration of the whole question. A Bill
dealing with the principles upon which rents should be fixed was
prepared in 1876, but was not further proceeded with and in 1878
the Government of Bengal proposed a measure intended to provide
only for the more speedy realisation of arrears of rent. This Bill
was introduced into the Bengal Council, but it was found im-
practicable to confine it to the limited object indicated by its original
title. The Select Committee on the Bill recommended that the
whole question of a revision of the rent law should be taken in
hand, and in April i87q the Government of India sanctioned the
appointment of a Commission to prepare a digest of the existing
law and to draw up a consolidating enactment. Proposals which
had been separately made for amending the rent law in Bihar were
also referred to the Commission for consideration.

The report and draft Bill of the Commission were presented in
July 1880, and after the whole question had been farther considered
the matured proposals of Sir A. Eden's Government were sub*
mitted to the Government of India in ^July 1881. In March 1882
these papers were forwarded by the Government of India to the
Secretary of State, with an important despatch, in which the history
of the question was reviewed and the views of the Governor-General
in Council, of which Sir R. Thompson was a member, were fully
explained. The Secretar)' of State, in September 1882, while con-
curring in the view that legislation was necessary, and while accepting
the majority of the recommendations made by the Government of
India, demurred to a proposal which formed a prominent feature of
the despatch. The Rent Commission had desired to maintain the
existing rule by which occupancy right was acquired by 1 3 years'
continuous possession. The Government of Sir A. Eden had
recommended that the occupancy « right should be enjoyed by all
resident raiya/s. But the Government of India proposed to take the
classification of lands | instead of the status of the tenant as the
basis on which the recognition of the occupancy right should be
effected, and to attach the right to all ratya/t lands. It appeared to

SIR BITERS THOMPSON. 809

the Secretary of State that this involved a great and uncalled-for
departure from both the ancient custom and the existing law of the
country, and he declined to sanction it. The Government of India
defended their proposals in a subsequent despatch written in October
1882, but the Secretary of State adhered to his former opinion,
though he expressed his willingness to assent to the Introduction
of the Bill in the form which the Government of India preferred.
The Government of India, however, declined to introduce a Bill
in a form of which the Secretary of State disapproved, and it was
determined that the measure should be framed upon the lines
suggested in the latter 's despatch.

A revised draft of the Bill was prepared by the Govsrnment of

The Uoutouuit- India, and (on the and March 1883) Sir C. P. Ilbert

sirsteuairtB^yiej. moved in Council for leave to introduce it On the

Mr. Ilbert.

„ Hunter. 13th March Sir Steuart Bayley, in whose charge the

Bate KrtotodM BUI had been placed, moved that it should be refer-

The Maharaja of red to a Select Committee. After a long debate, ex-

DarDnanna. ^

Mr irong?***' tending over 2 days, the Bill was referred to a

Major Baring. Select Committee consisting of the gentlemen

named in the margin. Mr. T. M. Gibbon and Mr. Amir Alt were
afterwards added, and, on the death of the Hon'hle Kristodas Pal,
Raja Piari Mohan Mukerji succeeded him on the Committee. Its
meetings commenced in November 1883, and were carried on till
the following March, when a preliminary report was presented, in-
cluding a revised draft of the Bill. Four members of the Committee
recorded Minutes of dissent from the Report.

The revised Bill was republished, and was subjected to a careful
examination by Divisional conferences of the executive officers of
Government, as well as by judicial officers and by the non-official
public. When these opinions had been considered, the views of
the Local Government of Bengal were submitted to the Govern-
ment of India on the 15th September 1884. This letter contained a
detailed and authoritative exposition of Sir R. Thompson's views.
Among other points of less importance. Sir R. Thompson pro-
posed to allow the free transfer of occupancy holdings of Bengal,
giving the landlord, however, a veto if the transfer were to any but
an agriculturist ; to leave such transfers in Bihar to be regulated by
custom ; to omit the clauses of the Bill which gave the landlord a

810 BBNOAL UNDER THB LIBUTENAMT-GOYBRMORS.

right of pre-emption ; to abandon the provisions for enhancement
on the grounds of the prevailing rate, or of the increased productive
powers of the land ; to withdraw all limitations upon enhancement
by suit, but to maintain them in cases of enhancement by contract ;
to restore the check which limited enhancements to a certain propor-
tion of the gross produce ; to provide that tables of rates should be
prepared only on the application of parties; to retain substantially
the existing law of distraint ; and to provide for a cadastral survey
and the preparation of a record of rights.

The Select Committee resumed its sittings in November 1884,
and early in 1885 presented its final Report, which was accompanied
by Minutes of dissent from several members. The debate, however,
which followed showed that the great majority of the dissentients
fully accepted the principles of tlie Bill, though they thought some
of its provisions unsatisfactory or incomplete.

On the 27th February 1885 the Bill was brought forward in Council
by Sir Steuart Bayley, who moved that the Report of the Select Com-
mittee should be taken into consideration. To this an amendmtot
was moved that the Bill should be republished before bieng proceeded
with. After an exhaustive debate, which extended over 2 days, and
in which the principles of the Bill were fully discussed, the amendment
was rejected by a large majority. The Council then proceeded to
discuss the clauses of the Bill. Above 200 amendments were placed
upon the notice paper ; but many of these were formally mthdrawn,
or were tacitly dropped. Upon all the important provisions, however,
of the Bill, there was an animated debate, which extended over the
4th, 5th, 6th, 9th, and nth of March. During this discussion it
was the object of the Government of Bengal, while resisting those
amendments which subverted or weakened the principles which the
Bill \i'as intended to establish, to strengthen the position of the
occupancy rmyat by extending the Tight to the pargana instead of
confining it to the village ; to modify the rule of enhancement on
the ground of the prevailing rate ; and to give the non-occupancy
raiyat the security of a 5 years ' initial lease. These amendments
were not accepted by the Council, but the Government of Bengal was
successful in maintaining, against a strong opposition, a limitation
upon the enhancement of an occupancy raiyafs rent by private
contract. The Bill was passed by the Council on the nth March ;

SIB RITXRS THOMPSON. 811

received the assent of the Governor-General on the 14th, and*
became law as Act VIII of 1885. The Act came into force on the
1st November following, except the Chapters relating to distraint
and deposit of rent, the operation of which was postponed to the
ist February 1886, to enable the High Court to frame the necessary
rules.

This Act differed in some important particulars from the Bill
which had been introduced into Council 2 years before. Perhaps
no legislative enactment was ever « subjected to fuller examination
or to more searching criticism. The question had engaged the
attention of the Government and the public for more than 10 years ;
the Select Committee, which included members holding the most
diverse views, held no less than 64 meetings, and had before it

•

several hundreds of Reports, opinions, and memorials. The result
was that the Bill which finally passed the Council was in some
respects a compromise, and, if it was less thorough and complete,
was certainly a more practical and workable law than the draft
which was originally laid before the Council. Some of the more
important modifications which were introduced may be briefly
noticed here. The Bill as originally brought in embodied provisions
for the sale of pa/nt iaiuks ; but it was eventually determined to
leave Regulation VIII of 1819 untouched. The settled, raiyat
acquired by the original Bill an occupancy right in all land held by
him in the village or estate. The Act limited this to land held in
the same village. The occupancy raiyat was empowered to transfer
his holding, subject to a right of pre-emption by the landlord at a
price to be fixed by the Civil Court. The pre-emption clauses were
struck out, and the power of transfer was left to be regulated by
local custom. The rent of an occupancy raiyat could not be en-
hanced, under the Bill, to an amount exceeding fth of the gross
produce, nor that of a non-occupancy raiyat to an amount exceeding
-f^^ths, but no limitation of this kind found a place in the Act. In > suits
for enhancement the Bill provided that no increase of demand in
excess of double the old rent should be awarded : but there was
no corresponding provision in the Act. A prominent feature of the
Bill was the preparation of tables of rates, by which lands were to
be classified according to the capabilities of the soil, and rent rates
were to be fixed, which should be in force for not less than 10, or

812 BENGAL UNDJSR THE LIBUTEN ANT-GOVERNORS.

'more than 30 years : but this Chapter was entirely struck out. The
Bill provided that the non-occupancy raiyat^ if he were ejected from
his holding, should receive compensation for disturbance : but no
such stipulation will be found in the Act.

The only material point in which the Bill was modified in the
x)pposite direction was in the enhancement of an occupancy raiyaCs
rent by contract out of Court. The Bill allowed such enhancements
to the amount of 6 annas in the rupee upon the old rent : but the
Act reduced this to 2 annas in the rupee, the Government of Bengal
being strongly impressed with the danger of allowing pressure to be
put upon tenants to enter into contracts which would virtually defeat
the object of the legislature. It was, however, provided that a higher
rate of rent might be recovered by suit if it had been actually paid
for 3 years.

The Bengal Tenancy Act, perhaps the most important measure
which has passed into law since the Regulations;of 1 793 were promul-
gated, had 3 main objects in view, to one or other of which almost
all of its sections can be referred. The ancient agricultural law of
Bengal was founded on a system of fixity of tenure at customary
rents. But this system was gradually ceasing to be suited to the
altered economic conditions of the country, and the attempts which
were made to solve the question by the substitution of positive law
for customary usage had hitherto been unsuccessful. ' In some parts
of Bengal, in which the zamindars were powerful, the raiyal was
treated as a mere tenant-at-will : in other parts, in which the popu-
' lation was comparatively sparse, the raiyai refused to pay any rent
unless the zamindar agreed to his terms. Act X of 1859 rather
added to the difficulty than removed it. On the one hand, this Act
made it almost impossible for the raiyai to establish a right of occu-
pancy : on the other hand, it placed insuperable obstacles in the
way of the zamindar who sued for an enhancement of his rent. The
Courts of law, with rigid impartiality, required the raiyai to establish
his occupancy right by showing that he had cultivated the same plot
of ground for 12 successive years, and demanded from the landlord
the impossible proof that the value of the produce had increased
in the same proportion in which he asked that his rent, should be
enhanced. The legal maxim, semper presumiiur pro negnnie, was
never more copiously illustrated than in the various phases of this

SIR RIVKHS THOMPii^ON. 813

rent litigation. The party upon whom lay the burden of proof was
almost certain to fail. To this evil the Tenancy].' Act was intended
to afford a remedy. The principle of the Act may be said to be
based upon a system of fixity of tenure at judicial rents, and its
3 main objects were,— ^ri//y, to give the settled raiyai the same
security in his holding as he enjoyed under the old customary law !
secondly^ to ensure to the landlord a fair share of the increased
value of the produce of the soil : and, thirdly ^ to lay down rules
by which all disputed questions between landlord and tenant could
be reduced to simple issues and decided upon equitable principles.'
A good example of the first will be found in the clause which
throws upon the landlord the onus of disproving the ratyafs claim
to a right of occupancy : the second is illustrated by the section
relating to price-lists, which relieves the zamindar of the trouble
of showing that the value of the produce has increased : the third
pervades the whole of the Act, and is especially conspicuous in the .
valuable section which authorises an application to determine the
incidents of a tenancy, and in the Chapter which relates to records of
rights and settlements of rents. The maintenance of the principles of
the Act is further safeguarded by a section which restricts the power
of entering into contracts in contravention of its fundamental
provisions. '

In pursuance of these principles the Act laid down rules to guide
the Courts in determining whether a tenant is a tenure-holder or a
raiyai: it provided a procedure for the registration of the transfer
of tenures : it defined the position of rai^ats who hold at fixed rates
of rent : it simplified and facilitated suits for the enhancement or
reduction of rent : it established a system for the commutation of
rents payable in kind : it specified the grounds on which a non-
occupancy raiyai may be ejected : it prescribed rules for instalments,
receipts, and interest upon arrears :. it encouraged the making of
improvements : it restricted subletting : it provided for cases in which
holdings are . surrendered or abandoned : it protected the interests,
both of the parties and of the general public, in cases of disputes
between co-sharers : it laid down a procedure for recording the
private lands of proprietors : it introduced a new system of distraint:
and it gave protection to sub-tenants when the interest of the. superior
holder, is relinquished or sold in execution of a decree.

814 BENGAL UMBJftB THE USUTSNAMT-G0VBRN0R8.

That the Act was a complete and final settlement of the questions
with which it dealt was not alleged by its most strenuous advocates.
But that this want of completeness and finality was not merely natural
but inevitable was forcibly urged by Sir C. P. Ilbert in the course of
the debate on the Bill, and the question could hardly be better
summed' up than in the words he used : — *' What the Council have
to consider, as practical men, is, not whether this is an ideally perfect
measure, not whether it is a final settlement of questions between
landlord and tenant in Bengal, not whether it is likely to usher in a
millennium either for the zamindar or for the raiya/, but whether it
represents a step in advance, whether it does something substantial
towards removing admitted defects in the existing law, whether it
does not give some substantial form of security to the tenant, some
reasonable facilities to the landlord. It is because 1 believe that the
measure, however it may fall short of ideal perfection, does embody
substantial improvements in the existing law that I commend it to
the favourable consideration of the Council."

The Act came into operation on the ist November 1885, and had,
when Sir- R. Thompson retired, been too short a time in force
for a full estimate of its working. The principal business of the
revenue officers in connection with the Act had related to the issue
of notices and payment of landlords' fees on transfers of tenures.
A petition was addressed to Government on the subject of the
working of the provision that tenants holding at a rent fixed in
perpetuity must give notice and pay a fee to the landlords, through
the Collector, on transferring their holdings. It was alleged that
raiyais not holding at fixed rates adopted this procedure, thereby
creating evidence which in future might be accepted as proof that
they really occupied the privileged position which they claimed. It
was pointed out that this fear did not rest on any solid foundation.
There were, in 1885-86, 223 cases of appraisement of produce,
which occurred principally in the Patna Division. The result was
reported to have been so far satisfactory. During the year 1886-87
the most important action taken by the Board of Revenue was the
preparation of a draft set of rules for settlement procedure with
special references to the changes effected by the Act.

The provisions of the Act on the subject of receipts for rent
produced a very immediate and striking effect, and gave matter for.

SIR RIYBRS THOMPSON. 815

comment in every part of the province. It was part of the enactment
on this subject that rent receipts should contain certain stated parti-
culars ; and further, that if a receipt did not conUin substantially the
particulars required, it should be presumed, until the contrary was
proved, to be an acquittance in full of all demands up to date. Such
a change affecting every payment of rent throughout the province,
and tending to bring old disputes to a head, naturally gave rise to
some trouble and misunderstandings at firsts The misunderstandings
were soon in many cases cleared away, and by degrees only those
cases remained which the law was intended to meet, viz, those in
which the landlord had been keeping his accounts so as to show a
higher rent than that authorised by law ; those in which illegal cesses
had been collected ; and those in which through former neglect the
real rent had never been ascertained. On such estates the first effect
of the new law might be to increase contention with the ultimate
effect of producing a satisfactory settlement. Even in these cases
what would bring matters to an issue would be merely the insisting
on the dischai^ of an obligation which existed under the old law,
and had alwayp been considered necessary in Bengal—^the entry in
the receipts of the period in respect of which rent is paid. This
was a necessary form of honesty and fair dealing insisted on in
business of every kind ; and, if its observance in transactions between
Bengal zamindars and their raiyais caused friction, that was the best
proof that the precaution was necessary either to clear up uncertainty
or to prevent fraud. That an appreciable effect had already been
produced from the provision, of the new law appeared from the fact
that during 5 months nearly j\ millions of the specimen forms of
receipt were sold. In addition to these, forms were printed at private
presses, those supplied by Government having purposely been
disposed of at a price which permitted ol their being undersold.

With the exception of these difficulties in regard to notices of
transfer and to receipts, the working of the new law was free from
any such disturbance of the relations between landlords and tenants
as was apprehended by some of those who opposed the introduc-
tion of the measure. The other provisions of the Act worked
smoothly, recourse being had to the sections relating to the appraise-
ipent of produce rents and to the registration of improvements, and
some applications were received for the settlement of rents. In 1887,

816 BENGAL UNDER THE LIEUTBNANT-OOYERNORS.

however, there were no materials for forming ^n opinion on the
operation of the more important sections of the law, such as the
publication of price-lists, the sale of tenures subject to encum-
brances, and the modified procedure for distraint. The real benefits
of such a measure as the Tenancy Act were to be looked for, not
in the number of cases in which application might be made to the
Courts to enforce its provisions, but in the peaceful acceptance
by all classes of the principles which underlay it, that the land-
lord was to be secured in the enjoyment of his fair rent and
that the tenant was to be maintained in the possession of his rightful

holding.

On the passing of the Tenancy Act, an experimental survey

was carred out in 1885-86 in pargana Bisara, in

ozperimontai Muzaffarpur, under Chapter X of the Act, including

a record of rights and a settlement of rents. The
cadastral survey was conducted by a professional party, and the
record of rights and settlement of fair rents by officers acting under
the immediate supervision of the Director of the Agricultural
Department. The professional party recorded the areas of holdings,
facts of undisputed possession, of crops grown and of irrigation.
The )niaps and measurement records of each village, as they «ere
completed, were made over to the revenue officers, who proceeded
to the village and determined and recorded the status and interests
of all parties concerned. They also recorded the amounts of
existing rents, and settled and recorded fair rents on the application
of either landlord or tenant, or otherwise. The total area cadastratly.
surveyed to the end of June 1886 was 410 square miles. . The rents
were recorded and the status determined of 15,876 tenants, while
fair rents were settled on the application of either landlord or tenant
in cases of 3,546 raiyats. Also 333 boundary disputes were
amicably settled, and in no case was an appeal made to the Special
Judge from the decisions of the Settlement Officer. The total cost
of both survey and settlement was estimated at about %\ annas per
acre. The success of the work may be judged by the absence of
those disputes and difficulties which were expected in connexion
with it. In 1886-87, however, the orders of the Secretary of State
were received that this experimental survey should, for the present,
be abandoned.

SIR RIVERS THOMPSON. 817

Much public criticism was directed to the sanitary condition of

Calcutta duriniF 1882-83. An important memorial

Calcutta Sonitttiy .

Coumitsion of OH the subject, numerously and infiuentially signed,

1884-5

was presented to the Sir R. Thompson in January
1883. Subsequently, in July 1884, another memorial, signed by a
large number of residents, was presented, praying that a Commission
might be appointed to inquire into the sanitary condition of the town.
The memorialists urged (i) that the measures taken bj the Com*
missioners for the general sanitary improvement of the town were
inadequate ; (2) that the mortality of March and April 1884, especi-
ally that from cholera and small-pox, was of an abnormal and
alarming character, and that there was a likelihood of the recurrence
of the mortality ; and (3) that the Commissioners as a body were
not qualified to judge of the special sanitary measures most
immediately required, or to realise the responsibility under which
they lay as regards the condition of the unhealthy portions of
the city. This memorial was forwarded to the Commtssoners,
with the remark that no time should be lost in preparing
a comprehensive scheme for, ^r^/, the thorough sanitary improve-
ment, and sicottd, the structural improvement, of the streets of
the town. To this object the Government of Bengal invited their
co-operation, and proposed to appoint a Commission, of which the
Chairman of the Corporation would be the President, and of which
the members would be, 2 of their own body nominated by the Com**
missioners, with 2 medical officers, an engineering officer, and a
non-official European gentleman to be nominated by Government.
It was pointed out that the duty of the Commission would be, not to
sit in judgment upon the proceedings of the Commissioners, but
fo draw up (i) for each section of the town a complete scheme for
the reclamation of bastis, the fiUing-up of tanks, the provision of
water-supply, surface-drainage and the like, and (2) for the whole
town such a scheme of structural improvements in the way of
opening-up new streets and straightening or enlarging existing
streets as might come within the limits of the probable finan-
cial resources of the Corporation. The Commissioners rejected
the proposal made by Sir R. Thompson, who was therefore
obliged to accede to the prayer contained in the memorial, and
accordingly on the 14th. August 1884 a. Commission, under section

818 BBNGAL UNDER TU8 LIBUTENANT-OOVBRNORS.

28 of Act IV (B. C.) of 1876, was appointed, consisting of —
(i) The Sanitary Commissioner for Bengal.

(2) A member to be appointed by the Commissioners in meet-
ing within 30 days of the date of the Government notification, or in
their default by the Lieutenant-Governor.

(3) The Hon'ble H. Beverley, c. s.

The members of the Commission were requested to report
whether they were of opinion that the cleaning and the conservancy
of the town were defective to an extent likely to be prejudicial to the
health of the inhabitants of the town or of any part thereof ; and, if
they should be of such opinion, to specify in their Report what further
provision should be made for the cleaning and conservancy of the
town up to the end of 1885-86, and to submit an estimate of the
cost of the said further provision. The Commissioners selected as
their nominee Mr. H. J. S. Cotton, c. s.

The Commission concluded their inquiry and submitted their
Report in January 1885. While giving the Corporation every credit
for the way in which they had controlled their finances, they were of
opinion that the expenditure for the cleaning and conservancy of
the town had not been on a scale commensurate with its require-
ments. They held 58 meetings, took the evidence of a number of
witnesses who came forward to give their evidence regarding the
work of the Corporation, and visited nearly all the bas/is and other
insanitary parts of the town. Their Report was an exhaustive
narrative of the municipal administration of the town, and contained
a number of recommendations for drainage, water-supply, sanitation,
roads and conservancy &c. Action was taken on many of their
suggestions, but the full adoption of all their recommendations
depended upon amendments of the law which required the approval
of the Legislative Council.

On the 12th May 1885 Sir R. Thompson returned to the

Presidency from Darjeeling to preside over a Com-

Dcfoncea of tho

river and Port of misslon appointed by the Government of India,

Oalcutte.

after the '' Russian scare '^ in connection with *' the
Penjdeh incident, " to examine into the state of the defences of the
river Hooghly and of the Port of Calcutta. Accompanied by the
members of the Commission, which met for deliberation periodically
at Belvedefe, Sir R. Thompson made a trip down the river and person-

SIR RIVERS THOMPSON. 819

^lly inspected the fortifications at Fulta and the sites proposed
for new forts and defences on both banks of the river.

During the previous 5 years, and even from an earlier period, com-
caicutta Muui- P^**'*^^ had been frequently made, as has been shown
cii»i Legislation. above, as to the insanitary condition of the suburbs
immediately surrounding the town of Calcutta ; and it was strongly
urged that to effect any improvement in the former they should be
united with the town under one system of municipal Government.
Indeed, the necessity of such a measure had been recognised so long
before as 1864. Accordingly Sir R. Thompson, on the 20th June
1885, appointed a special Committee to prepare a scheme for the
amalgamation of the urban portions of the suburbs with the town.

In the meantime the Government of India, in a letter dated the
31st August 1885, entirely supported Sir R. Thompson in his
action towards the Calcutta Corporation, laying down distinctly that
no question of remission of municipal taxation could possibly arise
until it was shown that all important sanitary improvements were
adequately provided for, and that income should be maintained at
the maximum until the town was properly cleansed^ drained and
watered. The Secretary of State fully supported the authorities

■

in India, and the Army Sanitary Commissioners recorded a memo-
randum in which they pointed out that nowhere could the plea of
I^ocal Self-Government be set up as any excuse whatever for averting
public interference, and advocated a more liberal expenditure on
sanitary work. They also expressed their approval of the prospect
of the greater part of the vast population of the city and suburbs
being placed under one consolidated administration at no distant
date. The 2 areas, they wrote, were so connected that it was
scarcely possible to ascertain the death-rate of either area ; and, if
municipal Calcutta were entirely freed from localising causes of
epidemics^ it would by no means follow that the public health would
be safe from disease causes left to develop epidemics in the imme-
diate vicinity of the improved area.

The special Committee submitted their Report on the loth
December 1885. They recommended the inclusion of the 7 suburb-
an wards within the limits of the metropolitan municipality, and
stated that, to give effect to their scheme, the existing municipal
law, Act IV (B. C.j of 1876, should be altered. Accordingly a Bill

820 BENGAL UNDER THE LIEUTENANT-00VERN0B8.

to consolidate and amend the law relating to the municipal affairs of
the town and . suburbs of Calcutta was introduced in the Bengal
Legislative Council on the loth April 1886. It was allowed to re-
msun before the public until the legislature met again on the 27th
November when, with some remarks from the President and Member
in charge, it was referred to a Select Committee.

Its main results were intended to be that the available resources
of the town would be neither increased nor diminished by the arrange-
ment ; the suburbs would be assisted to the extent of 3 lakhs, but
would have to pay themselves also more than they previously paid in
taxation ; and Government would assume the responsibility of over
3 iakAs a year, than which no better evidence of their interest in the
scheme could be supplied. The special Committee had calculated
that the municipal revenue of the new Calcutta would be about 34
lakhs of rupees ; whereas in the old area of the town the annual
income was about 28 lakhs, exclusive of the police-rate. The old
area of the town consisted of about 6 square miles : the new
metropolis would cover about iii square miles. The population of
the town within the jurisdiction of the Corporation amounted to about
400,000 ; the additional number to be included would be about
182,000. The total result would not make Calcutta as large or as
populous as the Bombay municipality which contained about 22
square miles and 800,000 inhabitants. Generally, while the Bill re-
cognised the full freedom of the Commissioners in the conduct of
the affairs of the municipality, it reserved completely the right of
interference on the part of Government, where circumstances demand-
ed intervention ; though the area of the municipality was extended,
the number of Commissioners would not be increased ; the con-
stitution of a Town Council would be clearly defined, and measures
should be taken for a fair representation of every section of the
community.

In the cold weather of 1882-83 ^ Commission was appointed to
inquire into the working of the chauktdari, or villaire

Village Police. .

police, system ; and it submitted a Report shortly
after the commencement of the following year. The principal
complaints had been that the chaukidars were not regularly paid,
and that the panchayats kept no regular accounts. Accordingly,
a draft Bill came under the consideration of Government during the

SIR BITERS THOMPSON. 821

year 1885-86; in which, while retaining iht panckay a/ system, sn
endeavour was made to provide for a better method of appointment
of panchayatSy and for the more punctual payment of the salaries of
the chaukidars. This Bill became law. Act I (6. C.) of 1886, during
the year 1886-87. The measure affirmed the principle that it was
better to have the chaukidar as a servant of the villagers and
subordinate to the principal men of the village than directly under the
control of the regular police ; and it was held that, if the panchayats
could be got to act up to their obligations and responsibilities, the
gain to the public interests would be great, by securing influential
local co-operation in the prevention and detection of crime, and by
constituting a local agency which could be utilised in other directions.

With regard to Civil Justice, in the year 1881-82, owing to the
Divifltoiud ^^^^ recognised necessity for special measures to

Appdiate Benches, facilitate the disposal of appeals before the High
Court, a scheme for the constitution of Appellate Benches in the
interior was submitted by Sir A. Eden for the approval of the Secre-
tary of State. The scheme proposed to establish 4 Benches at Patna,
Burdwan, Dacca, and the z^-Parganas, each consisting of a Covenant-
ed officer and a member of the Subordinate Judicial Service. It was
hoped that the appellate work of the High Court would be materially
Induced. The Hon'ble Judges of the High Court, however, were
never very favourable to the arrangement ; and, when the matter
came up for disposal, Sir R. Thompson considered that the financial
circumstances under which his predecessor had been able to promise
his support to the scheme obtained no longer. No provision had
been made in the provincial contract for the large outlay involved,
and it certainly could not be borne by the provincial revenues in
their reduced condition. Beyond this it seemed to Sir R. Thompson
that a much simpler expedient, by which the already existing
judicial agency at the principal stations could be used to constitute
Appellate Benches, would meet all the necessities of the case. No
orders were passed by the Government of India before Sir R.
Thompson retired.

Sir R. Thompson had long struggled against ill health but was

eventually compelled to take a sea trip to Ceylon.
offidS£Lieu-' During his absence from nth August to 17th
tepMit Governor. September 1885 Mr. Horace Abel Cockerellc, s. i.

822 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

was temporarily Lieutenant-Governor. His service dated from 1853.
After filling junior and district appointments he had held charge of
Several Revenue Divisions, and twice officiated as Chairman of the
Justices for Calcutta and Commissioner of Police : he was Secretary
to Sir A. Eden in the Judicial, Political, and Appointment Depart-
ments from August 1877 ^^ April 1882, and received a C. S. I. for his
services : he had been a Member of the Bengal Legislative Council,
and Member of the Board of Revenue from June 1882. He was
immediately available, and carried on the administration without any
breach of continuity of policy for the few^ weeks he held office. He
retired in March 1887.

The excessive rainfall of August and September 1885 caused exten-
sive floods in south-west and central Bengal and in

Hoods.

Other parts of the Bhagalpur Division. The Ganges,
and the great rivers into which it divides as it passes through central
Bengal, rose to unusual heights, and spilled in destructive floods
over the surrounding country. The districts which suffered most,
and mainly from the breach caused in the Lalthiakuri embankment,
were Murshidabad and Nadia. In the former no less than 1,250
square miles, or more than one- half of the total district area, were
under water. In the latter district nearly 2,200 square miles were
inundated. Though much temporary hardship and discomfort were
caused by these floods, they did little permanent harm, except where
sand was thickly deposited, while the after effects ensured to the
cultivators for the next few years crops far more abundant than those
they lost. For the relief of immediate distrei»s relief -circles were
formed in the affected areas, and a Central Committee was formed
in Calcutta to collect subscriptions and organise relief for those
forms of distress with which Government agency could not adequately
cope. The Committee received Rs. 65,665 in subscriptions, and
expended Rs. 37,000 in the relief of distress. The balance was
invested so as to form the nucleus of a distress fund to be applied
promptly on the occurrence of future calamities by famine or
inundation in Bengal.

A great disaster overtook the province of Orissa in the storm-
wave which submerged a portion of the coast of

Orina Atorm-

wave of 22nd the Cuttack district, at the mouth of the Mahanadi

8eTt«mber 1885.

river, on the 22nd September 1885. At 6-20 a. m.

SIR RIVSRS tHOMPSON. 823

on that date a sea-wave 15 feet in height broke over False Point.
It submerged 250 square miles in its course; 11 villages were
completely swept away, every man, woman, and child in them being
drowned ; 1 50 more villages were entirely levelled, and their crops
completely destroyed, but a considerable portion of their population
escaped. It was estimated that altogether about 5,000 persons were
drowned by the storm-wave. Immediately after the disaster the
Government officials visited the devastated country and distributed
food to the survivors. At the beginning of the relief operations, as
many as 8,000 persons daily were in receipt of charity. The villages
which were not utterly destroyed recovered from the effects of the
storm with remarkable rapidity, and within a short time few vestiges
of its destructive character remained. In the Balasore district much
less damage was done by the storm-wave. It was stopped by the
embankment of the sea- coast canal, which thus saved hundreds
of square miles of country from being submerged by salt water.
As a protection against a similar visitation a strong place of refuge
was constructed on the highest ground available at False Point.

In September 1882 the Government of India, at the instance of
«i*v 1.^ 1 the Census Commissioner, issued a circular to all

inquiry. Local Governments and Administrations, suggesting

that steps should be taken, on the basis of the statistics recorded
in the Census of 1 88 1, towards collecting fuller and more precise
information regarding the castes and occupations of the people of
India. Sir R. Thompson, fully recognising that the provinces
under his charge, with a population made up of many diverse
elements, offered a singularly promising field for the proposed
inquiry, gave effect to the wishes of the Government of India in
1885 by appointing Mr. H. H. Risley, c. s. to this special duty.

In publishing the results it was proposed to maintain, so far as
possible, the distinction between the administrative and the scientific
branches of the subject. For administrative use it was intended to
embody in an ethnographic glossary a detailed description of all
tribes, castes, sub-castes, sections, occupations, and religious sects
traceable in Bengal, either from the statistics of the Census of 1881
or from other sources. This work had already been commenced,
and was likely to be soon completed and be available for use in the
next Census of Bengal.

824 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

The scientific aspects of the subject were to be dealt with in a
second volume. The materials for this portion of the work were
to consist of deductions from the descriptive record of customs
contained in the ethnographic volume, together with the statistics of
physical characters as collected. By piecing together the evidence
comprised under these two heads, it was hoped that it might be
possible to analyse and classify the chief component elements of
the population of Bengal, and to offer some explanation of the
manner in which that population had been developed.

The objections of a portion of the public to the outstill system,
The Excise Com- which had been strongly urged during the last years
miMion. ^j g.^ ^ Edcn's Government, were renewed after

Sir R. Thompson's accession to office, notwithstanding the strin-
gent orders issued against the multiplication of shops, which led
to a large reduction in the number of outstills. At length, in conse-
quence of clear indications of a serious increase in the consumption
of spirituous liquors in Bengal, and as there appeared to be reason to
believe that this increase was to some extent due either to the outstill
system of excise or to the manner in which that system had
been worked, Sir R. Thompson, on the 4th December 1883, appoint-
ed a Special Commission under Sir John P2dgar, k. c. i. e,. c. s. i.
to consider and report upon the subject of the excise on country
spirits in all its aspects after careful local inquiry. The Commission
began their labours on the loth December and were occupied
continuously from that day until the loth April 1884 on which
they brought their labours to a close, in examining witnesses,
inspecting outstills, in practical inquiries and conducting experi-
nients in distillation of a most valuable nature in different
districts. The result was embodied in an admirably clear Report,
submitted on the loth September 1884, which, whatever, might
be the future systems of Excise in Bengal was sure to take its
place as a standard work of reference, to which every one
would turn who might desire information on the history of the
Excise revenue, or on indigenous methods of distillation and their
results.

It was, Sir R. Thompson believed, an idea commonly accept^
ed by many who had not studied the subject, that the outstill
system was a novelty ; that it had never been tried before ; and that,

SIR RITBRS THOMPSON. 825

until the form of the system in existence in 1883 was introduced,
there had never been any change from the central distillery arrange*
ments which had immediately preceded it. As a matter of bet,
however, the outstill system was by far the older of the two, dating,
it was believed, from the time of the Mughal emperors, and central
distilleries were only first established in 18 13. It was not till 1S63
that it was decided to substitute them generally for the older outstills.
This sadar distillery system, as it was called, was found to encourage,
illicit distillation, and in 1 871 the outstill system began again to be.
gradually introduced, and was finally sanctioned on a larger scale in
1877 and the following years, so that the Excise Commission, in
commencing their inquiries in 1883, found an exclusive system of
outstills in existence in all but a few districts where sadar distilleries
were preserved. Under this system the license-holder paid a certaiix
fee, the amount of which was commonly settled by auction, for the
right to distil and sell liquor in a certain fixed place. He was allow-
ed to work only one still, and was forbidden to distil at night or to
sell wholesale quantities. Sales after 9 p. m„ or in any place othet
than the shop for which the license was granted, were also prohibit-
ed ', but no restrictions were placed either on the quantity to be dis-.
stilled, or on the quality of the liquor. Under former rules the.
capacity of the still had been always defined : but in 1878 the rule,
prescribing a limit of capacity was abrogated under orders of the.
Board of Revenue, and since then the holder of an outstill license
had been permitted to increase the size of his still at discretion. ' :

Under this system the revenue rapidly increased, rising from
Rs. 28,90,000 in 1877-78 to Rs. 52,13,000 in 1883-84, and financially,^
therefore, the scheme was a success. But the Commission's inquiries-
led them to believe that, even from this point of view, the system,
for various reasons, would not in the long run prove so lucrative as-
it at first sight appeared. The most important question, however, was-
that of increased consumption, and if it was proved that the then existing
system offered undue encouragement to the drinking of spirits,'
Sir R. Thompson was of opinion that financial reasons could
not be allowed to stand in the way of the needed reforms. 'The
special ■ object, therefore, of the Commission was to ascertain tjie •
causes of this increase, and to suggest means by which they might-
be removed. In their . opinion the primary cause of the "growth of

826 BENGAL UNDER THE LIEUTENANT- GOYEBNORS.

the habit of drinking among the people was the influence of social
moral, and religious changes in relaxing the restrictions which had
previously kept large classes from indulging in spirituous liquors.
Increase in the purchasing power of the consuming classes was
assigned as a reason for some part of the increased consumption ;
but the greater part of it had to be otherwise accounted for, and
the Commission enumerated the following causes : — (i) the suspen*
sion in 1878 of the long-established rule limiting the capacity of
stills, thus enabling the distillers to produce from their large stills
greatly increased quantities of liquor at greatly reduced prices ;
(2) the excessive number of shops that had been licensed, total
population and area having alone been considered, although the
proportion of the consuming population to the total population
varied greatly in different districts ; (3) improper selection of sites
for shops.

For removing these causes the Commission made certain recom-
mendations, the principal of which, together with the action taken upon
them by Government, are here briefly described. The Commission
was of opinion that the outstill system properly regulated was the
most suitable for the country in general ; but, when special means
of close supervision existed, and a large drinking population was
found in a small and well-defined area, central distilleries, in which
alone a uniform tax could be levied on spirit according to its strength,
should be established. Sir R. Thompson accepted this suggestion,
and it was decided to place such distilleries in certain large towns.

The Commission also recommended that in other towns the
outstills should be grouped within one enclosure outside the in*
habited parts of the town, and that care should be exercised
in the selection cf the retail shops within the town supplied by
these stills. Sir R. Thompson considered that this dealt with
a matter of municipal rather than of excise administration, and
that, as long as District and Municipal Boards had a voice
in the selection of sites and other matters of local interest, no
general rule need be laid down. The essence of the proposal was
that outstills should not be placed where they were likely to be .
objected to as nuisances ; and, where no objections were preferred,
no change need be made.

It would have been useless, however, to re-establish central dis*

SIR RIVERS THOMPSON. 827

tilleries if proper safeguards were not provided against the com-
petition of surrounding outstills ; and this led to the consideration
of the third recommendation, made by the Commission, that the
capacity of each still should be limited to the existing demand for
liquor in the area to be supplied by it, and that the upset price of
each still should be proportionate to that capacity and calculated on
the basis of the duty which could be levied by Government on its
out-turn at a given strength. In connexion with this, other re-
commendations were made by the Commission, the most important
of which were that in each district a maximum aggregate capacity
for all outstills should be fixed, and that the aggregate capacity of
the fermenting vats allowed to each still should also be fixed. Another -
recommendation of the Commission was that a minimum price
should be fixed for the cheapest sort of liquor, according to the
circumstances of each district and the prices prevailing. The 2
principal objects of the proposed rule were— ^ri/, to break down-
the growing tendency towards the establishment of monopolies
caused by wealthy capitalists being able to force down prices until-
they drove their poorer rivals out of the trade ; and second^ by thus
raising average prices and restricting consumption, to encourage
the production of a more wholesome liquor. Sir R. Thompson was
not prepared to accept in full these suggestions made by the Com-
mission without further inquiry and consultation ; and the Board of
Revenue were therefore requested to make a full experimental trial,
in the district of Patna, of those points of the system, and in all
other districts where central distilleries had been established to fix
a certain area in the neighbourhood of such distilleries within which
no outstills would be allowed, and a somewhat larger area within
which the capacity of outstills should be limited*

The last of the main proposals made by the Commission was
that excise establishments should be increased. Sir R. Thompson
accepted tiieir views on this point, and the excise staff was
strengthened in several districts.

These orders of Government were not all of them passed till
the loth March 1886, but the substitution of sadar distilleries for
outstills was carried out before this date, in 9 large towns during
1885-86^ and in 2 more from the ist April 1886.

After the conclusion of the year 1885-86 a full experimental trial.

8;28 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

of the system recommended by the Commission was conducted at
Patna. At the outset no difficulty arose on account of the restric-
tions imposed oiTthe capacity of stills and fermenting vats. In this
district, during the half-year ending the 30th September, the net
financial result of the reforms effected was a decrease in the revenue
of Rs. 10,635 as compared with the corresponding period of the
preceding year. But the local authorities were confident that this
loss would be more than made up by increased realisations in the
next half-year, the average daily receipts on account of duty and
distillery fees being in December more than double what they
were in April and May. Sir R. Thompson being of opinion that
the measure of success already attained was sufficient to justify the
extension of the system to other districts from the beginning of
1887-88, orders, were issued accordingly. These orders aimed at
the cautious development of the system recommended by the Com-
mission, and the degree of success which had been attained in Patna
was held to justify the hope that, with due care and attention on
the part of the local officers, the manufacture and sale of liquor
throughout Bengal might gradually be brought under efficient control
without any serious loss of revenue. The experiment of fixing a
minimum price of liquor was also tried in Patna, and appeared to
work well. In view, however, of the expediency of working cauti-
ously in effecting a general change of system involving large financial
results, • Sir R. Thompson thought it best to gain another year's
experience in the Patna district before laying down a rule fixing a
minimum price elsewhere. In all other districts, besides those to
which the Patna system was to be extended, it was considered suffi-
cient for the time that the recommendations of the Excise Com-
mission should be partially adopted, namely, to the extent of restricting
the capacities of outstills, so as to make them conformable to the
local demand. Moreover, in those districts in which there were
sadar distilleries, another step in advance was taken by limiting the
number and size of the fermenting vessels of the outstills bordering
on the sadar distillery area.

While Sir R. Thompson was Lieutenant-Governor, there was in

Bengal an increase in open railway mileage of 522^.
miles, or about 104 miles on the average in each ot
the «> years. The details of the increase will be found in the folloi^ng

SIR RIVERS THOMPSON.

829

table, which shows that about f ths of it occurred upon the State
lines and the remaining |ths on the assisted lines. The duty of
completing the greater portion of the extension of the State lines
was inherited from preceding administrations ; and the wisdom of
their policy was shown on the whole to have been justified by the
increase of provincial revenue which had accrued : —

Railway.

East Indian

Patna-Gaya

Tarakeswar

Eastern Bengal

Calcutta and South-Eastern

Bengal Central

Dacca

Northern Bengal

Tirhut

Bengal and North-Western

Darjeeling-Himalayan

Deoghar

Nalhati

Assam-Behar

•••

■•«•

April
1882.
Miles.

April

1887.

Miles.

Increase of

mileage.

Miles.

729

738i

...

•

• » •

202-^

28}

234

20-J

■ . •

1 25 J
85i

1042
85*

243
85

249
246

6
161

• • .

92i

92J

50J-

-ij

•••

27
38

i,447i

1, 969 J

5"i

Total

The manner in which these extensions affected the means of
communication throughout Bengal may be sketched as follows : —

A branch of the East Indian Railway was opened from Bankipore
to the Ganges at Digha ghaf. The Hooghly river was crossed at
Naihati by a bridge, the importance of which as an engineering
work was comparable with anything else of the sort previously
attempted in India. The bank of the Hooghly, upon which
Calcutta and its wharves are situated, was placed in direct
railway communication with that part of India from which
its principal export produce was derived. An enterprising Joint-
Stock Company connected Tarakeswar, an ancient place of
Hindu pilgrimage, with the railway system of India. Diamond

890 BENGAL UNDER THE LIEUTENANT-OOYERNORS.

Harbour, wlueh may be considered as the actual mouth of the

Hooghly, was connected with Calcutta by a branch of the Calcutta

and South-Eastern Railway. An entirely new line was constructed

connecting Narainganj, Dacca, and Mymensingh. A swift daily

steamer service was established between Narainganj and Goalundo

on the Eastern Bengal State Railway, the chief districts of Eastern

Bengal being thereby placed in close communication with Calcutta.

The densely-peopled districts of Central Bengal (Jessore and

Khulna, with a connected steamer service to Backergunge) were

brought into railway communication with Calcutta by another Joint*

Stock Company. The Assam coolie traffic was greatly facilitated

by the construction of the Kauniya-Dharla line, which shortened by

several days a tiresome and often deadly journey for this helpless

class of emigrants. The Tirhut system was extended in 3 directions

throughout the exceptionally populous districts of Darbhanga and

Champaran, and was immediately connected by a magnificent bridge

over the river Gandak with the metre gauge system of railways which

during the same five-year period was constructed by the Bengal and

North- Western Railway Company. The latter ran for a distance of

between 300 and 400 miles through populous and prosperous districts

in the North-Western Provinces and Oudh down to Sonpur in

Bengal, where all this newly-developed traffic was delivered on to the

East Indian Railway by a ferry over the Ganges. The Assam-Bihar

system was an extension of the Northern Bengal system of metre

gauge railways into the Purnea and Dinajpur districts, and was, when

completed, to bring Bihar and Western Bengal into direct

communication, via Sahibganj on the East Indian Railway, with

Darjeeling and Assam.

The following table exhibits the progress made during the 5
years of Sir Rivers Thompson's administration in the financial deve-
lopment of railways in Bengal : —

Head of
Acootmt.

OrosB reoolpte .
Working expenses

Not earnings . .

1881-82.

Rs.

83,70,000
10,08,000

18,67,000

1882.88.

1888-84.

Rs. Rs.

87,88,000 41,24,000
20,40,000 25,00,000

1884-85.

1885-8«.

Rs.

48,10,000
80,72,000

17,48,000 16,24,000

12,88,000

Rs.

45,08,000
80,98,000

14,05,000

18S&«7.
(estinm^).

Rs.
50,40,000
82,88,000

17,61,000

SIR RIYSRS THOMPSON. 831

From the ist April 1887 the control of the Eastern Bengal State
Railvmy and of the railways worked by it was vested in the Govern-
ment of Bengal.

Archaeology and the conservation of ancient monuments received

attention from Sir R. Thompson. A lakh and

Archeology.

a quarter was expended in the repairs of the great
temple at Bodh Gaya, about Rs. 18,000 in the conservation of Sher
Shah's tomb at Sasseram, Rs. 12,000 on the Rohtasghar, Rs. 3,000
in Pun, and about Rs. 9,000 in the exhumation of the great Adina
masjid at Hazrat Pandua and Gaur. Petty sums were also spent in
the conservation of the monument over the tomb of the first wife
and child of Warren Hastings in Murshidabad ; of the old tombs in
the cemetery at Kasimbazar ; of the monument to the vicims of
Mir Kasim at Patna ; of the monument to the British soldiers at
Chattra, and of the old Dutch tombs at Kalkapur.

The works undertaken at Bodh Gaya were completed, and com-
prised not only the conservation of the temple of Mahabodhi, but
the repair of a vast number of old votive memorial and cinerary
stupas ; of the old Buddhist railing round the Bodhi tree set up
originally by Asoka ; of the existing remnants of almost all the old
temples and sacred Buddhist objects seen and described by Hiuan
Tsiang or mentioned in Buddhist books ; of portions of the great
monaster)' built by the Ceylonese King; of the Buddha Kunda
tank with its steps and covered ghat and a portion of the cloisters
round ; and of the more deserving of the numerous sculptures and
inscriptions which were brought to light in the course of the opera-
tions. Some careful excavation by trial trenches undertaken by the
Archaeological Survey disclosed the lower portions, almost intact,
of one of the 8 great monasteries which once stood near the great
temple. This made the second of the great monasteries actually
found, the first being the great Ceylonese one already mentioned as
partially repaired ; and there were therefore 6 more yet to be looked
for. When it was remembered that here for fully 1500 years stood
the temple and tree, which during that period continued to be,
with rare interruptions, the head-quarters of the State religion, and
that for 1800 years before the Muhammadan invasion it was the
holiest spot in the world for a vast and wealthy body of believers,
it was not surprising that a lakh and a quarter of rupees should fail

832 BENGAL UNDER THE LIEUTENANT-UOVKRNOBS.

to exhaust the possibilities of further interesting research. It )^'ould
rather have been surprising if so small a sum had been found
sufficient for the thorough exploration of such a spot, and at the same
time for the renewal of a building which could not have cost less
than lo lakhs, exclusive of the accessory buildings in the surround-
ing Necropolis. Of the sculptures, those which had undoubtedly
belonged to, and k)rmed a part of, the temple or of the other con-
served monuments, were reset in their original positions, the missing
cMies being replaced by such others as best suited the vacant positions ;
but, of the surplus sculptures, although a very large number were
left at Bodh Gaya, some were placed in the Indian Museums at
Lahore, Jaipore, South Kensington, Oxford, Edinburgh, Berlin,
and Vienna.

The 1 6th of Februar}- 1887 was the day appointed by the
Viceroy for the celebration in India of the Jubilee

Celebration of the /. tt i/r ^ . -««■ • * ^ -r-.

Queen Bmpreiw's of Her Most Gracious Maiesty the Queen Empress

in commemoration of the 50th year of her reign.
An Imperial salute of loi guns was fired^ the troops were reviewed
by the Viceroy, a Thanks-giving service was held at the Cathedral,
and the Viceroy received addresses from Public Bodies for transmis-
sion to Her Majesty. On the 17th all Government buildings and
vessels in the river were illuminated, as well as private premises :
the Viceroy, Lieutenant-Governor, and others driving in procession
through the streets of Calcutta. The occasion was observed by
all — the rich and poor alike — with the greatest enthusiasm. It was
solemnized not merely by the display of fireworks, by illuminations
and other festivities, but by works of public utility, such as the con-
struction of buildings for schools, establishment of dispensaries,
excavation of tanks, sinking of wells, and the like. In the execution
of these works, several of the municipalities took an active part, and
subscribed sums out of their own funds. In Calcutta the celebration
of Her Majesty's Jubilee was observed by the Municipal Commis-
sioners, who, besides expending Rs. 43,518 on a display of fireworks
and a general illumination of the town, voted a sum of Rs. 85,000
for the- erection of a permanent public memorial consistent with the
purposes to which the Municipal funds might be legally applied.
A congratulatory address on behalf of the Corporation was presented.
A number of prisoners^ both Civil and Criminal, were released, and

SIR RIVBRS THOMPSON. 833

the sentences of others were reduced^ in all the jails throughout
British India, and at the Penal Settlement in the Andaman Islands.
The total number of those released was 23,305. Subsequently, the
2 1 St June 1 887 was appointed to be observed as a holiday by the
Armies of India, in commemoration of the Jubilee anniversary of the
accession of Her Majesty.

A number of matters of less Importance were dealt with by Sir

Rivers Thompson, and other events worthy of

MiifoollaQooufl.

mention occurred in his time ; among them were the
following : the opening of the Jubilee Bridge (designed by Sir Brad-
ford Leslie, k.c.i.e.) over the Hooghly at Naihati, by the Viceroy on
the 2 1st of February 1887 — the formation of Union Committees —
the establishment of medical scholarships for females, and of the
Maharani Svarnamayi's hostel for female medical students — the re-
clamation of the Mugheya Domes in Champaran — an inquiry into the
management of the Presidency Jail — the proposal to introduce an
Octroi into Calcutta — an inquiry into the educational endowments
founded by Muhammadans — the employment of Miihammadans in
the public service — the transfer of the "Midnapore College to the
local Municipality and of the Berhampore College to the Maharani
S\'arnamayi, c.i. — the encouragement of Sanskrit learning in Bengal —
the appointment of a Committee to consider the question of establish-
ing a Central Railway Station in Calcutta — the amalgamation of
Municipal and Cantonment police with the regular force — the pro-
posed establishment of a veterinary School in Bengal.

From the preceding pages it can be perceived how, owing to
financial difficulties, the task imposed on Sir Rivers

Conclusion.

Thompson varied from that which fell to the lot of
his predecessor; During the 5 years] 1882-87 the financial history of
Bengal was altogether different from that of 1877-82. The contract
of 1877 was succeeded by a settlement which left little scope for the
development of the provincial revenues, and which speedily neces-
sitated a serious contraction in the scale of provincial expenditure.
Trade at last succumbed to the influences which had produced uni-
versaV stagnation in the commercial world of Europe and America,
and its languishing vitality was promptly reflected in many branches
of the public exchequer. A scanty and uneven rainfall in 3 years in
succession swallowed up the 5 years of plenty, and, although actual

834 BENGAL T7NDBR THB UBITrKNAirr-GOVlRNORS.

distress was nowhere so acute as to call for the intervention of the
State except on a small and partial scale, in many districts the re-
sources of the poorer classes were wholly exhausted, and no margin
whatever left for expenditure on luxuries. It was often difficult to
provide adequately for the ordinary requirements of the public service,
and it was necessary rather to seek for opportunities of effecting
economies than of introducing administrative reforms. The chief
measures of Sir R. Thompson's Government were of the class to
which large financial resources were not indispensable. The Bengal
Tenancy Act, the prosecution of the Kidderpore Docks, the grant of
an elective constitution to Municipal Boards, the inauguration of
Local Self-Govemment, the introduction of competitive examinations
for appointments to the Subordinate Civil Service, the appointment
of the Commission for the revision of ministerial salaries, and the
re-arrangement of work and authority in the district and Divisional
offices — all these were measures whose importance was mainly eco-
nomic and political, and which left little trace on the financial history
of the time. Nevertheless funds were provided for certain reforms
and improvements which the progress of the province had rendered
more than ordinarily pressing. The establishment of an Agricul-
tural Department supplied a want to which in other provinces a much
higher degree of priority had been attached, and which the revision
of the law of landlord and tenant in Bengal forced into immediate
prominence. The survey of the district of Muzaffarpur proved a
successful experiment, and it was hoped that the survey would some
day be extended to other districts. The Excise Commission sug-
gested important reforms, and the sacrifice of revenue which their
proposals involved was cheerfully accepted by the Government as
instrumental in stamping out an insidious social evil, and as money
advantageously laid out. The increase to the salaries of the Subor-
dinate Executive and Judicial Services improved the prospects of a
deserving body of public servants. The appointment of additional
judicial officers supplied the means of a swifter, and therefore of a
better, administration of justice. The progressive additicMis to the
grant for primary education kept pace with the downward filtration
among the masses of the desire for mental improvement^ and the
encouragements offered to European and Muhammadan education
were acknowledged as equitable measures which had long been felt

8IB RIVERS THOMPSON. 835

to be of urgent necessity. The Calcutta Exhibition of 1883-84 was
instrumental in spreading a wider knowledge of the raw products
of India among the manufacturers of Europe and Australia and in
acquainting the native populations of India with the capabilities of
European machinery. In taking over and carrying on the iron-works
at Barakar, when private enterprise failed, Sir R. Thompson kept
alive an industry which could not fail to have a great future before it,
when the mineral wealth of Chota Nagpur and Central India should
have been adequately exploited. The Orissa Coast Canal was a
work of supreme importance for the development of Orissa, and
its completion was the surest safeguard against a repetition of the
calamity of 1866-67.

Sir R. Thompson himself suffered, as has been mentioned, from
indifferent or bad health during the greater part of his 5 years of
office. He never looked really well : and his Government was not

one of high pressure or great activity. In the ordinary

Observations. •

routine of administration he was easy-going, but his
was a stormy time, of a few great political controversies, especially
those of the Ilbert Bill and the Bengal Tenancy Act ; and he was guid-
ed throughout by the high principles which had distinguished his whole
career. Other high officers have exhibited the same love of justice, an
equal devotion to duty and courage : but he was singularly free from
self-seeking, and appeared to be only anxious to do what was right,
regardless of the consequences to himself. As a Member of Council
he had minuted against the withdrawal from Candahar, in opposition
to the Viceroy, and with the same fearlessness he, as Lieutenant-
Governor, asserted his own convictions, and adhered to them as he
thought right. His attitude necessarily drew upon him the animosity
of the Native Press, which took advantage of the repeal of the Ver-
nacular Press Act to write with unusual freedom and virulence. On
the other hand, he gained great popularity with the European Com-
munity, who appreciated not only the part he took in the Ilbert Bill,
but the general manliness and the moral qualities of his personal
character. On the 17th March 1887 he was entertained at a farewell
dinner by his admirers and friends to the number of about 250.
After his retirement his extremely bad health— his lungs were
affected— made it impossible for him to do any active work in
England, and his time was spent at various health-resorts. He

836 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

wintered twice at Maka, and was on his way to Algiers when he
became so ill that he had to remain at Gibraltar, and died there in a
hotel on the 27th November 1890. He was buried in the cemetery
by the sea-shore. He was married to a daughter of £. Currie, Esq.,
of the Bengal Civil Service, and had four daughters.

i he

len

SIR STEUART COLVIN BAYLEY. K.C S I. C I E

Fram a. phou>fra.ph i^ UftftftT* Bourne k Shepherd

CHAPTEB IX.

SIR STEUART COLVIN BAYLEY, k. c. s. i., c. i. k.

1887-90.

When Sir Steuart Colvin Baylev acted for Sir A. Eden as

Lieutenant-Governor in 1879, it was understood

Previotw iiroer. ^^^^ ^.^ ^ Thompson's claims to the permanent

vacancy were preserved : and they were recognised, as has been seen.
In 1887 no one stood out so prominently for the succession as Sir
S. Bayley : he was the first, the rest nowhere. Not only had he
gone through the course of appointments which had culminated in
the Lieutenant-Governorship in the cases of the first 4 holders of the
office, but throughout his career he had seemed marked out for
it. He was the youngest son of William Butterworth Bayley,
the distinguished Civil Servant of the East India Company (who
arrived in India on November 6th 1799, officiated as Governor-
General of Bengal from March 13th to 4th July 1828, left India in
December 1830, and was elected a Director of the East India
Company, July 23rd, 1833); he was educated at Eton and Hailey-
bury : arrived in India 4th March 1856, and held the following
appointments: Assistant Magistrate-Collector, 24-Par^a/iasy 1856:
at the Kalaroa and Baruipur subdivisions, 1858-9 : Junior Secretar}-
to the Government of Bengal, 1862 : confirmed, 1863 : (medical
leave from February to December 1866) : Officiating Secretary to
the Government of Bengal, October — December 1865 and March
1867 : Civil and Sessions Judge, Shahabad, May 1867 : Magistrate
and Collector, Monghyr, November 1 867 : Additional Secretary to
the Government of Bengal, January 1868 : Magistrate and Collector,
Patna,^ December 1868: Civil and Sessions Judge, Tirhut, April
1870: Commissioner of Chittagong, January 1871 I Officiating
Secretary to the Government of Bengal, April 1871 : on special
duty, November 1871 : Commissioner, Presidency Division, January
1872: Commissioner of Chittagong, February 1872: Commissioner
of the Patna Division, March 1872, confirmed September 1873 * C.S.I.,
1875: (furlough from September 1875 to October 1876); resumed

838 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

his appointment at Patna, October 1876 : Secretary to the Govern-
ment of Bengal, April 1877, confirmed, May 1877: Additional
Secretary to the Government of India, Financial Department, August
1877: Personal Assistant to the Viceroy (Lord Lytton) for famine
affairs, September 1877 : Additional Secretary, Government of India,
Public Works Department, Famine Branch, in addition to his own
duties, December 1877 : k. c. s. i. 24th May 1878 : Secretary to the
Government of India, Home Department, June 1878: Officiating
Chief Commissioner of Assam, June 1878 : Officiating Lieutenant-
Governor of Bengal, (retaining charge of the Chief Commissioner-
ship of Assam), 15th July to 1st December 1879, while Sir A.
Eden was President of the Army Commission ; confirmed as Chief
Commissioner of Assam, June 1880 : Resident at Hyderabad, March
1 88 1 : C.I.E.,May 1881 : Member of the Governor-Generars Council,
9th May 1882 : he became Lieutenant-Governor of Bengal, 2nd
April 1887. His Private Secretaries were Mr. E. G. Colvin, i. c. s. :
Mr. P. C. Lyon, i. c. s. and his son Lieutenant S. F. Bayley,
successively. In i860 he had married Anna, daughter of R. N.
Farquharson Esq., b. c. s., and had a numerous family.

The year 1887-8 was the first year of the quinquennial period
«„ 1 -* 1 for which a new contract was made wiih the Govern-

Finanoe. meut of India. In this contract no material advance

in the system of decentralization was made, but by a re-distribution
of the shares of the Provincial and Imperial Governments in the
3 principal heads. Land Revenue, Stamps and Excise, and by certain
reductions in expenditure which were considered feasible, a general
standard of normal revenue and expenditure was obtained, which
was adopted as the *' Ruling Account ** in settling the contract.
This Ruling Account showed a surplus of normal revenue over
normal expenditure of Rs. 6,90,000, and this surplus the Government
of India decided to appropriate to the Imperial Revenues through
the Land Revenue head, leaving Bengal with a revenue and expen-
diture exactly equal.

The following were the principal changes made in the Provincial
Receipts and Charges under the new scheme. The Government of
Bengal was admitted to a quarter share in the Land Revenue collec-
tions, except those from the Government estates, in the place of
32.2284 per cent on the entire collections inclusive of those from the

SIR STBUART BATLKT. 839

Government estates ; while its share under Stamps and Excise was
altered from J under the last contract to } and J respectively, in the
new contract. The cost of "Surveys and Settlements*' under Land
Revenue, which under the last contract was divided between the
Imperial and the Provincial Governments in the proportion of 677716
and 32*2284 per cent., was made entirely Provincial. Under Stamps
and Excise the Imperial Government retained only the same
percentage on charges for collection as had been retained of the
receipts under those heads. To the existing Provincial charges was
added the cost of maintenance of agricultural works and embank-
ments, which was Imperial under the la«t contract. "Refunds and
Drawbacks'* followed the new proportions assigned for the revenues.
The Patna-Gaya State Railway was made Imperial, while the Eastern
Bengal State Railway was made Provincial, with this reservation, that
any excess over 30 lakhs in the net revenue would be credited to
Imperial Revenues, and that any deficiency below 20 lakhs would be
made good by Imperial to Provincial. Hitherto no interest had been
charged on funds provided for from Provincial Revenues, or from
Famine Insurance Grant, for outlay on State Railways and Irrigation
Major works entrusted to the administration of Local Governments :
under the new contract the interest was to be calculated on the entire
capital outlay, including " loss by exchange," from the commence-
ment of operations, irrespective of the sources from which the
outlay had been met, and the head under which it had been record-
ed, i. e., Productive, Frontier, Protective, or Ordinar)'.

The month of May is often prolific in storms in the Bay of Bengal.
From the 20th of that month in 1887 ^ storm was

Cyclone of 26th

May 1887: Ion of reported by the Meteorological Department as

2iitoamerB.

forming in the Bay. On the 25 th it advanced to the
east of False Point, towards the Sandheads, and in moderate intensity
to the Southward of Saugor. The centre of a violent cyclone passed
to the westward of Saugor early on the 26th ; the sea was described
as running high beyond all experience. The storm travelled inland,
eastward of Balasore, and at Calcutta amounted to a moderate gale
only ; a storm-wave passed up the river, fortunately, on the ebb.
For several days no vessels left the river except the ship Godtva^
which left on the 25th in tow of the steam tug Retriever, and the
steamer, Sir John Lawrence^ (the Chandbally boat) with 735 passen-

840 BENGAL UNDER THE LIBUTBNANT-QOVERNORS.

gers, chiefly pilgrims, which left on the 25th afternoon. The Rttritver
and the Sir John Lawrence were both lost at sea with all hands,
except one native fireman of the tug, who was picked up : the Godiva
cast off, went ashore, and was ultimately saved. A Marine Court of
inquiry under the Chief Presidency Magistrate was held (lasting 27
days) into the circumstances attending the loss of the Sir John
Lawrence (which foundered probably between the Ridge Light and
Palmyra Point) ; the foolhardiness of the Captain in proceeding to
sea in such weather was much blamed : and, with a view to lessen
the danger of sea-going vessels under certain meteorological condi-
tions, Government adopted such measures as were possible, and
among them considered the question of improving the Code of Storm
Signals.

In 1887-88, there were 3 raids made by the tribes beyond the
frontier, 2 of which were more serious than any

Froutior tribc8

of the chittagong which had occurred since 1872. The first was an

HlUTmctn. 1 .,1 r i_ .J t

attempted attack on the village of the widow of a
chief named Vanoya, on the 27th January 1888, by a party of north-
ern Howlongs. A guard had been posted in the village at the
Rani's request, and, as the village sentries were on the alert, the
enemy retired, killing a villager whom they met on their way back.
The second raid was committed on the 3rd February 1888. The
camp of Lieutenant Stewart, who was employed on survey duty
within the Hill Tracts district, was attacked by Howsata Shindus ; he
and his 2 European soldiers and a native sepoy were killed.
The camp was taken by surprise, and the remainder of the guard
appear to have been seized with a panic, and to have fled without
attempting resistance. In the third case an attack was made on the
village of Rowajah Prenkyne, situated on the Chi ma Khal, in the
south of the Hill Tracts, on the 15th Februar> 1888, by southern
Shindus. Four men were killed and 2 wounded, one of whom
subsequently died, while 23 persons were carried off as captives.
These raids were committed on the north, centre and south of our
lines, and the Commissioner of Chittagong and the Deputy Com-
missioner of the Hill Tracts recommended that an expedition should
be sent to prevent the perpetration of the outrages which, in their
opinion, showed clearly that the memory of the punishment inflicted
in 1871-72 had faded from the minds of the tribes. Failing an

SIR STBUART BAYLEY. 841

expedition, the Commissioner recommended that the frontier guards
should be considerably strengthened, and at least 3 new posts held
in force. The Government of India decided against undertaking
the punishment of these outrages during the cold season of 1888-89,
but a force of 250 sepoys was despatched to the Hill Tracts to act
as a reserve.

But in 1889-90 it was considered necessary to undertake an ex-
Lushai pedition in the Chin-Lushai country. For the peace

Expeditiou. qI ^y^q frontier it was essential that the tribes who

had raided should be punished. Previously Government had been
content to punish and evacuate th e country attacked : this time it
was determined to punish and control. This new policy was
rendered necessary by the fact that Upper Burma had been annexed,
so that Lushai-land had become an enclave of head -hunting savages,
surrounded by settled British territory, whereas it had previously been
a buffer between India and the King of Burma. The same policy
of bringing these wild tribes under control was being simultaneously
worked in the Chin-Hills from the Burma side : the expeditions
from both sides worked in unison. The operations were brought
to a successful conclusion. A number of captives, who had been
carried off in the Chengri valley and Chima valley raids, were re-
covered, and in addition to the permanent posts at Demagri, Burkal,
and Ruma, and the newly established one at Lungleh, 3 temporary
posts at Pyramid Hill, Joormorang, and Keokradong were occupied
during the year. The frontier police force performed their very
arduous duties in connection with the expedition cheerfully and well,
and the coolie corps from the Sonthal Parganas was of great service.
Two parties of Shindus who lived to the south of Fort Lungleh,
and whose country was not affected by the expedition, entered British
territory apparently for raiding purposes, but patrol parties were
immediately despatched and prevented any mischief being done.
Trade again declined in consequence of the unsettled state of the
country.

*Between Nepal and Bhutan is situated the small State of Sikhim,

or the " New Palace,'' known to the inhabitants
Tibetan aggres- as Rong, and to Tibet as the * land of nee. There

has been no occasion to mention Sikhim affairs

* Moral and M-iterial progress of India, 1891-92, p. 23.

842 BENGAL UNDBR THK LIBUTBNANT'GOVKRNORS.

since the visits of Sir R. Temple and Sir J. Edgar to that
country and the passes into Tibet, which led up to the construction
of the trade road to the Tibetan frontier vid the Jeylap pass. But
they assumed considerable prominence in the latter half of the
decade 1880- 1890 : and a graphic account of our relations with
Sikhim, and of the Tibetan aggression into Sikhim and its repulse
by our troops, will be found in Mr. H. H. Risley's interesting Intro-
duction to the official Gazetteer of Sikhim (1894). Some extracts
from this Introduction will give a complete account of these
important events.

'' Seven years later, the question of promoting commercial inter-
course with Tibet, which had dropped out of notice during the
troubles in Afghanistan, was again pressed on the Government of
Bengal in the general interests of British trade in the East Mr.
Colman Macaulay, Financial Secretary to that Government, was
deputed to visit Sikhim and the Tibetan frontier in order to inquire
into certain rumours of the stoppage of trade through Darjeeling by
Tibetan officials ; to ascertain whether a direct road could be opened
through the Lachen valley between Darjeeling and the province of
Tsang, celebrated for the quality of its wool ; and if possible to
communicate, through the Tibetan officials at the head of the Lachen
Valley, a friendly message from the Government of India to the
minister at Tashe-lhunpo, the capital of Tsang. At Giagong in the
north of Sjkhim, Mr. Macaulay met the Jongpen or civil officer of
the Tibetan district of Kamba, and collected much interesting infor-
mation regarding the possibilities of trade between Tibet and India.
In the following year^ 1885, under instructions from the English
Foreign Office, he visited Pekin, and obtained from the Chinese
Government passports for a mixed political and scientific Mission to
proceed to Lhassa for 3 or 4 months, to confer with the Chinese
Resident and the Lhassa Government on the free admission of native
Indian traders to Tibet, and the removal of obstructions on the trade
through Sikhim and Darjeeling, it being understood that no proposal
for the general admission of Europeans would be brought forward.

''Early in 1 886 the Mission was organised, and assembled at
Darjeeling with a small escort of native troops for the protection of
the treasure and presents which it carried. While it was waiting to
start, negotiations commenced with China concerning the north-

SIR STEUART BATLKT. 843

eastern frontier of Upper Burma, then recently annexed, and in
deference to Chinese susceptibilities the Government of India con-
sented to forego their intention of despatching a Mission to Lhassa.
This forbearance, though highly appreciated by China, seems to
have been misunderstood by the monastic party in Tibet, whose
desire to promote a policy of exclusion, and to maintain their own
monopoly of trade with India, was connived at by the Chinese
Resident. Arguing in true Asiatic fashion, the monks concluded that
we broke up our Mission because we were afraid of them. They
assumed a highly aggressive attitude, and sent a small body of
Tibetan militia to occupy Lingtu, a point about 12 miles to the
Sikhim side of the frontier, on the top of a high peak crossed by
our road to the Jeylap, one of the passes of the Chola range. Here
the invaders constructed, at an elevation of 12,617 feet above the
sea, a stone fort, blocking and commanding the road ; they warned
of! one of our native engineers, • and announced their intention of
stopping all trade by that route between Tibet and India. This
open violation of territory under our protection was at first looked
upon by us as a temporary outburst of Tibetan Chauvinism, which
we could well afford to disregard. It was confidently expected that
the mob of archers, slingers, and matchlockmen collected on a barren,
windswept ridge at a height which even Tibetans find trying, would
speedily fall away under stress of cold and starvation ; and that the
Chinese Government, moved partly by our diplomatic remonstrances,
and partly by fear lest we should treat the Lingtu demonstration as
a pretext for entering Tibet in force, would compel the Lhassa
authorities to adjust their relations with Sikhim on a basis involving
the recognition of our predominance in that State.

** Our expectations were signally disappointed. Not only did the
Tibetans hold their ground at Lingtu with characteristic Mongolian
obstinacy, but their refusal to receive letters or to enter into negotia-
tions with us soon began to produce an alarming effect in Sikhim.
When called upon to visit Darjeeling in June 1887 for the purpose
of conferring with the Lieutenant-Governor concerning the affairs of
his State, (with a view to induce him to modify his relations with Tibet
and to return to his previous friendly policy torwards this Govern-
ment), the Raja of Sikhim, after exhausting the standard Oriental
excuses, replied in so many words that he and his people had in

844 BKNGAL UNDKK TtiJS LIEUTENANT-GOVERNORS.

1886 signed a treaty declaring that Sikhitn was subject only to China
and Tibet. He was therefore unable to come to Darjeeling without
the express permission of the Tibetan Government.

••■ ••• ••• ••• ••• •«»

'' From the commencement of our relations with Sikhim there
have been two parties in that State — one which may be called the
Lepcha or national party, consistently friendly to our Government,
and a foreign or Tibetan party, steadily hostile. The family of the
chiefs has generally been by way of siding with the latter, partly in
consequence of their habit of marrying Tibetan women, and partly
through their fondness for Chumbi in Tibet. Of late years a further
complication has been introduced by the settlement of colonies of
Nepalese in parts of Sikhim — a measure favoured by the Lepchas
generally. These settlers look to us for protection in case of danger,
and are naturally friendly to our Government ; but their presence is
regarded with disfavour by many influential Lamas, who allege that
they waste the forests, allow their cattle to trespass, and make them-
selves unpleasant neighbours in other ways. In truth, however, the
unwarlike Sikhimese have a wholesome dread of the fighting races
of Nepal, and fear lest the industrious Newars who have settled
along their southern border should be merely the forerunners of an
invading army of Gurkhas. So long as these 3 parties maintained
what may be called their natural relations, there was no fear of our in-
fluence declining, and the internal affairs of the country could be trusted
to adjust themselves with the minimum of interference on our part
But when we came to inquire how things actually stood, and to look
below the surface of the Lingtu demonstration, we were forced in
spite of ourselves to admit that within the last 3 or 4 years some
remarkable changes had taken place in the political situation. Tibet
had assumed an attitude of unmistakable, though probably cautious
aggression ; while the leaders of the Sikhim people, and Nepalese
settlers with influence and property in that country, had begun to
ask themselves seriously whether it might not be necessary for their
ultimate safety to cast in their lot with the Tibetan party. These
men, although as anxious as ever to keep up their former relations,
and fully as hostile to Tibetan encroachment, had begun to doubt
our desire or our ability to assist them, and openly expressed their
fear of being ** drowned " as they worded it, if they persisted in

8IR STEUAKT BATLKT. 845

trying to swim against the current now running in favour of Tibet.
The head of the Nepalese party, himself a resident of Darjeeling,
explained in the clearest language that he would do anything we told
him to do if assured of our support and ultimate protection ; but
that, failing this guarantee, he must make his peace with the Tibetan
party as the only hope of saving his property in Sikhim from con-
fiscation, and his relatives there from imprisonment or death. The
fact that this line was taken by a representative of the Nepalese
settlers in Sikhim was of itself the clearest indication of the extent
to which our influence had been undermined. Things must have
gone very far before these settlers — people almost bigoted in their
Hinduism, with just enough Mongolian blood in their veins to
make them hate the Mongols — could bring themselves to con-
template the possibility of coming to terms with their ancient enemies.
Things clearly had gone so far that, unless we bestirred our-
selves in a speedy and effective fashion, Sikhim would either
become once for all a province of Tibet, or, if we were
not prepared to acquiesce in that solution of the difficulty, would
have to be regularly conquered by us, with the people of the
country either actively hostile, or, which is perhaps worse, sulkily
and treacherously neutral. Some months before representations
had been made to China in the belief that her influence would suffice
to bring about a peaceful settlement. But it is a far cry from Pekin
to Lhassa; the wheels of State move slowly in China, and no
effective action appears to have been taken. In default, therefore,
of any means of introducing the Tibetans themselves to civilised
methods of settling international disagreements, it was decided to
send an ultimatum to the troops at Lingtu, warning them that, if
they did not abandon the post by the 14th. of March, they would be
driven out by force of arms. Meanwhile, lest it should be supposed
that even then we were not in earnest, the 32nd Pioneers, a very
fine regiment of low-caste Sikhs, were sent forward to bridge the
Rongli river, and His Excellency the Viceroy addressed a letter to
the Dalai Lama, explaining the reasons which had induced him to
take so decided a line of action.

«.• ... •••' ••• •■• •••

The peculiar position of Sikhim renders it impossible for lis
to ignore it as we ignore Bhutan, or to treat it on terms of compara-
54

846 BENGAL UNMft IfHE UBU'TliNiJJtT-GOVERNORS.

tivQ equality as we treat Nepal. Sikbim cannot stand by itself, aiK),
if we withdrew our support, it must ultimately fall either to Tibet or
to Nepal. But for our treaty obligations the latter consummation
would hardly be one to be deeply regretted, but it is difficult to see
how it could be brought about peaceably. The Tibetan party
would certainly try to hold the countr>' for themselves ; and, although
the stronger races of Nepal would probably win in the long run, the
period of transition would be one of intolerable anarchy. Once let
our hold be relaxed, and Sikhim would become the Alsatia of the
Eastern Himalayas, and such a state of things would react most
formidably on the security of life and property in the great European
settlement of Darjeeling. Every rood of land in that district that
is not expressly reserved by Government for the cultivation of
food-crops has already been taken up for tea, and a very large
capital has besn sunk in its cultivation, which gives employment
to an enormous number of natives, mostly immigrants from
Nepal. On all sides the hills are dotted with Europeans' bungalows ;
tea-gardens cover the slopes which face towards Sikhiqft ; and the
summer residence of the Head of the Bengal Government is to
all appearance within a stone's-throw of the stream which forms
the boundary of British territory. The station of Darjeeling itself
is no doubt adequately protected by the European troops stationed
at the cantonment of Jalapahar ; but a large number of outlying
tea-gardens are absolutely at the mercy of possible raiders from
Sikhim. Nor is it only the planters and their native labourers that
have to be considered. Many of our subjects, Tibetans settled in
Darjeeling, Lepchas, and Nepalese, have large transactions and
interests in Sikhim, about which disputes constantly arise. For the
last 2$ years our relations with the Sikhim Government have been so
close, and our hold over it so strong, that the Deputy^ Commissioner
of Darjeeling has, as a rule, found little difficulty in settling such
disputes when referred to him. Processes, both civil and criminal,
issued by the Darjeeling Courts, are virtually current in Sikhim,
and the Darjeeling police have free access to the country. Sikhim,
in fact, has been treated substantially as part of British India, subject-
ed for political reasons to the nominal rule of a princelet of the
Merovingian type. An instance will serve to illustrate what is meant.
In July 1888 a murderous outbreak occurred in the Darjeeling jail ;

SIR STKUAltT BAYLKT. 847

a warder was killed and 8 convicts escaped. Some fled to Nepal,
others were believed to have taken refuge in Sikhim. In the case
of Nepal no hot pursuit was possible; the frontier was close,
and we could not follow our criminals over it. The utmost that
could be done was to demand extradition through the Resident at
Katmandu, sending a formal record of the evidence against the
offenders, with proof of the nationality of each. In the case of Sikhim
no such formalities were necessary. The Deputy Commissioner
sent off a party of armed police with orders to arrest the runaways,
wherever found, and bring them back at once. Now, if Sikhim
were allowed to become a part of Tibet, cases of this kind would
give rise to inconvenient negotiations, and might even become a
cause of friction between our representative at Pekin and the Chinese
Government. It must further be remembered that a Tibetan Sikhim
would lack the stability, the common sense, and the capacity for
gradual advance towards civilisation, which characterise the Nepal
Government. An extradition treaty would hardly be workable,* and
every absconding criminal would become the subject of an irritating
diplomatic wrangle.

" Enough has perhaps been said to show that the obligation of
driving the Tibetans out of Sikhim was imposed on us by the essen-
tial conditions of our policy towards the east Himalayan States ;
that this policy is a just and reasonable one ; and that it involves the
assumption on our part of no more authority than is necessary if we
are to keep the peace in this particular corner of the Indian Empire.
To maintain this policy by the cheapest and most effective means
was the sole object of the military operations commenced in March
1888, and terminated by the engagement of the 24th September of
that year. For the better understanding of the principles on which
this little war was conducted, a further glance at the conformation of
the country will be needed. Lingtu is a peak about 12 miles to the
Sikhim side of the frontier, over the top of which our road runs to
the Jeylap pass. The sides of this peak are very precipitous, and the
road could not have been taken along them except at great expense.
A force holding Lingtu can therefore block the road, and can also
command the steep downs below the Jeylap, where Tibetan herdsmen
pasture their sheep and cattle during the summer months. Both
points probably counted for something with the Tibetans, who have

848 BENGAL fJNDBR THB LIBUTENAMT-QOVBRNORS.

a considerable, if not an excessive, sense of the value of position in
warfare, and who seem also not to have overlooked the possible
support which the habits of the herdsmen might give to the theory of
a pastoral frontier extending to the Gamei. As a matter of fact,
no such theory is at all tenable. The practice arises partly out
of the necessities of the case — the pastures lie on both sides of the
frontier, and cattle are bound to stray — and partly from the accident
that a large part of the property owned in Tibet by the Rajas of
Sikhim and their wives has consisted of cattle tended by Tibetan
herdsmen, their servants. On the Singilela range, where it forms
the border between Darjeeling and Nepal, Nepalese shepherds
feed their flocks on either side of the frontier, paying grazing fees
to our Forest officers — ^just as the Tibetans pay rent to the Raja of
Sikhim for the period spent by them on the Sikhim side. But no
Nepalese ofUcial would be so inconsequent as to make this a reason
for asserting that the whole of the grazing tract belonged to Nepal.

''At the beginning of hostilities, while our troops were being
moved up from the plains, public opinion in India had hardly made
up its mind to take the Lingtu garrison seriously. A turn for cheap
swagger is a prominent trait in the Tibetan character, and it seemed
not impossible that, in invading Sikhim, the Lamas were merely
'Strying it on", and would withdraw their rabble directly the advance
of our troops showed that we were in earnest. In order to leave open
the door to an early reconciliation, and to make it cles^r that our only
object was to restore the stains quo in Sikhim, and to secure that
country and Bhutan from future aggressive interference on the part
of Tibet, General Graham was directed not to pursue the enemy
across the frontier, unless it was absolutely necessary to do so for
military reasons. These instructions were carefully observed. In
the storming of the stockade* at Jeyluk, a short distance below Lingtu,
only 32 Tibetans were killed; and no attempt was made to pursue
the Lingtu garrison, who fled from their fort when Sir Benjamin
Bromhead and some men of the Pioneers (and the Derbyshires)
reached the gate. The methods of defence adopted at Jeyluk recall
some of the incidents of mediaeval warfare. Walls and stockades
had been built across the most precipitous part of the road ; the

*The stockade at Jeyluk was carried on the 20th March and Lingtu taken on
the 2l8t idem.

SIR STKUART BJITLIT. 849

road itself was cut away so as to leave an impassable chasm ; rocks
aiid tree-trunks were piled at favourable points, with levers to hurl
them down on an ascending enemy ; and slings and arrows were
freely, but vainly, used as our men advanced. The issue, one would
think, might have shown that the weapons of Morgarten avail little
against modem infantry. But the lesson was lost on the fanatical
monks of the great monasteries around Lhassa. Their only answer
to our pacific messages was to hasten up to the frontier all the troops
they could collect, and to occupy the Jeylap and Pembiringo passes
with a continually increasing force. Meanwhile we had fortified the
more sheltered and defensible position of Gnatong, about 8 nriles
to the south of the Jeylap, and lay waiting there for events to develop
themselves. The whole of April and the early part of May were
spent by the Tibetans in massing their troops on their own side of
the passes. On the 21st May Sir Steuart Bayley arrived at the
Gnatong camp on a visit, of which the enemy made an occasion for
an attack, with a view possibly to his capture. On the 22nd. May,
encouraged by a promise of victory from the ** shaking oracle " at
Naichang, the Tibetans attacked Gnatong in force, were repulsed with
heavy loss, and retired over the Jeylap. In order to avoid needless
slaughter, our men were not encouraged to follow the flying enemy
farther than was necessary to completely break up the attack and
convince the Tibetans that they had been really defeated. This con-
viction, however, came slowly to those who had taken no part in the
fight. Strange rumours of the prowess of " the Lama army " that
was gathering at Lhassa found their way across the frontier ; fresh
troops were beaten up in all directions ; terrible threats were con-
veyed to the leaders of the force on the frontier ; and every thing
went to show that the counsels of the monastic party were still for
open war. It is hardly surprising that this should have been so. The
new Ampa, despatched by China with instructions to bring about a
peaceful settlement, had not yet arrived, and the Lamas lacked the
sagacity to perceive that we were only holding back in order to give
him time to make his influence felt. To their eyes we appeared to
forego without purpose our own advantage, and they drew from this
the conclusions which most Asiatics would draw under similar cir-
cumstances.

" Nevertheless, though the Lamas knew it not, their obstinacy,

850 BENGAL UNDER THE LIBUTEM ANT-GOVERNORS.

wasting itself on our defensive tactics, was daily bringing us
nearer to the real object of the campaign. At relatively small
cost to ourselves, we were wearing out the resources of Tibet,
and leading her on to strike the blow which should be our oppor-
tunity. The prisoners taken at Gnatong confirmed the reports
received from our officers in Almora and Ladakh, that forced levies
had been beaten up from the most distant provinces, and were fed
and kept together with the utmost difficulty. The Tibetan commis-
sariat is indeed somewhat less elaborate than our own. Forty
pounds of barley flour, half a brick of tea, half a pound of salt, half
a small sheep's bladder of butter, and 3 id. to buy meat, are said to
represent a month's rations for a fighting man ; and it may be
surmised that he gets little or no pay beyond this. But the simplest
supplies are hard to obtain in a barren region intersected by
mountain-ranges, and wanting in all effective means of carriage ;
while a militia snatched on the spur of the moment from pastoral
and agricultural pursuits is proverbially unsuited for prolonged
hostilities.

*' As soon, then, as it was clear that Tibetan patience was coming
to an end, and that our forbearance was still mistaken for timidity,
fresh troops were ordered up and preparations made for bringing
ihe campaign to a close directly the rains were over. By the middle
of August, General Graham had under his command at Gnatong
a wing of the Derbyshires, the 32nd Pioneers (Sikhs), one of the
newly raised Gurkha regiments, and 6 mountain guns — in all, nearly
2,000 men. After a month of waiting for fine weather, the conclusive
engagement was brought on by the action of the Tibetans them-
selves. Two ridges, the Tukola and the Nimla, intervene between
our position at Gnatong and the Kaphu valley, into which the Jeylap
and Pembiringo passes open. On the night of the 23rd September
1888, our advanced pickets came in as usual, and reported no
unusual activity on the part of the Tibetans. At daylight on the
morning of the 24th the Gnatong garrison became aware that the
enemy had advanced during the night 4 miles from their camp ; had
occupied the Tukola ridge, 13,550 feet above the sea, and 1,500 feet
higher than Gnatong ; and had built a stone wall 2 miles in length
all along the crest of the ridge. Notwithstanding this marvellous
piece of impromptu engineering, the weakness of their new position

BIR STKUAKT BATLBT. 851

was apparent at a glance. The whole of their large force, numbering
more than 11,000 men, was distributed in line along the wall; no
attempt had been made to take advantage of the ground or to con*-
centrate troops at points of importance ; while the entire position
was enfiladed by the Tukola peak, on which their right flank rested.
Once in possession of this peak, less thsn a mile and-a-half from
Gnatong, we could roll up the enemy's line at leisure, and the con-
formation of the ground was such that a force retiring towards the
Jeylap musft need suffer terribly during its retreat. This fact deter*
mined the scheme of our attack. Approaching the Tukola peak by
a route which covered them from the fire of its defenders, the
Gurkhas carried the position by a rush, and their attack^ combined
with the paralell advance of the Pioneers, swept the Tibetans from
the ridge. In their flight down that fatal hill, and the ascent
of the Nimla ridge, which lay between them and the Jeylap, the
ill-armed, undrilled militia whom the monks had sent forth as the
army of Tibet lost nearly a tenth of their number in killed and
wounded. On our side. Colonel Sir Benjamin Bromhead, command-
ing the 3 and Pioneers, was severely wounded in the attempt to take
prisoners 3 Tibetans, whom he believed to have surrendered ; one
of the Gurkhas was severely, and .2 Pioneers were slightly, wounded.
No effort was made by the Tibetans to rally their broken troops or to
keep up a running fight ; the rout was complete. We bivouacked
that night in the enemy's camp on the Jeylap, and no resistance was
offered to our advance upon Rinchagong next day. Straggling
parties of the enemy were seen emerging from the Tibetan side of
the Pembiringo pass, but they broke off into Bhutan as soon as they
realised that we were about to enter Rinchagong, and the village
was empty when our toops reached it. The march to Chumbi
through the beautiful valley of the Mochu was a mere promenade,
and our troops returned to Gnatong without seeing any more of the
enemy.

" There seems to be reason to believe that this unavoidably
severe lesson has been taken to heart by the Tibetans. The force
which was dispersed at Gnatong had been drawn from all parts
of the country, and the knowledge of out overwhelming military
superiority must by this time be so widely diffused that even the
arrogJtnce of the Lamas can no longer affect to ignore it. Indica-

852 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

tions, indeed, are not wanting that the Tibetan claim to suzerainty
over Sikhim had already been practically abandoned, though the
Tibetans tried hard to retrieve their defeat in the field by a diplomatic
triumph of the Fabian type, and seem for a time to have had the
support of China in their ingenio.us efforts to tire out our representa-
tives.

"The Anglo-Chinese Convention of 1890 secures the formal
acknowledgment of our rights which the Gnatong victory entitles us
to demand. At the close of a costly and vexatious campaign, carried
on at an elevation never before reached by regular troops, and
involving transport difficulties of the most serious kind, it was clearly
essential to have something in the nature of a final settlement to show
for our trouble.

'' But we can afford to be content with a distinct surrender of the
indefinite claim to control the course of events in Sikhim which
for the last 3 years has troubled the peace of our frontier and
stopped all trade between Darjeeling and Tibet. Above all things,
we have no call to irritate the Tibetans and possibly excite the
jealous territorial susceptibilities of China by introducing stipulations
granting to European traders or travellers the coveted right of
exploiting the commercial and scientific treasures of the interior of
Tibet. Traders would assuredly fall foul of the monopolies reserved
to the monks of the great monasteries ; while scientific research,
however modest in its aims, could scarcely fail to come into collision
with some form of religious or social prejudice. Here surely is one
of the cases where " the half is more than the whole." Be the treaty
never so meagre, we anyhow remain in possession of the disputed
tract, while the roads and bridges made during the campaign ensure
us the command of the passes against Tibetan inroads. Our
influence is predominant in Sikhim ; it has been vigorously asserted
by the introduction of essential reforms in the government of the
State, and we need not fear that it will hereafter be permitted to
decline."

In* short, the Anglo-Chinese agreement of 1890 provided for
the boundary between Tibet and Sikhim being settled in accordance
with our contentions ; for the recognition of the British Protectorate

* Sir 8. Bayley*8 Introduction to " The 2nd BaUalion DerbyMrt Regimad
in iU Sikhim expedition of 1888,'' 6y GapUin IggiUden.

SIR STKUART BATL1!T. 853

over Sikhim, with exclusive control over its internal administration
and its foreign relations ; and in the future, for trade facilities, which
have been systematically evaded. So far as Sikhim is concerned,
tiie effect has been admirable ; the country is progressing peaceably
and rapidly, untroubled by Tibetan aggressiveness.

The reforms above mentioned were — the appointment of a Politi-
cal Agent (Mr. J. C. White, of the Public Works Department) at
Guntok to assist the Maharaja in Council with his advice in the
administration of affairs, the establishment of a Council for the
conduct of ordinary, civil, criminal and revenue work, the settlement
of unoccupied waste land and land occupied by monasteries, and the
preservation of sal forests by bringing them under the direct control
of the darbar.

In January 1888 the Indian Public Service Commission presented
its report to the Government of India. It had been

The Indian

PabUe serrice appointed in October 1886 (consisting of 14 members

Commiasion.

with Sir Charles Aitchison, k. c. s. i. Lieutenant-
Governor of the Panjab as President) to consider the question of the
admission of natives to higher and more extensive employment in the
civil administration in India, a question which affected Bengal as
much as any other Province in India. The circumstances which gave
rise to the necessity for this Commission have been summarized as
♦follows : —

*^ As regards the admission of natives of India to the administra-
tion, it was enacted in 1833 under 3*4 Will. IV., c. 85, s. 87,
that " no native of the said territories (India), nor any natural bom
subject of His Majesty resident therein, shall by reason only of his
religion, place of birth, descent, colour, or any of them, be disabled
from holding any place, office, or employment, under the said (East
India) Company." The great extension of the system of State
instruction that has since taken place, together with the establishment
of Universities in the 5 principal towns of India, soon supplied the
Governments with a wide and amply-stocked field of selection for
most of the offices other than those usually held by members of the
Covenanted Service. For this last, however, in spite of the removal
of disabilities of race or creed, up to 1870, only one native of the
country had successfully competed. In that year, therefore, an Act

* Moral and Material Progresa of India Report, 1891-92 p. 74.

854 BENGAL UNDER TKS LIIUTBNANT-OOVERNORS.

was passed (33 Vic. c. 3), under which natives of India of proved
merit and abih'ty could be employed in the Civil Service of Her
Majesty in India without entering that service in the manner provided
in the Act for the Government of India, 1858. The rules under this
Act, which had to be sanctioned by the Secretary of State, were at first
drawn up so as to confifte the field of choice to those who had proved
their merit and ability by their previous service in the subordinate
ranks of the service of the Crown, but a revised code was afterwards
sanctioned, in which this restriction was removed. One or two
appointments only, and those to the judicial branch of the service,
were made under it. The subject was reconsidered in 1879, ^^^
fresh provision made, under which the recruitment by this means
could extend up to ^ of the total number of Civilians appointed in
the year, and the nominee should be on probation for 2 years after
his selection. A most important point was prominently brought by
the Government of India in promulgating these rules to the notice
of the local authorities who had the duty of selecting the nominees ;
namely, that in their opinion, the appointments should, generally
speaking, be confined to young men of good family and social
position, possessed of fair abilities and education, to whom the offices
open to them in the inferior ranks, or uncovenanted service, had not
proved a sufficient inducement to come fonvard for employment,
whilst the appointment of men already in the ser\ace of Government,
or in the practice of a profession, should be quite exceptional and
confined to persons who had obtained great distinction in their former
career. This recommendation was based on the experience of the
results of the extension of Public Instruction, as above mentioned.
Advantage of the new system had been taken to the full by the
sedentary or literate classes, who, except under the Brahman Peshwas,
and as financiers and accountants under the Muhammadan rule, had
been debarred from reaping the whole benefit of their intellectual
superiority. But the ruling classes of the Hindus, and, still more
markedly, the upper grades of the foreign community that was in
power immediately before the introduction of the British regime,
kept studiously aloof from institutions that would bring them into
rivalry) and probably an unsuccessful one, with the classes whom they
had so long regarded as their inferiors in position and capacity. In
a very few years, however, it was found that the attempt to introduce

SIR 3TBUART BATLBT. 855^

the latter element into the administration by the above means was a
failure, as men could not be got who combined high social position
with the requisite intellectual and educational qualifications, and the
men who were appointed were in many cases of a class that would
have been content to have been provided for in the lower grades of the
public service, above which their qualifications in either sense, social or
intellectual, did not rise. In consideration of the fact, therefore,
that, through the scheme inaugurated under the Statute of 1870, the
end which it had been the wish of the Government to attain, whether
on the ground of political expediency or of administrative advantage,
had been in no way furthered, it was determined to institute an inquiry
by means of a Commission on which the natives of India should be
as adequately as possible represented, mth the object of devising a
scheme which might reasonably be hoped to possess the necessary
elements of finality, and to do full justice to the claims of natives of
India to higher employment in the public service.'*

The Government of India expressed their views on the Report of

the Indian Public Service Commission in a despatch of the 9th
October 1888, which the Secretary of State answered on the 12th
September 1889. Lord Cross wrote : —

*• The scheme framed by the Commission does not suggest any very
serious change in the main features of the existing system of administra-
tion. It proposes that, for the conduct of the higher branches of the
Executive and Judicial work throughout India, there should continue to
be, as at present, 2 distinct Services. The first of these would be the
existing Covenanted Civil Service, which the Commission has proposed
to call the Imperial Service, recruited by competition in England, and open
without d istinction of race to all natural-born subjects of Her Majesty.
Its numbers would continue to be regulated on a scale which would enable
it to fill the majority of the highest civil offices, with such a number of
smaller offices as will provide a course of training for the younger men.
The second of the 2 Services would be called the Provincial Service, and
it is to the constitution of this Service that the principal recommendations
of the Commission refer. It would be recruited in each Province of India
separately, and would hold the higher appointments of the existing
Uncovenanted Service, together with a certain number of the appoint-
ments now ordinarily reserved by law or practice to the Covenanted Civil
Service, which would be transferred to the Provincial Service. It is
proposed that the 2 classes of appointments should be gradually amal-

856 BENGAL UNDSR THK LIE tTTIN ANT- GOVERNORS.

gamated, and that recruitment should be effected provincially under
various methods adapted to local circumstances. Among the appoint-
ments to be transferred to the Provincial Service are yi of the offices of
District or Civil and Sessions Judge, and j4 of the offices of Magistrate
and Collector of a district, as well as others of both higher and lower
rank. To facilitate this measure it is proposed that the transferred
appointments in the Regulation Provinces should be excluded from the
schedule of the Statute 24 & 25 Vict., c. 54, and that the strength of the
Covenanted Civil Service should be proportionately reduced. The Pro-
vincial Service would be open to all natural-bom subjects of Her
Majesty, but recent residence of at least 3 years in a province and
thorough knowledge of its language are recommended as among the
essential conditions of admission to its Provincial Service. The Com-,
mission further proposes that the grades of pay in the Provincial Service,
and the pay of appointments to be held by its members, together with
the general conditions of that Service as to leave and retiring annuity,
should be fixed on independent grounds. The terms offered to the
Provincial Service in these respects would be those which are necessary
to secure locally in India the desired qualifications."

These proposals were generally accepted, so that this was in
brief the general result of the Commission. The Civil Service
throughout India was to be divided into 2 sections, (i) the Civil
Service of India^ and (2) the Provincial Service of each Province.
The first it was decided to recruit as before by open competition in
England '' keeping it as a corps d'^liie and its numbers limited to
what is necessary to fill the chief administrative appointments of the
Government, and such a number of the smaller appointments as
will ensure a complete course of training for junior civilians." As
regards the *' Statutory Civilians,'' i. e., the appointments made under
the Statute of 1870, the alternative was offered to the incumbents of
either entering the Provincial Service with a preferential claim, other
qualifications being duly considered, to the higher appointments to
be made available for that Service or else of remaining in their
posts, outside any organised service, and dierefore without any claim
to promotion on the ground of seniority but only on that of special
merit and ability. Members of the Provincial Service were admitted
in 1892-93 under the new scheme to certain judicial and executive
appointments otherwise reserved to the Indian Civil Service, in
accordance with rules made under the Act of 1870, in supersession
of those of 1879, above quoted. The appointments thrown open

81R STKUART BATLKT. 857

were 6 posts of District and Sessions Judge, 4 posts of District
Magistrate-Collector, one post of Jui.ior Secretary to the Board of
Revenue, one post of Under-Secretary to Government, and some other
subordinate appointments. But the posts referred to were not to be
thrown into the general ccutre of the Provincial Service, until all the ex-
isting Statutory Civil Servants were provided for either by promotion
or by amalgamation with the new Provincial Service^ and until the prior
claim of officers of the Civil Service of India and Commissions had
been satisfied. The lower grades of the existing Uncovenanted Service
were constituted a Subordinate Civil Service with the privilege of
promotion to the Provincial Service in case of conspicuous merit.
A severe tornado visited the town of Dacca on the evening of the

7th April 1888, causing considerable loss to life and

The Dacca '^ . 1 , , ^

Tornado of 7th property. It lasted only a few minutes, and extend-

April 1888.

ed over an area of 3^ miles in length and about
200 paces in breadth. About 130 people lost their lives and more
than 1,200 were seriously woimded, while the value of the property
damaged was said to have been about 7 lakhs of rupees. It caused
much damage to the police barracks at Lalbagh and to many public
and private buildings.

At about 8 o'clock p. m., of the 23rd of April, another tornado
passed over the town of Bhadreswar near Serampore in the Hooghly
district, lasting from 5 to 7 minutes and destroying houses and
property to the value of Rs. 25,000. Twelve people and 400 cattle
were killed.

It was Sir S. Bayle/s object to give effect, as far as
possible, to the recommendations of the Excise

KxcIm.

Commission of 1883-4 in regard to the out-
still system, and every effort was made in Bengal to render the
description of that system given in the Government of India's
despatch, of the 25th. June 1887 to the Secretary of State, strictly
correct. That description ran thus : — "The outstill system, as
understood in India, is not a system by which, on payment of a
lump sum the distiller is free to brew as much spirit as he likes
and sell it whenever he likes. The duty is levied upon a strict
calculation of the number of gallons which the still can produce,
and the conditions, both of distillation and sale, are carefully re-
gulated with reference to the existing local demand."

858 BENGAL UNDER THB LIRUTBNANT-G0VBRN0R6.

The system was still on its trial, and, in the face of all the
difficulties which had accompanied its introduction, it could not be
alleged that it had everywhere been successfully enforced. Inquiry
had indeed shown that it had lamentably failed in the metropolitan
districts of Hooghly and Howrah, in which, as was seen by the light
of experience it would probably have been better if it had never
been tried. In such a tract the central distillery system was probably
preferable to the outstill or contract system, and the question whether
it would not be better to restore the sadar distilleries in this
locality had to be considered. But as a general rule the system
was understood to have met with a fair measure of success. The
operations at the outstills, though liable to inspection, testing, and
correction at the hands of Government officers were not brought at
once absolutely imder control, and the transition from a system of
unrestricted outstills to one of rigid regulation admitted only of
gradual accomplishment. It was manifest that the success of the
system depended a great deal on the tact and intelligence displayed
by the officers engaged in the administration of excise, and that,
without very close supervision and personal attention to details,
there was every risk of the revenue being sacrificed without in any
way checking drunkenness. The policy pursued N\'as the steady
reduction in the liquid capacity of outstills in accordance with the
local demand in each district, the prevention of the undue cheapen-
ing of liquor by obtaining the highest possible fees from shops,
by fixing the upset prices with reference to the quantity of liquor
produced and the profits derived therefrom, and the maintenance,
as far as possible, of a minimum price for the cheapest kind of
liquor made in each district. Thus the liquid capacity of the stills
in all districts for 1888-89 was calculated to be 62,363 gallons, as
against 111,538 gallons in 1886-87, and the average amount of
monthly license fee rose within the same period from Rs. 820 to
Rs. 1,011. The number of shops under the j<i</ar distillery system
fell from 655 in 1886-87 to 570 in 1887-88, and that of outstills
fell from 3,608 to 3,535.

The desirability of appointing an Excise Commissioner for
Bengal came under discussion in 1888-9 ^^^^ ^^ ^'^^ decided to
appoint one tentatively. This experiment took effect from the
4th April 1889, and the appointment was afterwards made permanent.

SIR STEUABT BAYLST. 859

The Government of Bengal continued to direct its efforts towards
carrying Into effect the recommendations of the Excise Commission
bj the abolition of outstills and the substitution of the sadar distillery
system in the 2^'Parganas and Howrah, and in the Serampore
subdivision of Hooghly. The principle definitely established was that
outstills should be gradually abolished in one populous district
after another, until central distilleries were established in all localities
suitable for their introduction. It was known that the immediate
result of such reforms must be an appreciable loss to the Excise
revenue, but ihey were nevertheless to be persisted in, and further
action in the same direction was sanctioned. At the same time,
where the system of outstills still obtained, no efforts were spared
for its improvement ; and with this object their number and capacity
were reduced, and the Excise Commissioner was to endeavour to
raise the duty paid on outstill liquor in the form of license fees to the
rate per gallon, London-proof, charged on distillery liquor in each
district. Licensing officers were instructed to ascertain and consider
local opinion regarding the location of shops, and the rule was laid
down that on no account should sites be selected near markets,
schools, factories, or other public places. The appointment of a
better class of officers to the immediate charge of distilleries and
the extension of the system of fixing minimum prices for the sale
of country liquor to all districts with the excepdon of those of the
Chittagong Division, which were excluded on account of local
peculiarities, were the most important of the minor improvements
carried out in the course of the year. The Patna system— %o called
because it was first introduced in that Division — was in force in
i8 districts. Under it the size and capacity of each still, and the
number and capacity of the vats in which the yeast was prepared,
were regulated by the local demand, upon which also the upset fee
was calculated. Its success was so far testified to by the fact that
where it was in force the total consumption of country spirits fell
hy 238,492 gallons, the revenue increasing simultaneously by
Rs. 1,09,772.

The Excise policy of the Government of Bengal was based upon
tiie following principles : that any extension of the habit of drinking
was to be discouraged ; that the tax on spirits should be as high as
possible without giving rise to illicit methods of making and

860 BENGAL UNDER THE LIBUTBNANT-GOVBHNORS.

selling liquor ; and that subject to these considerations, a maxi-
mum revenue should be raised from a minimum consumption
of intoxicants. Most important action was taken in this direc-
tion under Sir S. Bayley's administration, and especially during
1889-90. No pains were spared to improve the outstill system
where outstills were retained. In the face of all the difficulUes which
must ever accompany the introduction of radical changes, it could
not be said that all the restrictions recommended by the Excise
Commission had been successfully imposed ; but it was undoubted
that great improvements had been effected ; that the distiller was not
free to brew as much spirit as he liked and sell it whenever he liked ;
and that the levy of duty as well as the conditions both of distillation
and sale were carefully regulated with reference to the existing local
demand. A system of regulated outstills had been organised, and,
as the Excise Commission were careful to explain, if the producing
capacity of outstills was limited and the revenue paid on each outstill
was calculated in proportion to its capacity, there was little real
difference in principle between such a system and the system of
central distilleries.

The total revenue derived from outstill license fees decreased in a
year from Rs. 31,34.561 to Rs. 27,74,925. As the' fees were being
gradually raised so as to force the retail price of liquor up to the
price fixed by the distillery rate of duty for each dis^ict, the distillers
in many cases refused to accept settlement. It was, however, always
anticipated that the policy adopted would entail an immediate loss of
revenue, and the deliberate intention throughout had been to force
the abkars to increase their retail prices and so reduce consumption.
If this result was attained, a temporary loss of revenue was regarded
as comparatively a small matter ; and unless the demand for liquor
had been artificially stimulated by an undue cheapening of outstill
liquor, as compared with the price maintained by distillery spirit, it
was certain that the normal demand would re-assert itself and the
revenues recover. Unfortunately the effect of bad seasons rendered
the influence of these changes on the revenue more conspicuous
than they would otherwise have been.

In regard to the extension of the central disdllery system,
Sir S. Bayley declared on more than one occasion that it must
be distinctly understood by the Excise Commissioner and by all

SIR STBUART BATLBY. 861

officers concerned with the administration of excise in Bengal that
the policy which had received the approval of the Secretary of State
and of Government was that the outstiil system should be replaced
by a central distillery system whenever circumstances rendered it
expedient ; and, speaking generally, the only circumstances which
rendered the change inexpedient were sparse population, difficulties
of supervision, proximity to alten territory, and a liquor which would
bear neither transportation nor keeping. It was not intended that
outstills should be suppressed in localities where experience showed
that no other system could be advantageously introduced, and it was
not thought possible to work up the central distillery system in Bengal
to the extent attained in some other provinces. One-half of the
Bengal revenue from country spirits, and outside Calcutta much the
greater part, was derived from a tract of country where the principal
material used for the manufacture was the flower of the mohwa tree,
and the spirit so made would not bear transport, and rapidly deterior-
ated when kept. It was of the weakest possible description, being
80 or 90 per cent, below London-proof. Such spirit had to be
manufactured near the place where it was consumed ; and this, if
there were no other objection, was a conclusive reason why a central
distillery system could not be successfully introduced into the rural
parts of Bihar and Chota Nagpur. The people were accustomed to
this weak liquor, and would only drink it when fresh. It would no
doubt have been possible, as was done in Bombay, to manufacture a
pure and strong spirit from the mohwa flower ; but this would not have
been the liquor previously consumed, and any scheme to replace a
weak liquor by a strong one would have been opposed to the first prin-
ciples of excise administration. In Bengal the number of central dis-
tilleries must always be limited. The failure of the old system of dis-
tilleries was largely due to their excessive number — which at one time
was 220— and to the consequent impossibility of exercising proper
supervision over them. It was accordingly deemed advisable to have
central distilleries only at the head-quarters of districts where they
could be thoroughly watched by responsible officers, and in some
cases arrangements were made for the establishment of depots or
warehouses at subdivisional head-quarters from which shops remote
from the distilleries could be supplied with liquor.

From the ist April 1889, outstilln were abolished throughout the
55

862 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

whole of the 2^-ParganaSy Howrah and the Serampore subdivision of
Hooghly. From the ist April 1890 they were abolished throughout
the whole of the Burdwan, Presidency, Dacca, and Orissa Divisions.
The total revenue realised under the central distillery system during
1 889-90, notwithstanding the extension of the distillery area, was only
Rs. 19,32,207, against Rs. 19,55,754 in the previous year, while the
statistics of consumption showed a lafge decline from 1,057,119 to
853,259 gallons. The explanation of this decrease was that the year
was one of general depression and bad trade.

Special rules were issued for general guidance on the subject of
the selection of sites for excise shops : distinct instructions were
given to ascertain and consider local opinion, and it was ordered that
where municipalities existed the Municipal Commissioners should be
ronsulted in determining the location of shops.

In 1889-90 complaints were made, which reached the Secretary'
of State, by tea-planters and the Agents for tea

The Excise

aystom and toa gardens, that outstills and liquor-shops had been

gardens.

opened, sometimes in spite of the planters protests,
close to or upon tea gardens, and that the facilities for drinking, the
evil of drunkenness among tea garden labourers, and the drink
revenue had all greatly increased during the last few years. A
thorough and exhaustive inquiry was made into the complaints both
in Bengal and Assam. With the latter I am not concerned here.
The only districts in which tea is grown extensively in Bengal are
Darjeeling and Jalpaiguri. The results of the inquiry were duly
communicated to the Government of India and to the Secretary of
State. The evidence collected by the Deputy Commissioners of
Darjeeling and Jalpaiguri did not support the conclusion that there
had been any increase of drinking or of drunkenness among the
garden coolies in recent years. The opinion held by some observers
that drinking and drunkenness had increased was accounted for
mainly by the fact that the number of the coolies of the drinking
classes had increased very largely, and partly by the fact that,
when drinking was only possible by obtaining illicit liquor, both
the drinking of such untaxed liquor and any consequent drunkenness
were carefully concealed as far as possible ; while, when the demand
for drink was met by the supply of taxed liquor, there was no such
powerful motive for concealment. The facilities for obtaining dnnk

SIR STKITART BATLBT. 863

had not been increased. In Darjeeling the number of shops had
actually been diminished, while in Jalpaiguri the increase in the
number of shop« had been in a very much smaller ratio than the
increase in the acreage under tea cultivation and in the numbers of
the coolies of the drinking classes. The price of the liquor sold
from the outstill shops had not been lowered, and had become as
high as for the time it was possible to raise it in view of the
facilities for illicit distillation and smuggling. The taxation was
also as high as it could reasonably be made, and much higher
than formerly.

The selection of sites for shops had always received careful con-
sideration, and the wishes of the planters in this matter had not
been disregarded, but had been allowed weight in all cases in which
they were obtainable. Objections made by planters had not always
been allowed, but their objections had not been put aside without
reason. An example was quoted of a case in which it would have
been inexpedient to close a shop in deference to the objections of
planters. Two tea planters objected to the location of a shop on or
near one of the gardens. But at the same time they had still
stronger objections to 2 shops in Sikhim just over the border, at
which liquor was sold at lower prices than at the licensed shop. If
the licensed shop had been closed, the result would have been
not to diminish drinking, but to compel the coolies to buy all
their liquor from the foreign shops over the Sikhim frontier, where
they could obtain it untaxed and cheap.

As an illustration of the evil effects of the outstills, some of the
planters stated that the attendance of their coolies on the days follow-
ing market days was seriously diminished in consequence of the
drinking and drunkenness induced by the facilities for drinking
afforded at the markets. As to this the evidence did not show
satisfactorily that the attendance was seriously or steadily less on the
days after market days than on other days ; while there were causes,
other than drunkenness at the market, which would fully account for
any falling'off that might have occurred. The charge that the
outstill liquor was subjected to injurious adulteration was clearly
shown by the evidence to be unfounded.

During the inquiries made, the question whether it was desirable
to make any radical change in the system of excise in the tea

864 BKNGAL UNDi&R THE LI EUTEN ANT-GO VERNOKS.

districts was very carefully considered. Government had no hesita-
tion in stating, that the existing outstill system was that which was
best^ suited to the tea tracts in both Darjeeling and Jalpaiguri, alike
in the interests of the Government, the labouring population, and
temperance. The justice of the conclusion was very strikingly con-
firmed by the fact that the great majority of the planters of both
Darjeeling and Jalpaiguri were in favour of the maintenance of the
outstill system in preference to any other.

Government were fully alive to the objecttrms which were
generally urged against the outstill system. But in many places it
was the system which was least open to objection — and indeed the
only possible system if any sort of control were to be attempted.
In such places all that could be done was to improve the adminis-
tration to the fullest possible extent and to this the Government of
Bengal were devoting great attention.

The consideration of the Reports from Bengal and Assam in this
matter led irresistibly to the conclusion that the accusations made
against the excise administration in the tea districts were for the most
part unfounded and in all cases exaggerated. Nevertheless, it was
not regretted, that these complaints had been made, because the
inquiries that ensued had brought the planters into closer communi-
cation with the district authorities on the subject, with the result that
they had been brought to look into the complex questions of excise
administration from more than one point of view, to understand the
difficulties with which the district officers had to contend, and had
thus acquired information which qualified them to advise and assist
Government in the future.

The total revenue from excise fell during 1889-90 from
Rs. 1,08,88,973 to Rs. 1,04,73,426, while the charges increased from
Rs. 4,32,765 to Rs. 5,«8,739.

At the instance of the Government of India, a special inquiry
Omdition of the ^'^^ made in 1 887-8 ^into the condition of the lower
lower ciasaes. classes in Bengal, with a view to discover what

localities, if any, were, on account of the pressure of population and
insufficiency of produce, in need of relief. The general result of
this inquiry was that in the greater part of the Lower Provinces the
industrious classes found no difficulty in supplying their primary
wantb, and were, as a rule, well nourished. Their prosperity was

SIR STBUART BAYLEY. 865

greatest in the eastern districts, and gradually diminished towards the
west. It did not seem to be impaired even where endemic disease
had reduced the population and left the survivors to some extent
emaciated or enfeebled. On the contrar}% the Reports from districts
so afflicted showed that the inhabitants were rather better off than in
neighbouring tracts. But the signs indicating prosperity ceased on
reaching Bihar, where, though the cultivators who had holdings of
a size sufficient to afford full occupation to their families were well-to-
do, and the middle class enjoyed exceptional comfort, wages were so
low that those who depended for their living entirely or mainly on
their daily labour earned a very scanty subsistence. The number of
these labourers, including those who held some land, was estimated
at about 40 per cent of a population of over 15 millions. The cause
of the lowness of wages appeared to be the multiplication of
labourers in a healthy climate and under a social system founded on
early marriages up to the point at which employment could be found
on the lowest terms consistent with the maintenance of their families.
This cause was of a permanent nature, social and climatic conditions
remaining unchanged. Its effects could not be counteracted by any
conceivable development of local industry, for that could hardly
progress in geometric ratio with the increase of population. Emi-
gration could afford a sufficient and lasting remedy only if it were
conducted on a large scale and continuously. If, after a system of
emigration had been established, its operation were to be checked
by the occupation of waste lands, the existing difficulty would arise
again. It was possible that popular education, which had hardly
touched this part of the population, might in the course of many
years effect a permanent change for the better, by altering the views
and habits of the people, and in the meanwhile it would greatly
facilitate the application of partial and temporary remedies, such as
the introduction of new. industries and emigration.

The Bengal Government accordingly about this time took into
„ , ^ , consideration the question of affording some measure

Emigration to ^ o

BurmA. of relief to the over-populated districts of Bihar by

promoting emigration, and, as Burma, with the high wages there
earned and its large tract of unoccupied land, seemed to offer a suit-
able outlet, Mr. P. Nolan, c. s., Secretary to Government, was, early
in August 1888, deputed to that country by the Government ot India

866 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

for the purpose of conferring with the officers of the Burma Com-
mission and proposing definite measures on the subject. The general
result of the discussions which took place was to show that emigra-
tion from Bengal to Burma would be beneficial to individuals as well
as to the State, and that with ordinary help from Government the
existing emigration might be considerably stimulated without inter-
fering with the voluntary system on which it was conducted, and
which was its most valuable characteristic and had worked extremely
well. For facilitating the desired movement, Mr. Nolan recommend-
ed that the cost of deck passages from Calcutta to Rangoon should
be reduced, by granting a subsidy for the purpose to the British
India Steam Navigation Company according to the terms of their
contract ; that equitable terms should be offered to capitalists willing
to reclaim waste lands in Burma by the agency of Indian labourers
or raiyats ; that a model seulement should be made at the expense
of Government ; and that employment should be offered to Biharis
on any great public works undertaken in Burma. Some gentlemen
of position having intimated their intention to visit that province in
order to ascertain for themselves the prospects of success in the pro
posed undertaking, and having expressed a wish to be accompanied
by a Bengal official competent to assist them with information and
advice, the Director of Land Records was deputed to Burma in
March 1889. During this visit he settled certain detailed rules, which
were afterwards approved by the Chief Commissioner of Burma and
the Government of India, offering lands on specially favourable terms
for the introduction of settlers from Bihar and Chota Nagpur. The
reduction of the deck fares was arranged, and certain capitalists
obtained leases of areas in Burma for reclamation by Indian settlers.
The legislation in connection with the Calcutta Municipality
Calcutta Muni- (which had been impending for some time) was
cipaflctof"i?88. effected by Act II (B.C.) of 1888. The more
prominent alterations in the law introduced by this Act may be
summarised as follows. It extended the jurisdiction of the Calcutta
Corporation over a large portion of the suburbs. The sections regulat-
ing the qualification of voters at elections were recast, and made to
include the system of allowing plural votes according to a recognised
method. The duties of the Corporation were minutely indicated ;
while ample powers were reserved to the I^ocal Government to

SIR STfcUART liAYLKY. 867

compel the Corporation to discbarge any of these duties should it
neglect to do so. A section was introduced authorizing the im>
position of a duty on petroleum. The Chapter relating to the
imposition of rates was thoroughly recast, as also the system of
valuation of house property in Calcutta. The scale prescribing the
supply of filtered-water was considerably enlarged. The building
regulations regarding houses and huts were almost entirely re-written,
with special reference to the constniclion of houses and bastis on a
recognised plan, so as lo guarantee proper ventilation, air-spaces^
open grounds around them, and - such other sanitary conditions as
were deemed desirable. The first elections under this Act took place
in March 1889. Instead of voting by papers previously distributed
the vote had to be give in person. The number of voters being
11,614, the voting power was found to be 46,402, and in wards
where the seat was contested about 43 per cent of the voters came lo
the poll.

The restricted meaning attached to the word "labourer." as
defined in the Indian Emigration Act, 1882, had

The Inliind Kmi-

graiitH* Health hitherto rendered it impossible for the Local

Act, 1889.

Government to apply the sanitary provisions con-
tained in that Act to the case of *'free" or unregistered emigrants,
a class of which large numbers were being drafted annually through
Bengal to the labour districts of Assam. Outbreaks of cholera were
occurring among the emigrants from Bengal to Assam, and certain
emigration depots or resthouses had been found to be very defective
in sanitary arrangements ; it seemed necessary that supervision should
be .exercised over *free' emigrants as well as over the labourers
who executed engagements under the Act. The object of Act I (B. C.)
of 1882 was to obviate this difficulty, and this was done by vesting
the Local Government with power to make rules for the sanitary pro-
tection of all emigrants during their passage through Bengal,
similar to those which existed under the Indian Emigration Act,
1882, in regard only to ''labourers" as defined by the Act. Arrange-
ments were made as soon as possible for the medical care and
protection of emigrants en roule to A^sam.

As it stood in 1888-89, the Subordinate Executive Service was

Suboniinate divided into 2 branches. The upper was com-

B^ecnitivc Service, posed of 242 Deputy CoUcctors, 35 probationary

868 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

or officiating Deputy Collectors, and 29 Special Deputy Collectors ;
and the lower of Sub-Deputy Collectors, 14 special temporary
officers, 8 iahsildars, and 67 kanungos. For 23 years the question
of the best means of recruiting this service had engaged the
attention of successive Lieutenant-Governors ; and, although the
same policy had on the whole been followed throughout, the serious
difficulties encountered in dealing with the question, which had
apparently arisen rather from the nature of the subject than from
any difference of opinion as to the main object to be kept in view,
had led to frequent changes in the system by which it was attempted
to carry out the policy. These changes had produced inconvenient
and embarrassing results. Claims created or recognized by one
method of selecting candidates had been ignored or imperfectly
satisfied on the introduction of another, and each system in turn
had involved Government in a number of implied pledges which
it had become practically impossible to fulfil. These causes,
operating during a period of 1 2 years, had produced a state of
such extreme complication and confusion that in 1888-89 it was
decided to introduce a comprehensive scheme, which should take
account of the essential and permanent requirements of Bengal
and should at the same time provide for giving play to more than
one method of selection.

It was foreseen that, although in any scheme intended to be
final the principle of competition must occupy a prominent — ^perhaps
the most prominent — ^position, yet that this alone would not meet all
wants. In the first place, the diverse character of the population
affected had to be considered, and care taken to guard against a
single race or class obtaining a virtual monopoly of the service, by
which a large proportion of the every-day work of administration
was done. At the time, and probably for many years to come, the
immediate effect of recruiting the Subordinate Executive Service on
an exclusively competitive basis would have been to debar Muham-
madans, or natives of Bihar or Orissa, from any reasonable chance
of obtaining appointments. In the next place, there were special
reasons for appointing particular native gentlemen to the higher
grades in the public service, e. g,, social or representative position,
family connections, distinguished University attainments, .or meritori-
ous service in other branches of the administration, and such

SIR STEUART BATLEY. 869

qualifications might give a claim to appointment by nomination.
There remained also a class of claimants, comprising, in the case
of the upper branch of the Service, those Sub-Depuly Collectors
who passed the Native Civil Service Examination in the years
1872 — 75 and had earned by distinguished service in the lower
branch the fulfilment of a promise of promotion to the upper given
by Sir George Campbell, and, in the case of the lower branch, certain
kanungos to whom the original conditions of their appointment had
given claims for promotion.

To meet these difficulties the following schemes were evolved,
and orders issued for carrying them into effect. It was decided, in
the case of the upper branch of the service, that an annual competi-
tive examination should be held, open to all persons fulfilling certain
conditions, and that \ the appointments should be given to those
who obtained the highest aggregate of marks at that examination.
Of the remaining appointments, it was intended to bestow \ on those
who had claims to appointment by nomination, provided that the
nominee had obtained not less than \ of of the full number of marks
in the examination, and the remaining \ to candidates having claims
to promotion from the subordinate branch of the service. The claims
which were recognized as having already accrued against Govern-
ment were to be disposed of partly by the immediate bestowal of
appointments, and partly by a relaxation in favour of the claimants
of the conditions of appearance at the competitive examination.

The scheme for the lower branch of the service was based on the
same principles. Its main features were that \ the vacancies occur-
ring during the year 1889 should be filled up by nominees and J
by kanungos \ that in 189c an exammation should be held of those
whose claims to nomination had been recognized ; and that there-
after appointments should be given, \ to the most successful com-
petitors at an examination and \ to nominees obtaining at the same
examination not less than fths of the total marks.

In 1888-89 it was recorded that, on the whole, the working of
District Boards during the past year, although bv

DUtrict Boards. ,

no means devoid of blemishes, had been satisfactory,
and Government recognized the interest taken by the members, and
a praiseworthy desire on their part to aim at successful administra-
tion. There had been in some cases signs of timidity ; in others of

870 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

inexperience; in others of the undue subordination of public to
private purposes ; and in some an unwise tendency to excessive
interference with the executive in professional questions. These,
however, it was considered, were more than counterbalanced by the
advantage of entrusting the management of local affairs to the hands
of those most permanently interested in its success, and the opinion
of the Local Government was that what was chiefly required was
more organization and wider opportunities for the receipt of advice,
encouragement, and, where necessary, supervision and control,
exercised by a higher authority with larger experience and observa-
tion of the working of Boards throughout the whole province and
in other parts of India than could be supplied by district Magistrates
and Divisional Commissioners. If Local Self-Government in Bengal
were to receive its proper expansion, it would, in the opinion of
Government probably be necessary to supplement the efforts of local
bodies with the assistance, support, and capacity for organization
which a central authority with leisure and ability for such a task
would alone be in a position to afford. Similarly, in reviewing the
administration of municipalities in 1889 Sir Steuart Bayley recorded
an opinion that the establishment of a Local Government Board,
somewhat on the lines originally contemplated, would soon become
an administrative necessity in Bengal.

There was a considerable amount of survey and settlement work
Surveys and ^o^c during 1 888-89. The Operations extended to
setucmenta. ^^ ^^^^ ^^ 3,6*11,057 acres, of which 1,161,483 were

surveyed. Of the area surveyed, 399,955 acres were comprised in
Government estates, 717,123 in Wards' estates, and 44,405 acres in
private estates. All the important areas were under survey by profes-
sional agency, and the whole of the proceedings were under the
supervision of the Director of Land Records. The figures showing
the cost of survey and settlement per acre varied considerably. For
instance, in estates surveyed professionally, the cost per acre varied
from 4 annas to 6 annas 7 pies per acre, and the cost of settle-
ment from 10 pies to 3 annas 11 pies per acre. In non-professional
surveys the cost ranged from 2 annas to one rupee and 3 pies per
acre, and the cost of settlement from 2 annas 9 pies to 9 annas one
pie per acre. The total cost of both survey and settlement together
ranged in estates surveyed by professional agency from 5 annas

SIB STEUART BATLBT. 871

•

lo pies to 8 annas lo pies, and in the case of n on- professional
agency from 2 annas to one rupee per acre. These variations
depended upon the differences of the country dealt with, x\it personnel
of the officers employed and other causes, but they rendered it very
difficult to accept an all-round estimate for work on a large scale.
The Government estates dealt with during the year were Angui, begun
in 1886-7 ; Banki, begun in December 1887 ; the Jalpaiguri Western
Duars ; old ihana Ramu in Chittagong ; Bhetia and Kamina Chuk
in Midnapore, some petty estates in Backergunge and Tip-
pera, and the Port Canning estates in the i^-Parganas. Consi-
derable increase of revenue was obtained from Angul and the West-
ern Duars.

The Wards* estates in which survey and settlement operations
were conducted were the Srinagar and Banaili Raj, Sankarpur,
Churaman, Maldwar, the Burdwan Raj khas mahals^ Kujong and
Kanika in Cuttack. The private estates dealt with were those of
the Raja of Dubalhati in Rajshahi, Kesiari, Bogri, Purusattampur,
Parbatipur in Midnapore, some small estates in . Muzaffarpur,
mouza Jagadishpur in Chandauti in Burdwan, and Alakdia Durgapur
in Tippera. These proceedings were undertaken on the application
of the landlords in consequence of disputes between them and their
tenants. The Dubalhati case threatened at one time to assume a
serious aspect, but eventually an amicable compromise on the basis
of terms suggested by the Settlement Officer and the Director was
agreed to by the Raja and the great majority of the tenants. A
programme of survey and settlement operations was submitted to
the Government of India in 1888 for the last 4 years of the
period of the Provincial contract viz., 1887-88 to 1891-92 : and a
revised programme was subsquently prepared for the 5 years 1 889-90
lo 1894-95, and approved by the Supreme Government.

In 1888-89 the railways under the control of the Government of
Bengal, and for which financial responsibility had

Railways.

been accepted, were : —

Miles.
Eastern Bengal State railway, Broad gauge ... ... '234!

Do. Do. Metre gauge ... ... ^^^

Tirhut State railway ... ... ... ••• .•• 259

Nalbati State railway ... ... ... ... ... 27^

872 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

Under the control, but not under the financial responsibility, of
the Bengal Government : —
Bengal Central railway ... ... ... ... 125

The remaining portions of the Assam-Bihar railway, from Purnea
north to near the Nepal boundary, and the remaining link between
Katihar and Raiganj, were nearly completed, and were opened soon
afterwards : the latter portion completed through railway communi-
cation between northern and eastern Bengal and Bihar and the
north-western Provinces, and was expected to exercise an important
influence upon some of the richest and most populous districts of
the province. A railway to Budge-Budge petroleum dep6t, 1 1 miles,
was constructed to allow of the large and ever-increasing imports
of petroleum being carried inland without danger to the town or
shipping.

In 1889 Sir Steuart Bayley extended the system of Honorar}*
Honorary Magis- Magistrates which had been established in 1872-73

by Sir George Campbell with a view to the education
of the people in the management of their own affairs, to the
representation of different classes on the Bench and to the relief of
the paid Magistracy. The classes of persons to be selected as
members of the Benches of Honorary Magistrates were considered,
and it was laid down that ordinarily Benches would be independent,
unless in cases where the consent of Government had been obtained
to the association of a Stipendiary Magistrate with the Bench. The
powers with which Benches might be invested were also reviewed,
and the classes of cases to be tried by them, as also the extra-judicial
ways of employing the services of Honorary Magistrates. Those
who failed to attend Bench sittings without reasonable excuse were
to be reported with a view to their removal. At the same time it
was ruled that on all occasions of official ceremonies Honorary
Magistrates should take precedence of all untitled persons not in
Government service.

At the close of the year 1888-89 the condition of the 3 districts
Famine and flood ^^ North Bihar, — Champarau, Muzaffarpur, and

Darbhanga — was such as to cause grave anxiety.
In the two critical months of September and October 1888 the
average rainfall in those distiricts was only 5*44 inches, and this,
although nearly 2 inches greater than the amount which, fell in the

SIR STKUART BAtLEt. 87S

corresponding months of 1873, ^^^ ^^^^ 7^^^ ^^ scarcity, was yet
less than half the normal amount. This deficiency of rainfall
extended to the whole of Bihar and affected the crops throughout the
Division ; but the only tract as to which real anxiety was felt was a
strip of land over 1000 square miles in area extending about 90 miles
along the Nepal frontier from Champaran through Muzaffarpur and
Darbhanga into Bhagalpur, and in this tract (of which the population
was estimated at 17,030,102 souls) even as early as January 1889
relief operations were commenced. The outturn of the harvest
which followed did not fulfil expectations. The yield of opium and
mangoes was deficient, while there was a marked deficiency in the
rati harvest of the province generally, and prices, both wholesale
and retail, rose everywhere. In Champaran and Muzaffarpur the
subsidiary crop of cheena failed entirely. The first part of May was
marked by intense heat and drought, and in the second part the
distress deepened as the season advanced, and the number of
labourers employed on relief works increased to 45,966. As it became
obvious that it would be necessary to provide employment, though
on a reduced scale, throughout the rains and until the autumn crop
was reaped. Sir S. Bayley authorized the commencement of earth-
work for the construction of a railway from Darbhanga to Sitamarhi,
a survey of which had been completed^ although the project had not
been sanctioned.

In the latter half of June and the first week of July rain fell
abundantly and was nowhere deficient, but already in Champaran
some danger was caused by superabundance of rain ; and, although
a break occurred in the second half of the month, it became evident
towards its close that the damage caused by the long drought would
be succeeded by damage of an opposite nature, and that there was
little probability of escaping severe injury from floods. The tract
on the borders of Nepal described as chiefly affected by the drought,
being high up, suffered little, and in Darbhanga the floods subsided
rapidly ; but Champaran and Muzaffarpur did not escape easily,
although much of the land was replanted when the floods subsided.
The subdivision of Bettia, comprising the upper portion of Cham-
paran, was flooded by the Bor Gandak and its tributaries, while in
the south-west the Gandak overflowed its banks : and in central
Muzaffarpur the \vater of the Bor Gandak and the Bhagmati uniting

874 BKNGAL UNDER THE LIEUTENANT-GOVERNORS.

washed away the entire crops from a tract of land about 27 miles in
length and varying from i to 3 miles in breadth. On its northern
bank also the Bhagmati cleared an area of 38 square miles, but the
water drained off rapidly and much replanting was quickly effected,
so that comparatively little damage was done. In Champaran the
Collector estimated that the crops had been destroyed or extensively
injured over a large tract, equivalent in the aggregate to their total
destruction over an area of 1 1 7 square miles. So serious was the
matter deemed that Sir S. Bayley twice visited the affected area
— once in July-August and again in September ; and it was not
until the end of October that the last relief centres were closed,
distress had disappeared everywhere, and prospects were good.
The Secretary of State in referring to the measures taken commended
the local ofiicials, who, with the cordial assistance of the zamindars
and planters, had enabled the people, by their promptitude and
determination, to pass through an anxious time without loss of life
or avoidable suffering.

There was scarcity also in the Tributary mahals of Orissa, includ-
ing the Government estates of Angul and the Khondmals. These
mahals, 19 in number, form a rough tract, chiefly composed of hills
and jungle, between Orissa and Chota Nagpur, and have an area of
about 16,066 square miles, or half that of Ireland, and a population
of 1,630,004 souls. The land is for the most part owned and culti-
vated by Hindus ; but in addition to these there were the Pariahs
(pahariah, hiliman), consisting of various aboriginal tribes and semi-
Hinduized castes, such as the Khonds, Savars, Sonthals, &c., the
descendants of the forest races by whom the uplands of Orissa were
inhabited before the Aryan conquest, who comprise about \ of the
population of Orissa and of the Tributary mahals. These, like the
hill tribes on our frontier were^largely dependent on forest produce
and on liberty to clear and cultivate the jungle ; but the regulations
of the Forest Department, and regulations introduced in imitation of
them by the Tributary chiefs, restricted the use of this resource.
In the year 1888 the harvest was deficient, and the long drought,
which affected some parts of the mahals from October in that year
to the following June, not only largely enhanced the prices of food
grains, but by preventing agriculturing operations deprived many <rf
employment* Their condition was also aggravated by the fact that

SIR STBtJART BAYLEY. 875

cholera, perhaps connected in its progress with scarcity, and the use
of bad food, interfered with trade and led to a rapid depletion of
food-stocks, and that in some cases also the cultivators sold their
grain, believing that they would subsequently be able to purchase
more cheaply, which they were unable to do. At first the Superin-
tendent of the Tributary mahaU did not fully realise the gravity of
the situation, but subsequently vigorous measures were taken — the
forest rules were suspended, relief works were opened, gratuitous
relief given, and advances were made to such of the Rajas as
required them. There was a break in the rains in the last fortnight
of September which gave rise to some apprehension ; but continuous
rain fell during the first week of October and relief measures were
then gradually stopped, and by the end of that month all cause for
anxiety had ceased. As Sir S. Bayley was detained in Bihar
himself and was unable to visit Orissa personally, he deputed for
that purpose Sir John Edgar, who proceeded to Orissa and passed
orders on the spot.

In Khurda, Balasore, Midnapore and Murshidabad also there
was slight scarcity, and relief to a small extent had to be given.
• In the course of his visit to India, His Royal Highness Prince

Albert Victor arrived in Calcutta on the ^rd January

Visit of His Royal ^ . , , ^ . , « ^

Highoess Prince 1800, accompanied by Colonel Sir E. R. C.

Albert Victor. ^ ,, , y, ^ ,

Bradford, k. c. s. i. (then Political Secretary at the
India Office and now Chief Commissioner of the Metropolitan Police
in London). A deputation from His Excellency the Viceroy and
His Honor the Lieutenant-Governor met the Prince on board the
Kistna. On landing at Prinsep's ghai. His Royal Highness was
received by the Viceroy, the Lieutenant-Governor, the Members of
Council, the Judges of the High Court and other leading officials.
The reception was most enthusiastic. The Municipal Corporation
of Calcutta presented at the ghai an address, to which a reply was
given in suitable terms. His Royal Highness drove along the Ellen-
borough course to Government House, where he was the guest of the
Viceroy (Lord Lansdowne). At night, there were illuminations
in the business part of the town. Messages of welcome were
sent to the Prince by different communities, associations and muni*^
cipalities of the country. On the 5th, the Prince, accompanied
by Lady Lansdowne, attended Divine Service at St, Paulas

876 BENGAL UNDER THE LIBUTENANT-GoVJCRNORS.

Cathedral. The principal ceremonies and festivities held in his
honour were as follows; — A Reception at Government House, a
Ball at Belvedere at which the Viceroy, Lady Lansdowne and the
Duke and Duchess of Connaught were present, a grand f6te on the
Tfiaidan and illuminations, a Dinner at the Bengal Club, a State Ball,
a dinner with the Maharaja of Kuch Bihar, a drive through the city
accompanied by Sir S. Bayley, a game at Polo at Ballygunge, a visit to
the Zoological Gargen, and snipe-shooting at Kanchrapara with the
Duke of Connaught. His Royal Highness left for Benares on the
13th, the departure being private. The Prince expressed himself
highly pleased with the f^te on the maidan and other entertainments
provided for him. Sir S. Bayley received an autograph letter
from His Excellency the Viceroy, expressing the great satisfaction of
the Prince at the splendid reception given him.

For 30 years the Chamber of Commerce had been agitating for a
reduction in the number of public holidays, more

Holidays. ^ ^

especially of those at the time of the Durga Puja^
and in 1889-90 they urged, in addition to the reasons previously
advanced, that, since the passing of the Negotiable Instruments Act,
XXVI of 1 88 1, the Banks no longer felt it safe to transact any
business on holidays gazetted under the Act ; and they requested,
therefore, that only holidays actually required to be devoted to
necessary religious ceremonies should be gazetted under the Act, and
that the other holidays should be made such by executive order for
all offices save the few which were indispensable to the foreign trade
of the Port. After the fullest inquiry, this solution of the difficulty
commended itself to the Local Government, and was accepted by the
Government of India, and 2 notifications were issued accordingly :
i.e., one under section 25 of the Act above mentioned, the other as an
Executive order of Government.

Early in 1890 Sir S. Bayley had a comprehensive scheme of local

taxation drawn up and laid before the Government

Comprehenaive

Bchcmo of local of India. Its chief feature was the imposition of a

taxation proposed. ^

local general cess on land, to be assessed and collect-
ed like the Road Cess, the proceeds being devoted to general
purposes and especially to the furtherance of sanitation and of pri-
mary education. The suggestions put forward for legislation were
summed up as follows : —

-Sm, STBUART-BAYLIBt. '377

I. (a) That a local general rate or cess be imposed on land in the
' same manner as is now done in the case of the Road Cess, the amount

of the general cess not to exceed one pice in the rupee on the annual
value of land, and not to be less than one-third of a pice, or one pie,
in the rupee on such value : provided that the general cess shall not
be levied within the area of those Unions in which a system of local
rating has been imposed on Union Committees.

Hf) That the proceeds of the local general rate or cess shall be
devoted to general purposes, and especially to the furtherance of sanita-
tion and primary, education : provided that the Lieutenant-Governor
shall have power to direct, in regard to any district, that the whole of
the proceeds of the local general cess at its minimum rate of one pie
in the rupee, or such proportion as may be determined of this minimum
rate and not exceeding it, shall be devoted to the furtherance of primary
education only.

(^) That, subject to the maximum and minimum as aforesaid, the
rate of the local general cess be fixed by the District Boards.

(d) That the proceeds of the local general cess in regard to sani-
tation and primary education be, so far as possible, expended locally.

II. That it should be declared that the balance of the District
Road Fund under the Cess Act, IX(B.C.) of 1880, shall be applied to
the objects specified in section 109 of that Act, and to no other.

III. That a permissive power, subject to the approval of Govern-
ment in each case, should be granted to District Boards, on the estab-
lishment of Union Committees, to authorize these Committee^ to
assess and collect a local rate upon the residents within the Union
according to their circumstances and property, the amount to be recover-
ed by this rate being fixed by District Boards with the sanction of
Government ; and that the whole of the proceeds of this rate, after
deducting 5 per cent, for supervision and inspection, should be spent
within the Union by the Union Committees under the control of the
Local Boards, in the furtherance of sanitation and of primary education :
provided that' the Lieutenant-Governor shall have power to direct that,
in regard to any Union, such proportion of the local rate as he may
determine shall be devoted to the furtherance of primary education only.

IV. That District Boards should be allowed in their own right to
establish toll-bars on bridges constructed by them until the cost of the
bridge, including the capital and interest expended thereon, as well as the
cost of maintenance and of renewal if necessary, has. been recovered.

But no action was taken on the scheme, the Government of
India agreeing with Sir S. Bayley that it was not then advisable to un*

878 BENGAL UNDCR TH£ LtBCTKNANT-GOVERNORS.

dertake legislation for the purpose of imposing fresh taxation in
Bengal.

Act III (B. C.) of 1890 was passed not only to consolidate and
The Port of amend the law relating to the Port of Calcutta and

Calcutta. fQ ^ijg appointment of Commissioners for the Port,

but also to make some important amendments in the existing law.
The number of Port Commissioners was increased from 13 to 15 ;
the manner in which the Port property should be valued for purposes
ot municipal assessment was prescribed ; provision was made for the
institution of civil suits by persons debarred the use of private
wharves or other works, or whose wharves or other works were
removed by the Commissioners ; some sections were introduced
relating to the mode of preparing the budget and defining the
liability of the Commissioners in respect of goods in their custody ;
and provision was also made for the grant of pensions to the Port
employes ; the position and duties of the Port police being at the
same time more clearly defined.

The Hon'ble Mr. Reynolds in introducing the Bill, (which
became Act III) gave an interesting outline of the legislation connect-
ed with the Calcutta Port Trust, as follows : —

" The Calcutta Port Trust is a Corporation which has not yet
attained to the age of legal majority. It was established, as the
Council is probably aware, under Act V of 187c, and is consequently

19 years of age. But, if it is an infant, it is a thriving and vigorous
one. No one who remembers the condition of the river foreshore

20 years ago can refuse to the Port Commissioners the right to
indulge a feeling of pardonable pride in the improvements they have
effected. The reclamation of the river banks, the jetties, the tramway,
the tea warehouse, the petroleum depdt, the improved lightships,
the admirable charts of the river which have been issued, are all
monuments of the energy and success with which the Port Commis-
sioners have discharged the duties entrusted to them. They are
now engaged upon the greatest work they have yet taken in hand —
the construction of the docks at Kidderpore. This work is making
excellent progress, and it may be confidently anticipated that it will
prove a great financial and commercial success. The operations of
the Port Commissioners have not been confirmed to the Calcutta
side of the river, for on the Howrah side they have reclaimed a large

dm StEUARt BATLEt. 879

tract of land, and have! made an excellentjoad along the foreshore.
And all these improvements have been effected not only without any
addition to the charges upon trade, but with an actual lightening of
them. Calcutta from its geographical position can never be a cheap
Port, the fees for pilotage and towage must always handicap this
Port when compared with Bombay, but the Port Commissioners
have been able to reduce the pilotage charges, and to do away
altogether with the Port duties which were formerly levied. As a
Port-due produces about Rs. 80,000 for each anna of the rate,
the abolition of a 4 annas Port-due implies a relief to the shipping
to the extent of about 3^ lakhs per annum.

*' Honour should be given where honour is due ; and I therefore
think it right to say that the success which has attended the adminis*
tration of the Commissioners has been largely due to a individuals :
to their first Chairman, Mr. Schalch, who laid down the lines of
policy which the Commissioners have steadily followed, and to Mr«
Duff Bruce, who was for 17 years the Vice-Chairman and Engineer
of the Port Trust. But in bringing out these 2 names for special
mention, I ought to add that their efforts would have had little
result if they and their successors had not enjoyed (as I am happy
to say they have enjoyed) the confidence and the co-operation of the
Chamber of Commerce and of the mercantile community in general.
Mr. Schalch may have been the head, and Mr. Bruce the right hand,
but the backbone of the Port Trust is, and always has been, the
Chamber of Commerce.

" The legislstive charter of the Port Trust is Act V of 1870, but
this Act was necessarily of a somewhat tentative character, as the
establishment of a Port Trust in Calcutta was at first of the nature of
an experiment. The experiment had been tried in another form by
Act X of 1866, which vested the management of the Port in a
Committee of the Calcutta Justices. The experiment in this form
proved a failure, and hence it was natural that the Act of 1870
should have been somewhat cautiously worded, and should have
contained various restrictions. But as the duties and responsibilities
of the Commissioners increased, and their administration was shown
to be successful, the original Act of 1870 was supplemented by a
number of amending Acts, all of which were in the direction of
extending the powers conferred on the Commissioners* The most

880 BENGAL UNI>IER THE LIBUTKMAHT-GOVERNORS.

important of these are Act IV of 1880, which deals with the borrow-
ing powers oi the Commissioners ; Act II of 1885, which authorized
the construction of the Kidderpore docks; and Act III of 1887,
which introduced the elective principle into the constitution of the
Trust.

" The result is that now we have altogether 9 Acts dealing with
the Port Trust of Calcutta, and I believe the Council will agree that
the time has come when it is advisahje, and indeed necessary, that
these Acts should be consolidated."

In 1890 the statistics of crime in Bengal attracted attention and
were carefully scrutinized. The general inferences

Polic6 reforms.

drawn from them were that, although crime was
not positively great in Bengal and was decreasing relatively to the
increase of population, certain offences showed a tendency to
increase ; that an unduly large proportion of the crime actually
occurring was not brought to the notice of the police or of the
Magistrates, and was therefore never inquired into ; that the police
inquiry into a large number of the cases taken up was fruitless, and
such cases never came before the Courts ; and that a dispropor-
tionate number of the persons brought before the Courts . were
acquitted. The broad result was that upwards of 70 per cent, of
serious crime went unpunished, that at least 90 per cent, of the most
dangerous offences against property remained undetected, and that
in a period of 1 1 years the percentage of convictions among the
total number of persons tried by the Courts and charged with offences
in certain classes never exceeded 56 and in one year fell to 52. It
was considered necessary to enquire minutely into the causes of this
highly unsatisfactory condition of affairs, and to ascertain by what
means, whether legislative or executive, remedies capable of being
made practically eflFective could be devised and applied. As the
conditions under which the administration of different provinces was
carried on varied so much that practical results were likely to be
attained only by concentrating attention on local circumstances and
requirements, the Government of India refrained from appointing a
general Commission, but left it to the Lieutenant-Governor, if he
thought fit, to convene a Provincial Committee. Sir. S. Bayley
accordingly appointed a Committee with Mr. John Beames, c. s.,
Commissioner of Bhagalpur, as President^ to thoroughly examine the

SIR STBUART BAYLET. . 881

whole subject of police administration in Bengal. Thefr Report was
submitted in February 1891.

Among the matters of lesser moment which engaged Sir S.
Bayley's attention the following may be mention-

Miacollaneoiu.

ed : — the extension of the Local Self-Government
Act and its development in administrative details : water-works at
Bhagalpur : the resurvey of Calcutta : an inquiry into the working
of the Sone canal system of irrigation : revised rules for the grant of
tea and arable land leases and of leases of mica mines : the curtail-
ment of annual Reports : the Pilot Service : tours of sub-divisional
officers : the reorganization of the Calcutta madrasa : the treatment
of recovered criminal lunatics : the employment of Muhammadans
in the public service : Custom-house regulations : floods in the
Burdwan and Presidency Divisions : the outstill system in Hooghly
and Howrah : the question of maintaining embankments : the regula-
tion of appointments in the Secretariat clerical service of the
Government of Bengal and attached offices : the amendment of the
Revenue Sale Law and the Public Demands Recovery Act : the
foundation and future management of a new Leper Asylum for
Calcutta.

In an important speech at Patna on his first tour, Sir S. Bayley

stated that the only policy he set upon himself was

Obioryfttioiiii.

(as Sir A. Eden had meant when he said he had no
policy) to go on steadily, doing the day's work as it came, remedying
defects whenever brought to light, looking for no striking results,
giving way to no far-reaching ambitions, but reforming little by little
to meet actual necessities in a practical way. Thus no startling
changes were effected in his time, and his administration appeared to
be colourless, to use his own word. But progress was quietly main-
tained : so far-sighted a political thinker as Sir S. Bayley could not
fail to recognise the liberal movement, the iconoclastic spirit, of the
age. The new measure of Local Self-Government was allowed to
develop ; local bodies were to be influenced, not driven. Steps were
taken in the direction of extending the elective system in municipali-
ties,* arrangements had to be made for the advancement of natives in
the Govemnient service — scientifk training and technical education
were assisted. The reform in the indigo industry of Bihar, in which
Sir S. Bjivley with his intimate knowledge of that province had been

882 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

the adviser of Sir A. Eden, was successfully continued, and the tatter's
policy of upholding the old and aristocratic families and preventing
litigation was again acted upon, to their great advantage. It was Sir
S. Bayley's '' special anxiety to contribute as far as lay in my power
to the cooling down of any waves of race antagonism that might still
linger as a residuum of the great disturbance of those waters that
took place some years ago." Many speakers, Lord Elgin among
them, have borne tribute to Sir S. Ba)1ey's ability, unfailing personal
kindness, sympathy, readiness to help, and accessibility ; his literary
attainments had attracted the notice of so competent a judge as Lord
Lytton : the thoroughness of his work was generally acknowledged.
His wonderful good heahh enabled him to carry on the laborious
duties of his office without feeling the effects thereof as others had
felt them.

On the eve of the departure of Sir S. Bayley after filling the office

of Lieutenant-Governor for nearly 4 years, a largely

Statuo In Cnl*

cutta: iu unveu- attended meeting was held, on December 6th 1890,

ing.

in the hall of the British Indian Association, with the
object of expressing the high regard in which he was held by all
classes of the people of Bengal. The meeting was under the Chair-
manship of the Maharaja Bahadur of Darbhanga, and was attended
by the leaders of the Hindus and Muhammadans of Bengal and
Bihar, and by representatives of the European community. At the
meeting numerous telegrams and letters were read from residents in
the mu/assal who, though unable to be present at the meeting, were
anxious to give the movement their cordial sympathy and support.
Resolutions were proposed by Maharaja Bahadur Sir Jotindro Mohan
Tagore, (seconded by Sir Comer Petheram) and by Maharaja Bahadur
' Sir Narendra Krishna (seconded by Sir Alexander Wilson and sup-
ported by Prince Sir Jehan Kadr Mirza Bahadur) to record the
meeting's appreciation of the eminent services which Sir Steuart
Bayley had rendered to Bengal, and to present him with a farewell
address.

The address adopted by the meeting dealt with the incidents of
his long and distinguished career in India and specially with his term
of office as Lieutenant-Governor, and the great services he had
rendered not only to Bengal and Bihar, but to the country at large
by his efforts to settle disputes and his unceasing care and watchfi|l*

SIR STEUAET BAYLKT. 883

ness against the threatenings of scarcity. On the adoption of the
address the Maharaja of Dumraon, speaking in the vernacular,
proposed that steps should be taken to raise a permanent memorial
in honour of the retiring Lieutenant-Governor.

The address was in due course presented at Belvedere by a
deputation ; the reply given was a most feeling one, and was greatly
appreciated. Mr. Hamo Thornycroft, the sculptor, was commis^
sioned to execute a marble statue of Sir Steuart Bayley. The Gov-
ernment of India placed at the disposal of the memorial Committee
a site for the statue, at the south of the Treasury buildings and to the
west of the south-west gate of Government House. The ceremony
of unveiling the statue was performed by the Viceroy (the Earl of
Elgin) on the 17th December 189^, in the presence of a numerous
assemblage. After the Maharaja of Darbhanga had read the Com-
mittee's Report, in which they expressed their belief that it would be
an acceptable addition to the many fine statues which adorn Calcutta,
and worthy to take its place among them as a work of art, and as a
faithful memorial of one of the most earnest, high-minded and sincere
friends of the people who ever held rule in Bengal, Sir Charles Elliott
said — " It is a great pleasure to me to have this opportunity of associat-
ing myself with this ceremony which perpetuates the memory of my
distinguished friend and predecessor, Sir Steuart Bayley. It is now
some time since Sir Steuart Bayley left Calcutta, and the great
majority of those who were intimate with him have passed away from
among us, but there are still left a great many who personally
remember him and were in touch with him, and we have here
3 members of his family to whom it must be a great pleasure to be
present on this occasion. To those who know him this statue is not
necessary to perpetuate his memory, but to future generations it will
be a memorial of a man who was one of the most cultivated and
philanthropic Lieutenant-Governors of Bengal, who ever came to
this country. At the request of the Committee I have to ask Your
Excellency to unveil the Statue.*'

His Excellency the Viceroy then rose and said : —

Your Honor, Maharaja, Ladies and Gentlemen, — I respond with

pleasure to the request which has been made by His Honor the

Lieutenant-Governor. When the Committee first approached me

on this subject it was intended that this ceremony should take pUce

884 BKNOAL UNDKB THK LIKUTKNAMT*<}OVBRNOR^

before I left Calcutta in the spring at the end of March ; but one of
those delays to which works of art are peculiarly liable intervened,
and, as my departure could not be postponed, and the statue declin-
ed to be hurried, the Committee very kindly determined rather to
wait till now than to proceed in my absence. Naturally, therefore,
we have chosen the first day that was available, the more so as it is
unfortunately the very last occasion on which we can have the
pleasure of associating with us Sir Steuart Bayley's friend and
successor, the present Lieutenant-Governor of Bengal.

Ladies and gentlemen, my position to-day is a perfectly definite
one. I come here at the bidding of the Commitee to act on this
occasion as their instrument. It was the subscribers to this fund
who met some five years ago and resolved spontaneously to create
it ; it is you who have carried out your purpose energetically and
successfully ; it is you who have had the responsibility and can claim
the credit. But when you told me that to complete the work in the
manner on which you had set your heart, and to do full honour to
a servant of Her Majesty so distinguished, my presence was neces-
sary, I should have been a churl, indeed if I had not joined you
here to-day.

Ladies and gentlemen, the proceedings of the Committee and
the meeting to-day testify, I think, to the fact that Sir Steuart
Bayle/s services to this province are well known to you. You
know also that when he left the shores of India he did not cease to
work for India, but that he has long occupied, and still holds a
high place, in the counsels of the Secretary of State. But looking
at the proceedings of the Committee, I have been struck by the
fact that there is much stress laid at every turn on one characteristic,
and that is his unfailing personal kindness and sympathy, his
accessibility and his evident desire to as:$ist any one who required
his assistance. I cannot doubt that it was this characteristic which
earned for him the respect and esteem expressed by you in the
address which yon presented to him, and which determined you
still {further to manifest your regard in the monument which we are
to-day to unveil. And if I might be allowed to say so, it is here
that I can most readily associate myself with you, even though my
acquaintance with him is but slight, because I think I can almost
claiip to be the person in this assemblage who has had the latest

SIR 8TEUART BAYLET. 885

experience of the characteristic to which I have referred. During
the last few months of my residence in England, when I was
endeavouring to prepare myself for the arduous task which lay
before me, many men who have held a distinguished place here in
India gave me valuable aid, for which I am, and shall ever be, most
grateful ; but from none did I receive more prompt and ready
assistance than from Sir Steuart Bayley, and I well remember how I
trespassed long on his valuable time while he explained the problems
of which he was so great a master, and to which my attention
was soon to be directed.

Ladies and gentlemen, I think it to be a good principle that,
when a few simple words suffice, lengthy dissertations are out of
place. I would, therefore, only ask permission to say one word
more. I am glad that, at the gate of Government House, there
should be erected a statue on which there might be inscribed these
words: — **This is the statue of an Englishman whose life amongst
them evinced to the inhabitants of this Province that he cared for
and loved them f and if you would wish one further sentence,
it might be this — "This statue is erected to keep alive the memory
of the man, and the memory that we are not ungrateful."

The inscription on the statue, after the enumeration of Sir S.
Bayley's principal appointments, runs thus : *' Erected by Public
Subscription — As a Tribute of Respect — To a Just and Wise
Administrator — Whose Generous Sympathies — Endeared Him — To
the People of Bengal."

On retiring from the Lieutenant-Governorship of Bengal in

December 1890, Sir Steuart Bayley was appointed to

Subeequont career.

be Secretary in the Political and Secret Department
of the India Office, and a Member of the Council of India in 1897.

CHAPTER X,

Sir CHARLES ALFRED ELLIOTT, k. c. s. i.

1890—95.

The 3 Lieutenant-Governors who succeeded Sir R. Temple had all
belonged to the Lower Bengal branch of the Civil

PreviouB Caroor.

Service. Before Sir Charles Alfred Elliott received
the appointment from Lord Lansdowne he had not served in the Pro-
vince, though from his work on the Finance Commission and previous
residence in Calcutta he had necessarily some knowledge of Bengal
affairs, the officers and the leading inhabitants. His reputation in
the N. W. Provinces, and as an expert in Settlements, Famine,
Finance, and Public Works was great, his energy and ability were
well-known, so that it was easy to prophesy that Bengal would
experience another period of the active Government which had
characterised Sir G. Campbell's rule : and the event fully justified
the anticipation. Sir C. Elliott was educated at Harrow and Trinity
College, Cambridge, and appointed to the Bengal Civil Service after
the open competitive examination of 1856 ; arrived in India, 30th
November 1856, and served in the N. W. Provinces as Assistant
Magistrate and Collector, Joint-Magistrate and Deputy Collector,
and Magistrate and Collector from April 1858 to May 1861 ; in
Oudh as Assistant Commissioner and Deputy Commissioner, and
from February 1863 to October 1866, in the Central Provinces as
Settlement Officer, Hoshangabad ; as Settlement Officer, Farakhabad,
and as Secretary to Government, N. W. Provinces, 1870 to 1877;
Commissioner of Meerut, March 1877 ; Famine Commissioner,
Mysore, September 1877 J C.S.I., 1878 : Additional Secretary' to the
Government of India, famine branch, May 1878 ; Secretary to the
Famine Commission, June 1878 ; Census Commissioner, October
1880; Chief Commissioner of Assam, March 1881 ; President of
the Committee for the retrenchment of public expenditure, February
1886 ; K.C.S.I., February 1887 ; Member of the Governor-General's
Council (in charge of the Public Works Department) December 1887.
His most important writings had been the "Chronicles of UoaQ/' the

SIR CHARLES ALFRED ELLIOTT, K.C.S.I.

rnmmphotogpaphljy M«i W Johtwtonfc Ho

SIR CHARLES KLLIOTT. ^87

Reports on the Mysore famine, 1878, and the Famine Commission,
1880, and the Finance Commission's Report, 1887. He succeeded
to the Lieutenant-Governorship on i8th December 1890. His first
Private Secretary was Mr. P. C. Lyon, 1. c. s. : the appointment was
held by Captain J. W. Currie, of the Madras Staff Corps, for most of
the time. His Chief Secretaries were Sir John Edgar, k. c. i. e. and
Mr. H. J. S. Cotton. When the first-named retired in 1892, an official
notice of his services was issued, of which the last paragraph ran as
follows : — "When Sir Charles Elliott became Lieutenant-Governor
of Bengal, his want of acquaintance with the personnel, of the official
staff, and with the past history of all current business, would have
been a serious impediment to progress had he not found in Sir John
Edgar a friend and a confidant whose judgment was never at fault,
whose advice was always candid and far-seeing, and whose exertions
to assist his Chief were unwearied. If the Administration of Bengal
during the first year of Sir Charles Elliott's tenure of office maintained
or advanced its old high reputation, it was chiefly due to the co-
operation and counsel of Sir J John Edgar."

Surveys and Settlements (of rent and revenue) occupied a very
e . large portion of Sir C. Elliott's time. The work

Survoys and o ^

Settiemeuta. ^j^g jjjg most important of all that tame btfore him

and was continuous throughout his period of office : it will be desir-
able therefore to deal with the whole subject at once. In the year
1890-91 survey operations were in progress in Government, Wanis',
and private estates over an area exceeding 11,708 square miles.
The survey of Orissa, the Western Duars and Chiitagong was well
advanced. The resurvey of Calcutta, commenced in 1886, was to
be concluded in 1892. The settlement officer of Orissa joined in
February 1891 : the settlement work in the Western Duars and
Chittagong had been seriously commenced. The settlement of the
Government estates of Angul and Banki was concluded during the
year.

At the beginning of the year 1891-92 these 3 important survey-
settlements involving the assessment of land revenue in temporarily-
settled estates were still in hand ; viz. the Western Duars in Jalpai-
guri under Mr. D. Sunder, Deputy Magistrate-Collector; the
Chittagong district under Mr. F. A. Slacke, c. s., and the Puri and
Cuttack district of Orissa under Mr. H. M. Reily, Deputy Magistrate-

8 88: BENGAL UNDER THE LIBUTBNANT-<30yERN0lt&.

Collector. In all these cases the survey was a cadastral one, and
was carried out under officers of the Survey Department. Similar
work on a similar scale was continued and undertaken in Govern-
ment, Wards', and private estates. The reviews of concluded work
showed that the proceedings had been generally marked by either
indifference or actual opposition at first on the part of the raiyais,
but this feeling disappeared as soon as they began to realise the
benefits which would accrue to them from the ascertainment of their
true position. It was noticeable that, though this was not in any
case the main object of the survey being undertaken, the uniform
result was a considerable enhancement of rent, varying from 5 to 19
per cent. In short, the survey-settlement work in hand on the 1 st
April 1 89 1 was more extended in area and more varied in description
than at any previous period. Sir C. Elliott found it necessary to
strengthen the staff of officers in superior and subordinate charge
of s^tlement operations by the deputation thereto, especially
in Orissa and Chittagong, of several Covenanted Civilians and
members of the Statutory Civil Service, as well as a large
number of Deputy and Sub-Deputy Collectors. Early in April 1891
he personally inspected the progress of the work in the Western
Duars and elsewhere, and deemed it necessary to state at greater
length, after these inspections, his views of the duties of a settlement
officer, explaining that they were not limited to the judicial decision
of a certain number of cases, but should include the investigation of
agricultural and economic facts relating to the area under survey and
settlement, and the accumulation of information by original and
spontaneous inquiry, from which the data for reasonable assessment,
whether of fair rents in the Wards' estates or of the land revenue in
temporarily-settled estates, could properly be deduced. The
principles thus laid down were duly circulated for the guidance of
settlement officers.

A programme of the expenditure to be incurred on surveys and

surve -aettio- Settlements in Bengal during the five years 1892-93

"fOTiw^to"* to 1896-97 inclusive was prepared in January 1892

1896-97. ^^^ ij^j^i before 'the Government of India. The

total area to be professionally surveyed, excluding Calcutta, amount-
ed to 2,350 square miles in Orissa, to 650 square miles in Chittagong,
and to 16,500 square miles in Bihar — in all 19,500 square ' miles;

SIR OH ARLB8 ELLIOTT. 889

estimated to give employment to 5 parties during each of the years
1893-93 and 1893-94, and to 4 during the 3 remaining years. The
survey work in Orissa was expected to end in September 1894, and
in Chittagong in 1892-93 : while by the end of 1895-96 the Bihar
parties should have finished north Bihar, and should be free for
employment else\^here. The survey of the Western Duars was
completed by the end of the cold weather of 1891-92. The total
cost on account of surveys during the 5 years was estimated at
Rs. 33,22,000, the rate for cadastral surveys being taken at Rs. 140
per square mile for Orissa, Rs. 130 for Chittagong, and Rs. 120 for
Bihar ; the rate for traverse survey for those parts of the country
respectively being calculated at Rs. 40, Rs. 60, and Rs. 40 per square
mile. In previous survey-settlement opperations it had seldom been
found possible to keep the cost down to these rates, but the appoint-
ment of a Director of Surveys for Bengal (Colonel Sandeman) was
expected and did not fail to help to diminish the rate of charge.
The total cost on account of settlement and record of rigflts in
Orissa, Chittagong, Bihar, the Western Duars, and petty operations
under district officers during this quinquennial period, was estimated
at Rs. 34,66,000, of which Rs. 20,00,000 would be incurred in Bihar
only. The settlement operations in Orissa were calculated to end
in 1895-96, in Chittagong in 1894-95, in the Western Duars in 1893-94,
while the preparation of a record of rights in north Bihar would
extend beyond the 5 years, and according to the programme should
be completed in 1897-98. The estimate for the entire survey and
settlement charges to be incurred during the 5 years 1892 — 97
amounted therefore to Rs. 67,88,000. The Government of India
consented to the whole of this expenditure being excluded from
the Provincial contract and debited to Imperial revenues. This was
to take the place of the arrangement previously in force under which
, the only Imperial item was the cost of traverse surveys.

The chief new survey-setdement work undertaken during the
Tho cadastral sur. y^^ 1 89 1 -9 2 was the resumption of the project of
▼ey in north Bihar, carrying out a survey and settlement of Bihar under
the Bengal Tenancy Act. This project had long been before the
Government. It had been approved by the Government of India
and the Secretary of State, and it was only not commenced in
1889 because, of the temporary scarcity from which the Division

890 BENGAL UNDBR THK LI BITTIlfAirr- GOVERNORS.

was then suffering. This obstacle being removed, the project was
revived by Sir C. Elliott in July 185 1, in a letter in which, while
advocating the measure as in the highest degree beneficial to all
parties interested in the land, he warned the Government of India
that it would be unpopular wiih those who had to pay for it, and
would excite a strong spirit of opposition. He trusted, however, that,
as the advantages of the record of rights became known, this opposi-
tion woulJ gradually disippcir. With a view to confine the opera-
tions to manageable dimensions, it was proposed to deal at first with
only the 4 districts of tlie Patna Division on the north of the Ganges,
which contained an area of 12,500 square miles and would afford
work for 5 years for 3 survey parties. l*he cost was calculated at 8
annas an acre, of which the Government of India were expected to
pay the charges of the traverse survey. The total estimate was,
therefore, about 40 lakhs, of which about 5 lakhs would fall on
Government and the remainder be divided equally between the
zamimlars and the raiyals. It was proposed that the traverse survey
should commence in the winter of 1891-93, and the cadastral work
in Ocioher 1893. The Government of India considered the measure
indispensable for the effective administration of the province and for
the protection of the agricultural classes of Bihar : —

'^His Excellency in Council is also impressed with the belief that no
opportunity for setting the project on foot more suitable than the present
is likely to be found. The task is one which, from its magnitude and
importance, is not likely to be successfully undertaken by a Lieutenant-
Governor whose term of office is nearing its close. Sir Charles Elliott
has only recently acceded to the Government of the province ; his special
experience in other parts of India and his known mastery of the subject
mark him out as exceptionally competent to direct the administration of
an undertaking which involves the survey and record of rights in a large
territory ; moreover, he h.is fully satisfied the Government of India that
he clearly understands both the difficulties which have to be surmounted
and the advantages which are to be gained in carrying out the measure.
After full consideration the Government of India accept the view that the
results of the project will be worth the trouble and the risk which it will
entail, and Sir Charles Elliott may, subject to the Secretary of State's
approval of the scheme, count on receiving their fullest support in bis
conduct of the undertaking."

The Government of India accepted the charge of i of the total
expenditure as representing the cost of traverse surveys^ and gave

SIR CHARLfS ILLIOTt. 891

their general assent to the arrangements proposed by Sir C. Elliott,
who took an early opportunity to publicly notify, from Arrah
in November 1891, the objects and intentions of Government in
carrying out this undertaking. The object of the cadastral survey
and settlement were declared to be to provide all persons interested
in the land with an accurate record of the area and situation of
all villages and estates, ol each tenure and of each raiyafs
holding within an estate, and the status of every one who had rights
in the land, and of the rent paid by each raiyat and tenure-holder.
The advantages which would accrue to both zamindars and raiya/s,
and the charges to which they would be liable for the costs uf the
proceedings, were at the same time explained. A published Resolu-
tion of Government, stating the results of the survey and settlement
of 3 large Wards' estates showed how little litigation, comparatively
speaking, had been caused, and how fully the expense had been
recouped to the proprietors by the additions to their rent-roll which
had been obtained by them on the discovery of the increased areas
held by the raiyais. In November 1891 the Survey Department pro-
ceeded to MuzafFarpur to resume the traverse survey, where tlie ex-
perimental operations of 1886 had terminated. Work actually com-
menced on the 19th December i89i,butthe survey party did not
muster in full strength until January 1892. By the end of March
1893 the party had completed the traverse survey of 743 miles. As
was anticipated, considerable opposition to the measure was experi-
enced. Meetings were held and resolutions passed at several of the
towns in Bihar, objecting to the survey ; the Maharaja of Darbhanga
presided at such a meeting in November 1891 ; and memorials were
addressed to the Lieutenant-Governor and the Government of India.
In answering these memorials, and also in his replies to addresses
presented to him, Sir C. Elliott endeavoured to allay the agitation by
explaining the advantages which would accrue to all parties concern-
ed, and the efforts which Government was making to keep expendi-
ture low, to prevent frauds and oppression by the underlings. It
was partly with this object that in March 1892 a meeting was held at
Muzaffarpur, under the presidency of the Commissioner of the
Division, at which the Maharaja of Darbhanga and a number of
the principal indigo-planters, zamindars, and leading gentlemen of
Tirhut were present, to consider Colonel Sandeman's plan of carry-

S92 BENGAL UNIXfiR THE? LIKUTENANT-GOVBRNORS.

ingoutthe survey operations by the agency oi • pa/warts . specvMy
trained for the purpose. In accordance with the decision then arrived
at, measures were taken to afford instruction to .a selected number of

pa/waris during the recess of 1892. Soon after the traverse survey
had been commenced^ the consent of the Secretary of State to the
plan of operations, which had been laid before him, was. received,
and was generally made known to the persons interested, in the
replies given to memorials against the cadastral survey of North
Bihar. The cadastral survey was not set in hand till the end of
October 1892. In that month a joint memorial of various Associa-
tions was submitted, containing the fullest and most weighty protest
advanced by the landowners : each , of the objections was fully
answered by Sir C. Elliott. '*The measure . which has been under-
taken in Bihar, is a necessary corollary of the Permanent Settlement
and not a violation of it, and if the experience of all other provinces
of India, and of those parts of Bengal which have enjoyed the
blessing of a regular settlement, goes for anything, there can be little
doubt that in a few years the landowners of Bengal will come to see
the advantages of the very system which they now desire to see
summarily abrogated.*' The survey-settlement work then went on
steadily in North Bihar. By the end of March 1893,. 1800. square
miles had been traversed in Muzaffarpur (including 803 sq. miles
done in 1885-87), iioosq. miles in Champaran, and 213 in Saran.
Similarly in Orissa, Chittagong, and the Maharaja of Hill Tipperah's
estates, the survey-settlement proceedings, in their several stages,
were in active progress in 1891-92, and until the end of Sir C.
Elliott's time : other operations were completed from time to time
and the results published. The outturn of survey work by pro-
fessional agency during 1892-93 amounted to 4712 sq. miles of
traverse survey, 2290 sq. miles of cadastral survey, 327 sq. miles of
forest survey, 556 sq. miles of topographical survey, besides 187 sq.
miles of skeleton boundary survey. Settlements of revenue or
rents were at the same time carried on over 6600 sq. miles tem-
porarily settled tracts and Government estates, 1337 sq. miles of
Wards' estates, and 121 sq. miles of private estates. Survey-settlement
work cost over 20 iak^s up to the end of September 1892. During
the year. 1893-4 the area under, survey and settlement was further
increased, additional work being undertaken in Palamau and Graya,

SIR' CHARLSS ILLIOTT. 893

On the I St September 1893 a memorial was received signed by

5 bodies in combination — the British Indian Associa-
tion, the Bihar Landholders' Association, the Indian
Property Association, and the Zamindari Panchayat — in which the
legality, necessity, and utility of the settlement-survey and the record
„, . _ „ of rights were called in question. This memorial

Sir A. F. Mac*

DonnoU's Minute ^^g forwarded to the Government of India on the

on the Bihar Ca*

daetrai Surrey. jjg^ September With a long and comprehensive
Minute by Sir A. P. MacDonnell, then Officiating Lieutenant-Governor,
in which he traversed all the allegations made and traced the history
of the question from the time of the Permanent Settlement In the
final paragraph he summarised his conclusions as follows : —

(i) that in these provinces raiyats were from the earliest times
entitled to have a record of their rights in their holdings prepared at
the landlords' expense ;

(3) that it was the duty and intention of the Government from
the earliest times to establish a record of rights ;

(3) that the ^raiyats of Bihar had grievously suffered from the
nonfulfilment of that duty and intention ;

(4) that the rentals of Bihar landlords had within 3 generations
increased to an amazing extent (the figures showed eighty-fold), and
out of all proportion to what was contemplated at the time of the
Permanent Settlement, or to what was justifiable by any subsequent
legislation ;

(5) that this increase in rent, and the destruction of razya// rights
which it entailed, had reduced the raiyats of Bihar to an extreme
stale of poverty and depression ;

(6) that illegal enhancements of rent were still going on, and that
the same abuses existed in Bihar, and the same necessity for a record
of rights, as before the Tenancy Act was passed ;

(7) that, without a cadastral survey and record of rights main-
tained up to date, these abuses could not in Bihar be adequately
and permanently checked ;

(8) that a cadastral survey and record of rights, wherever under-
taken, had proved an immediate remedy for such abuses as existed
in north Bihar, and that they had, far from stirring up litigation and
strife, produced peace and goodwill between landlord and tenant ;

(9) that the proposals which he had made for the creation of a

894 BENGAL UNDKR THE UB0TJBNANT-GOVIRNORS.

Land Record agency were justified alike by law, expediency, and
moderation ; that the cess proposed, ^th anna (or one farthing) per
rupee of rent, was not only moderate in itself, but must be regarded,
not as fresh taxation, but as a great alleviation of a legal obligation
which rested upon zamindars ; that the annual incidence of this cess
on the land would not exceed one anna (one penny) per acre, pay-
able half by the landlord and half by the tenant ; and that for such
an insignificant charge the landlord would be able to recover arrears
of rent through the Civil Court more speedily than at present, while
the raiyai would secure protection against illegal demands and arbi-
trary eviction ;

(lo) that it was not incumbent on the Government to make, at
the expense of the general tax-payer, any large contribution to the
expenses of operations rendered necessary by the laches of landlords,
whose income from the land had, largely through extra-l^gal means,
increased enormously in 3 generations, and who contributed far less
to the public exchequer than landlords similarly circumstanced in
any other part of these provinces or perhaps of the Empire ;

(i i) that the memorial of the zamindari Associations submitted
to him for transmission to the Secretar}' of State was inaccurate on
all material points.

On the 21 st October the Government of India conveyed to Sir
A. P. MacDonnell their thanks for having '' d|iLwn up* so able and
masterly a review of the situation, and at the sarafe time so convincing
an exposition of the administrative necessity of maintaining, on
behalf of the raiyats of Bihar, an accurate record of rights." On the
14th December 1893 the Secretary of State for India, in dealing
with the memorial, referred to Sir A. P. MacDonnell's Minute as a
''clear and comprehensive statement of the reasons for undertaking,
prosecuting and maintaining a survey and record of rights in the
districts of north Bihar" ; and decided that he would not depart from
his predecessor's decision that a sun'ey should be made and a record
of rights prepared for the 4 districts in question, as he was unable
to see grounds for stopping the proceedings in the manner suggested
by the joint memorial.

Sir C. Elliott suggested a system in June 1892, not for the

Kmpioymtnt of ^^fi^^^^ maintenance of the settlement record as it

I'*'**'""- was maintained by annual revision in other provinces.

SIR CHARLI8 BLLIOTT. 895

but for making the registration of successions and transfers of
occupancy rights easy and compulsory, by the multiplication of
registration offices, and by imposing certain penalties and disabilities
on those who failed to register. This suggestion remained under
discussion for nearly a year, and before he took leave in 1893 he was
aware that the preponderating opinion of the Bihar officers was that
complete and efficient registration of all transfers could not be hoped
for under this scheme. At this stage Sir A. P. MacDonnell took up
the question and decided to recommend more thorough and drastic
provisions for keeping the record up to date by periodical corrections
and record of all changes. A draft Bill was drawn up under his
orders, which provided for the creation of an establishment of Land
Record keepers and Land Record Inspectors, and of Supervising
Officers to superintend their work, and, as patwaris would be no
longer required to submit village accounts to Government, it was
proposed that the patwari Regulations should be repealed. All
transfers of, and successions to, proprietary rights, tenures, raiyati
holdings at fixed rates, and occupancy holdings, were to be reported
to the Land Record-Keepers, holders of estates and tenures, and
cultivating raiyats were to submit periodical returns showing the
changes to be made in the records, and the Land Record ageney was
to verify such reports and returns by local inquiry. To meet the ex-
penses involved, the Bill provided for the levy, from proprietors,
tenure-holders, and raiyais^ of a cess not exceeding ^th of an anna in
the rupee of the annual value of the lands. The Government of
India, while provisionally approving the principles of the Bill, were
of opinion that the importance of the subject rendered it desirable
that it should be examined by the light of the best experience
that could be brought to bear upon it. A general Conference
was accordingly held in the beginning of January 1894, at which
officers from the N. W. Provinces, the Central Provinces, Assam,
and Bengal, as well as Mr. Gibbon, Manager of the Bettia Raj,
and Mr. Macnaghten, Secretary, Bihar Indigo-planters' Association,
were present. The draft Bill was approved with certain minor
alterations, and then referred for opinion to the Bengal Govern-
ment by the Government of India. Sir C. Elliott, who had
then returned from leave, considered that, although the Bill was
sound in principle and would be thoroughly acceptable in other

696 BENGAL UNDSR THB LIBUTBNANT^-OOVIRNORS.

•

provinces of India where an efficient body of patwaris^ appointed
and paid by Government, existed and where people had become
accustomed to filing village accounts and seeing them periodically
revised, great weight must be attached to the special conditions in
Bengal, which militated against the introduction of such a system.
He dwelt on the irritation which would be caused in the minds of
zamindars and tenants who had hitherto been unaccustomed to the
periodical visits of Government officials for the purpose of inquiring
into changes in the rent-roll : on the difficulty of organising a
new body of officials appointed to carry out a new set of dudes,
and on the labour which the supervision of their work would entaul
on the district officers; and above all on the unpopularity of
introducing a new cess, however light. He adhered to his original
opinion that it was sufficient, at least in Bihar and for the present,
to rely on the cadastral record once made, and to revise it in a
similar manner after the lapse of 3o or 30 years — ^a measure much
less expensive than the creation of the proposed establishment. As
regards the interval between the surveys, he was for facilitating the
registration of transfers and successions, and doing what could be
done to make it compulsory, as proposed in one part of the Bill.

In a despatch dated the 5th July 1894, orders were received from
the Secretary of State, approving the scheme advocated by Sir C.
Elliott and inter alia agreeing to the latter's proposal that the Bill
to provide for the scheme for the Maintenance of Records might
also provide for the repeal of the patwari Regulations. The Govern-
ment of India, jn forwarding the Secretary of State's despatch to
the Government of Bengal, expressed their unwillingness to abandon
a valuable agency that cost nothing to Government, to deprive the
raiyais of what was often a protection to them and to forfeit a valu-
able vantage ground in the future maintenance of the record of
rights, unless something as good or better was provided to take the
place of the Regulation patwari. The Board reported that it would
be inexpedient to repeal the patwari Regulations unless and until
provision was made by law for the creation of a better village or
local peripatetic agency for the maintenance of the records.

Sir C. Elliott retained his opinion that the position of the patwari
in Bihar was untenable and mischievous, and thought that his legal
status under the Regulations ought to be abolished. He considered

SIR CHARLES ELLIOTT. 897

it to be conclusively established that the unreformed paiwari (in his
present condition) was an instrument which could not be employed
effectually for the purpose of keeping village accounts or maintaining
the record, and he never had any intention of utilizing the paiwari
(as the Board proposed) in finding out and reporting mutations :
as he also thought that nothing would be gained by retaining the
paiwari as a nucleus of further reforms, he was anxious to repeal
the paiwari Regulations. After consulting the Collectors of the
Patna Division and the Commissioner, nearly all of whom were
unfavourable to the retention of the paiwari in his existing status.
Sir C. Elliott on the 2ist December 1894 urged the Government of
India to allow the repeal of the paiwari Regulation. But the Viceroy
decided, for the above reasons, not to repeal it and directed the
clause drafted to repeal it to be struck out of Sir C. ElNott's Bill for
the Maintenance of the Record of Rights. The net result of the
controversy was that Bihar was protected trom the utilization of the
paiwari \Xi the maintenance of the record of rights.

The Secretary of State, in approving in the despatch of the 5th
The maintenance J"ly 1 894 the schcmc proposed by Sir C. Elliott,
reco conveyed his consent to the introduction into the

Legislature of a Bill for the Maintenance of the Record of Rights in
Bengal, accompanied with the proviso that no fresh tax should be
imposed, and with the permission that the Bill should provide for
(1) the maintenance of the record, (2) the levy of registration fees,
and (3) the recovery- of the initial cost of survey and settlement by
means of a temporary cess. A Bill was prepared in accordance with
ihese instructions, the main principle of which was that facilities
should be given for the compulsory registration of all changes by
transfer or succession in the record of tenants' rights^ and that failure
to register should be visited by self-acting disabilities as well as by
direct penalties. The procedure of the Indian Registration Act
(III of 1877) ^^^ adopted as far as possible, and the machinery for
carrying out the procedure was to be provided by a large inultiplica-
cation of Rural Sub-Registrars, to carry on the duties of Registrars
of Mutations under the Bill. In the part of the Bill which dealt with
the recovery of the initial cost of survey-settlement by means of a
temporar}' cess to be levied rateably per acre from the zamindars and
tenants of various descriptions concerned, some simple s^mendments

89^ BENGAL UNDM TH« LIKUTIOIANT^OyKECNORS.

of tha existing law were made to remove difficulties which had been
found by experience to exist. The Bill was introduced by myself into
the Bengal Legislative Council on the 19th January 1895, and was
referred to a Select Committee who reported on the 3rd April 1895.
The Hill as revised by them was debated in Council on the 13th April
1895, was passed with small amendments, and became Act III
(B. C.) of 1895. It provided for the maintenance of records of
rights in* land, in the surveyed areas to which it might be extended, by
requiring all classes of privileged tenants to register all mutations
of tenant-rights whether due to succession or transfer. The regis-
tration of mutations of the rights of non-occupancy raiyats and of
under-rai^a/j was left optional. Measures were then adopted to
bring the Act into effect, and steps were taken to open offices for
the registration of mutations at Hajipur and Lalganj in Muzaffarpur
and Bettia in Champaran, where records had been finally published
under the Tenancy Act.

During the survey year 1894-95 (from October 1894 to September

1895) the work of survey and settlement was in

Ghiof tracts under . i. .

surrey and satUe- progTcss m J entire distncts and 20 estates or por-

ment.

tions of districts comprising nearly 19,000 sq. miles,
or about J of the entire province. The major settlements were the
4 temporarily-settled districts of Cuttack, Puri, Balasore, and Chitta-
gong, in all of which the land revenue had to be re-assessed ; also
the 3 districts of Saran, Champaran, and Muzaffarpur in North Bihar,
the Palamau Government estate, the Tikari Ward's estate, the
Maharaja of Tippera*s estate, the Darjeeling tarat^ and the Govern-
ment estate in Singhbhum, known as the Kolhan. All these survey-
settlement operations proceeded throughout the year without friction
or disturbance among the agricultural population. Sir C. Elliott
inspected many of the settlement camps in the course of the year,
and found that an intelligent interest was taken by the parties con-
cerned in the proceedings, and that care was shown in explaining the
meaning of the operations and what was required of each individual.
The cost of survey and settlement incurred by Government from
the beginning of the operations up to the 30th September 1895 in
Orissa, Chittagong and the Western Duars — the 3 principal areas
under settlement of land revenue — increased from nearly 32 lakhs
to 36 lakhs of rupees.

SIK CHARLKS KLLIOTT.

899

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900 BSNQAL UNDKR THS LIEUTENANT- G0VERM0R8.

From 1 8909 1 to 1894-95, the whole area traversed by the theo-
dolite was 18,822^ sq. miles, the figures being as follows : — Cadas-
tral survey with records 1^,159^ sq. miles; cadastral survey without
records, 1,034 sq. miles; skeleton boundary survey, 1,752 sq. miles;
city survey 15 sq. miles ; topographical, 1,737 sq. miles; forest 501 sq.
miles; aggregate outturn, 17,198^ sq. miles. In the outturn of cadas-
tral survey are included the revision of previous cadastral surveys of 958
sq. miles and the revision of the previous records of 417 sq. miles.

From the results up to date of the record of the status and rents
of tenants in 3 districts certain economic facts had com^ to light
The quantity of land held as proprietor's sir, and the area under
non-occupancy tenants, were wonderfully small compared with an
average district of the N. W. Provinces. The area under settled
raiyats was very large and testified to the benefits conferred by the
Tenancy Act. Thus the settled raiyais held in Muzaffarpur 75*36
per cent, of the holdings, in Champaran 77*42: in Saran 80*07.
Raiyais of this class were paying an average rent, per acre, of
Rs. 3-10-7 in Muzaffarpur and Re. 1-7-5 ^^ Champaran : occupancy
raiyats were paying Rs. 4-12-3 per acre in Muzaffarpur: non-occu-
pancy raiyais were paying Rs. 4-6-7 per acre in Muzaffarpur and
Rs. i-ii-o in Champaran. Though the figures were incomplete they
tended to dispel the impression that the north Bihar raiyai was a
down-trodden and rack-rented creature.

In the Western Duars the result of the settlement, as reviewed by
Government in July 1895, showed that the resident jotedars formed
far the largest body of the tenants and paid an average revenue of 1 5
annas 7 pies per acre : their permanent under-tenants paying Re. 1-5-1
per acre as rent Of the increase of revenue obtained ^ths were due
to increased area brought under assessment, ^th to increased rates.

Up to the present timejthe orders of Government have not been
passed upon the Chittagong and Orissa settlement reports, and the
work in north Bihar is not yet completed, so that it is impossible to
give even the briefest summary of the economic facts emerging from
these great settlement operations.

Originally the Government of India undertook to bear ^th of the

ApportionTnent ^^^*^ expenditure on the survey and record of rights

JJ^ ^n*7rt*h *" north Bihar as representing the cost of the

^***^- topographical part of the survey, the remaining j^s

SIR GHABLBS BUiIOTT. 901

being divided equally between the ratytf/x and their xamiWarx. In
July 1894, the SecreUry of State decided that the Sute share should
not be less than } of the total expenses, the additional ^ being given
in reduction of the ratyais' share of the expenditure. Under these
orders the cost of the survey and record of rights in north Bihar were
to fall, \ on the Government of India, ^^ on the raiyaU, and /^ on
the zamindars. It was proposed to commence recoveries from the
beginning of the field season, 1 895-96, and instructions were issued
accordingly. The term " zamindars " was held to include tenure-
holders of a proprietary character, of whom permanent tenure-holders
were to pay the whole of the proprietary share of the costs, while for
temporary tenure-holders a sliding scale was laid down, distributing
the share between them and the proprietor, according to the unexpired
period of the lease. Rent-free tenants were to pay both the landlords*
and tenant's share of the costs. Under-ratya/s and non-occupancy
raiyais were altogether exempted from payment. For Champaran
as well as Muzaffarpur a rate of 8 annas an acre was taken as the
basis for apportionment. On this basis, the tenants' and landlords'
shares were to be respectively 30 and 42 pies per acre. Recoveries
were to be taken in hand only where the record had been finally pub-
lished, and, up to the end of September 1895, the operations had
been so completed in 768 villages with an area of 250 sq. miles in
the district of Muzaffarpur, and in 247 villages, comprising 400 sq.
miles, in Champaran. The share of costs of each proprietor was to
be collected from him when his copy of the record was handed to
him or else recovered from him afterwards under the provisions of
the Public Demands Recovery Act. It was estimated that the re-
coveries in the financial year 1895-96 in the 2 districts would amount
to about Rs 7?,ooo.

In reviewing, on the eve of his retirement, the survey and

iluestion of extend- Settlement Teports for the year ending 30th Sep-

'"w"t«Imeittto tember 1895, Sir C. Elliott observed that the

•outh liihar question would soon arise whether, when the survey
and preparation of a record of rights were completed in the 4 districts
of north Bihar, the operations should be extended to south Bihar
or to the Bhagalpur Division, and he recorded his opinion that they
should be so extended. He believed that the work already done
had « to. a great extent dispelled the fears and suspicions with which

902 BENGAL UNDRB THB LIEUTBNANT-QOTSRNOR8.

the undertaking had at first been viewed. The raivats were learning
to regard the record of rights as a valuable protection of their tenure,
and the zamindars had begun to realise that it gave them a useful
opportunity of securing a reasonable enhancement of rent, especially
where cultivation had extended. The indigo planters had always
perceived the advantage they reaped by obtaining accurate know-
ledge of the rights and position of the parties with whom they had
to deal, and the vague alarms felt as to the irruption of a great
flood of litigation and as to the imposition of a heavy burden of
expenditure had been to a great extent dissipated. Sir C. Elliott
trusted the blessings conferred on the districts of north Bihar might
in course of time be extended to all Bengal. The Board of Revenue
were asked for a Report as to the need of extending these operations
to south Bihar, and the advisability of doing so generally.

On the 26th January 1891 His Imperial Highness the Grand
viflit of the Duke Cesarewitch of Russia, (who became Emperor

Ceaarewitoh. Nicholas II in 1894) accompanied by His Royal

Highness Prince George of Greece and His Imperial Highness
the Duke George Alexandrovitch of Russia, arrived at Calcutta as
the guests of the Viceroy. They were received at the Howrah
Railway Station by His Excellency, and with all honours during
their visit of a few days.

The third decennial Census of Bengal was held on the night of the
The Conaua of 26th February 1891. For some months before this
^^^' date the local authorities had been at work preparing

and revising village lists, counting the houses in each village, marking
out Census blocks, appointing and training enumerators. The pre-
liminary enumeration was completed in all cases by the 1 5th or 20th
February. The actual Census was effected by the enumerator verifying
the presence of the persons already entered in his schedule book,
and making the necessary erasions and additions in the case of
absentees and of new arrivals. This work was efficiently and carefully
carried out Only 154 of the total number of enumerators, who
Aggregated nearly 400,cxx>, were paid. The enumeration was com-
pleted without any disturbance. The cost of enumeration was
^- 79)354 or Rs. 1,075 P^r million of population as against
Rs. 1,73,849 or Rs. 2,475 per million in 1881. The work of abstrac-
tion and tabulation was carried out at the head-quarters of eftch

SIR CHARLES ELLIOTT. 90S

district instead of at 3 centres only, as in the previous Census* The
cost of compilation was estimated at Rs. 6,15,000, against Rs. 6,54,000
in 1881.

The main results of the Census of 1891 were thus summarised.

In eastern Bengal the population had increased by 13^ per cent.,

owing, for the most part, to the general prosperity of the country,

comparative freedom from severe outbreaks of epidemic, and to

immigration from Bihar and central Bengal. In northern Bengal the

high-lying tracts showed an advance of more than 6 per cent., but

over a large extent of country lying at the foot of the Himalayas and

on both banks of the Ganges the population had declined. In

western Bengal there had been a great growth in manufacturing and

mining centres, but a loss in tracts affected by malarious fever. On

the whole, however, western Bengal was more healthy than it had

been 10 years before. North Bihar was overcrowded, while south

Bihar showed a slower rate of increase than north Bihar owing to the

greater relief afforded by emigration. The aboriginal races of Chota

Nagpur and the Sonthal Parganas had increased by large numbers.

Considering the population according to administrative Divisions, it

was found that the population of the Burdwan Division had increased

from 7,393,954 to 7,668,818, or by 3*98 per cent. ; of the Presidency

Division from 8,211,986 to 8,512,630, or by 366 per cent. ; of the

Rajshahi Division from 7,726,701 to 8,019,187, or by 378 per cent. ;

of the Dacca Division from 8,705,916 to 9,844,127, or by 13*07 per

cent.; and of the Chittagong Division from 3,569,071 to 4,190,081,

or by 1770 per cent. The Patna Division showed an advance from

15,060,993 to 15)790,737, or of 4*84 per cent., and the Bhagalpur

Division from 8,066,111 to 88,582,490, or of 6*40 per cent. The

population of Orissa had increased from 3,628,832 to 3,877,755, or

by 6-85 per cent., and of Chota Nagpur from 4,225,989 to 4,638,238,

or 975 per cent. The total population of Bengal, including the

Tributary States of Orissa and Chota Nagpur, Hill Tippera and

Kuch Bihar, had risen from 69,536,861 in 1881 to 74,643,366 in

1891 — an increase of over 7 per cent.— of whom 37,236,485 were

males and 37,406,881 females, ""giving an average density to the

square mile of 398 persons. Between 1881 and 1891 the Hindus

increased from 45,452,826 to 47,821,468, and the Muhammadans

from 21,704,724 to 23,658,347.

90i BBNGAL UNDER THE LIEUTENANT-GOVBRNOE&.

By the incorporation with Calcutta of the greater part of the area
of the Suburban Municipality, a considerable extension was made to
the town. The area formerly included in Calcutta was termed the
" old town/' while that recently amalgamated with it was known as
the '' added area/' The results of the Census of Calcutta showed
that the population of the old town had risen from 401,671 to
436,393, while that of the added area amounted 10213,008. This
latter total could not be compared as a whole with the figures for
1881, owing to the division of wards brought about by Act II (B. C.)
of 1 888, portions having been added to Calcutta and other portions
having been joined to various municipalities. The population of
the Fort had fallen from 28,200 to 26,589, and that of the Port
and Canals had slightly increased from 28,200 to 28,691. The total
population of the Town of Calcutta, together with the Fort, Port
and Canals, thus stood at 681,560. In the Town there were 428,762
Hindus, 189,226 Muhammadans, and 26,406 Christians ; in the Fort
there were 1,441 Hindus, 597 Muhammadans and 1251 Christians;
and in the Port and Canals the numbers were 13,934 Hindus, 13.350
Muhammadans, and 1,340 Christians. The proportion of Hindus
to the total population of the town had increased, and that of
Muhammadans had decreased since the last Census. The chief
castes of Hindus were Brahmans and Kayasths, both over 55,000,
Chamars and Kaibartas over 20,000, and Goalas and Subamabaniks
close on 20,000, while of the Christians 9,323 were returned as
Europeans, 9,803 as Eurasians, and 6,620 as natives. Of the
population of the town, 64 per cent were males and 36 per cent,
females. The education tables showed 33 5 per cent, of the males
and 8*3 per cent of the females as either under instruction or as
literate. As regards birthplace, 207,165 persons were shown as
born in Calcutta and 55*475 in the 2^-Parganas district, the total of
these amounting to 40 per cent, of the population of the town.
Over 20,000 persons were returned as natives of each of the follow-
ing districts : — Hooghly, Gaya, Burdwan, Midnapore, Patna, and
Cuttack.

The Report on the Moral and Material Progress and Condition of
/if ^I'a for the 10 years ending 1891-92 gave the principal statistics
for Bengal as follows : —

Area. 151,543 square miles ; population, 71,346,987 ; mean density,

SIK CHARLBS 8LLIOTT. 905

471* to the sq. miles; 146 towns; 227,019 villages; 13*592,154
occupied houses : and ' contained the following passage : — *' The
Bengal of the present day is the most populous charge in India, and
the Lieutenant-Governor is responsible for the management of a
population of 71,346,987, or considerably more than that of the
United States of America at their last Census of 1890. Taken by
the historic divisions, Bengal Proper contains a population in round
numbers of 40,400,000 ; Bihar, of 2i,265,ooo,^and Orissa, as received
from the Marathas, of 4,047,000. Chota Nagpur returns 4,628,790
within the British portion of its area. The physical divisions are

Bengal. mnnt,. JUUnfaU, ^^^^^ '^ ^^« "^^S^*^- Speaking

Nartibem Beng^ .. 4*9 .. 8578 generally, the whole of the pro.
N^rSsihar" V. W St V. m"S viucc, cxcept north-westem Bihar,
choteNwur :; :: iS ;; S-m and occasionally Onssa, Ues witWn
°'*^ •• • *" • ^'^ a highly favourable zone of rain-

fall, and famine is practically unknown in Bengal proper. In Orissa
it prevailed on the historic occasion of 1866, and north Bihar was
visited* to a certain extent, in 1874. But, on the whole, Bengal is,
as the distribution of the population shows, a very fertile tract, and
in Chota Nagpur the light incidence of population is due less to
climatic defects than to the want of arable land which is so prominent
a feature in the hill tracts of Central India.

Some interesting facts connected with the water-supply of Calcutta
Calcutta water. ^^'"^ recorded in 1890-91, which are worth quoting,
supply. a Convincing proof of the close relation that exists

between the improvement of water-supply and the diminution of
cholera was afforded by the fact that during the 5 years 1866- 1870,
before filtered water was brought into Calcutta, no less than 18,422
deaths from cholera occurred in the town, being 8*5 per 1,000 of
the population as it then stood. With the introduction of the filtered
water the mortality during the next 5 years, dropped to 5,922,
or 27 per 1000. Between 1876 and 1880 a slight increase to
6,598 deaths, or 3*0 per 1,000 was observed, and in the 5 years
1 88 1 — 1885, when population was beginning to outrun the water^
supply, cholera mortality rose to 9,845 deaths, or 4*5 per 1,000.
Finally, the effect of the water-supply extension of 1888 was to
reduce the deaths from cholera during the 5 years 1886- 1890 to

* Bxduding fendatory States fto.

906 BENGAL UNPBR THB LIEUTENANT-GOVERNORS.

^»773> or 2*8 per looo on the existing population of the municipality.
In the 21 years, therefore, during ^hich the town was supplied with
pure drinking water the deatlvrate from cholera was decreased to a
little more than i of its former standard. At the close of the year
1890-91, the length of mains and services on the • filtered system
amounted to 231 miles, of which 47 miles were laid during the
year. The average daily supply per head of the population was 39*46
gallons in the town and 15 gallons in the added area. A new
pumping station, designed to supply the southern portion of the
added area, was commenced at Bhawanipur."

It will be convenient to group together here the frontier and

political occurrences of Sir C. Elliott's time. The

Ltuhai affairs.

punitive measures which had been adopted from
time to time against the hill tribes beyond the frontier having failed
to be sufficiently deterrent, the policy of controlling them from
within was determined upon ; a portion of the Lushai country was
annexed, and a new frontier district, with an area estimated at 24,000
sq. miles, was constituted from the ist. April 1891 under the Viame
of the South Lushai Hills, under a Superintendent. The Chittagong
Hill Tracts were converted from the ist. November 1891 into a
subdivision in charge of an Assistant Commissioner under the
direct supervision of the Commissioner of Chittagong. The troops
were withdrawn, but a detachment of 200 Gurkhas was left at Fort
Tregear about 45 miles distant from Lungleh. The exercise of
control over the subjugated hill tribes from within, and the presence
of troops at Fort Tregear produced a most salutary effect, so that
perfect tranquillity prevailed in the Chittagong Hill Tracts. The
future security of the tract was to a great extent dependent upon the
check which the Burma authorities would be able to keep on the
wild tribes on the frontier. There was again a scare in the Chengri
Valley, due to a rumour that Lienpunga was organizing a raiding
party ; but confidence was soon restored by issuing a proclamation
that Lienpunga and other Chiefs under him had been deported.
Twenty-eight captives were recovered. Captain Shakespear's first
efforts as Superintendent were directed to the dislodgment of the
Chief Jakopa, at whose hands his predecessor had sustained a serious
reverse a few months before. The expedition undertaken was com-
pletely successful ; Jakopa's village was destroyed, he himself fled

SIR CBARIiBS KLLIOTT. 90?

far away, and never attempted to return. The result was the final
subjugation of the Molienpui tribes. A darbar was held at Lungleh
January 1892, at which all the hill chiefs who attended swore friend*
ship with one another ; the Superintendent and his officers toured
about, and a meeting with Mr. McCabe, Political officer, North
Lushai Hills, took place at Kairuma ; the boundary was settled between
the north and south Lushai hills; the Shindu chief Dokola was
captured and deported to Hazaribagh. The serious disturbances of
March- April 1892 in the Howlong country, on the northern frontier,
were put down with the assistance of a column sent from Fort White
by the Chief Commissioner of Burma. In the beginning of March
Captain Shakespear heard of the attack on Mr. McCabe at Lalbura's,
and marched northwards to assist or relieve him. He was, however,
able to get no further than Vansanga, when the whole country rose
in arms, and after many skirmishes with the enemy he was compelled
to entrench himself in Vansanga's village. There he kept all the
hostile chiefs fully employed, and so prevented them from joining in
the combination which was harassing the Aijal force ; but he was not
able to cross the frontier or to return without a loss of prestige which
would have been fatal to the security of the British power in these
hills. Meanwhile the enemy constantly attacked Vansanga's village,
attempted Lungleh itself, and spread themselves over the lines of com-
munication, threatening Demagri, attacking the forts at Tinchang and
Lalthuma in force, cutting the telegraph wires, destroying ferries
and bridges, and occasionally shooting or cutting up transport
followers and sepoys on the roads. At this period co-operation was
afforded from Burma and a column marched from Fort White and
effected a junction with Captain Shakespear. The combined forces
then did all in their power to inflict effective punishment. Owing to
the want of provisions occasioned by difficulties of transport, they
had only 5 days at their disposal, but in this time they punished
several villages, and the country was reduced to quiet and temporary
submission. The Lushais were cowed by the sudden and unexpected
appearance of reinforcements from the Burma side. The column
which had thus rendered such valuable service marched on to
Lungleh, and then to Chittagong, where arrangements were made
for their return to Rangoon.

With the departure of the Burma column the active opera*

908 BENGAL UNDER THB LIBUTBNANT-OOYEBNOBS.

tions of the season closed. The hardships of the campaign,
due to the unfavourable weather, the sickness among the troops, the
want of roads, the distances to be traversed, and the difficulties of
transport, were excessive and in the face of all these adverse con-
ditions, the services of both officers and men deserved high com-
mendation.

In January 1892 a conference, of which Sir C. Elliott was a
member, met at Calcutta to examine various questions relating to the
country of the Lushai tribes. He strongly supported the proposal
that the whole of this tract of country should be brought under one
administration, and preferably that of Assam, and it was subsequently
decided that the south Lushai bills should be transferred from Bengal
to Assam as soon as possible. It was also decided that the Chittagong
district should be transferred from Bengal to Assam as soon as the
settlement operations then in progress had been brought to an end,
and that, if it was found that there were difficulties in the way of an
immediate transfer of the entire district, the subdivision of the Chitta-
gong HilUTracts should be transferred in advance of the rest. The
transfer of the whole of the Chittagong Division to Assam was, more-
over, in contemplation. The South Lushai Hills were in September
1895 included in Lower Bengal under 28 and 29 Vic. c. 17. s. 4
and eventually transferred to Assam from the ist. April 1898.

After the departure of the Burma Column in May 1 892 active
operations ceased ; but, though the hostile Lushais were cowed, and
their power scattered and broken, they were not crushed. The chiefs
who rose against the British power were still independent and pre-
pared to take the earliest opportunity of revenging themselves, and
rumours were rife of their intention to attack the friendly tribes, and
even Lungleh itself. It was therefore decided, after full consideration
in December 1892, to despatch a punitive expedition, consisting of
400 Gurkhas, 2 mountain-battery guns and 150 rifles of the i6th
Bengal Infantry, for the protection of friendly villages, our convoys
and communications, and to impress on the native tribes once for
all a sense of British supremacy. This force, acting in concert with
a column from Fort Aijal, completely effected its object, and, without
meeting any resistance, established the authority of Government
throughout the whole tract of country where it had been resisted, and
returned to Bengal in February 1893. The general condition of the

8IR CHABLBS £LLIOT<C 909

country, and the success attained in the payment of revenue and
fines, pointed to the fact that the Lushais had abandoned all idea of
combined resistance. An outpost was established at Lalrhima in
the heart of the Lushai country, on the boundary line between the
north and south Lushai territory, and the small force stationed there,
together with the disarmament of hostile chiefs, would, it was believed,
render it almost impossible for any serious trouble to again arise.

The year 1893-4 was on the whole peaceful. The Lushai chief-
tainess, Ropui Lieni, and her son, Lalthuama, who had been planning
an attack on Lungleh, were arrested by Captain Shakespear in August
1893, and detained in the Chittagong jail in acjcordance with
warrants issued under Regulation III of 1818. Loncheva and
Pavungat who had murdered an interpreter, named Shotingkara, in
March 1892, were tried by Captain Shakespear and convicted and
sentenced to transportation for life. Vasanga, another hostile chief,
who was detained at Lungleh, was captured under very trying
circumstances. A darbar was held at Lungleh at Christmas, at which
the Commissioner of Chittagong was present. It was largely attended
by the chiefs and their followers. The fines imposed - on the chiefs
were realized during the year, amounting in all to 1 30 guns, one
gyal and Rs. 950/- in cash.

The Raja of Sikhim was given permission to reside during the

rains at either Tumlong, Guntok, or Robdenchi.

Sikhlm.

He chose the latter place, and went there in Febru-
ary 1 89 1. In October the Council requested him to return to Guntok,
but he refused. Sir C. Elliott then issued orders that it was expected
of him that he would immediately return to Guntok, and also that his
eldest son should be brought for education from Tibet. If the Raja
failed to comply, all pecuniary allowances were to be stopped and in
the last resort measures were to be taken to bring him to Guntok.
The Raja ignored all the efforts of the Assistant Political Agent to
induce him to go there. In March 1892 the Raja left Pemionchi
ostensibly for his return to Guntok but in effect he endeavoured to
find his way into Tibet via Nepal: he was arrested as soon as he
crossed the border by the Nepalese authorities, who placed themselves
in communication with the Government of India, and eventually
escorted the Raja to Kurseong in the Darjeeling district, where he
was detained und?r surv^illaq^e throughout i892r93. The Raja took

91 0 BENGAL UNI>«lt THB LliBimCNAOT-GOVERNORS.

no part in the adminisitration of the affairs of the State, which were*
conducted by the Assistant Political Agent and the Council, acting
together in complete agreement. The Raja's, attitude for some time
remained unchanged, and he continued unwilling to return to Sikhim
under the conditions imposed by Government. He declined to write
to his eldest s6n, Tchoda Namgyel, who was still in Tibet, and exer-
cised his influence to keep the boy away. His younger son, Chotal,
who was recognised as the avatar ^ or incarnation, of the founder of
th^ Phodung monastery, was being educated with the family of Raja
Tenduk in Darjeeling, and allowed to make occasional visits into
Sikhim. In the meantime, affairs in Sikhim continued quiet, and no
change was contemplated in existing arrangements until the elder son
returned from Tibet or the Maharaja showed himself to be more
amenable to the authority of the British Government.

No change took place until the Raja was removed to Darjeeling
in April 1895, on expressing regret for his past conduct and subscrib-
ing to a document in which he complied unreservedly with the condi-
tions of the restoration imposed by Government ; he was subsequently
allowed to return to Sikhim. He also wrote to ask his eldest son to
return from Tibet. In the meantime suitable arrangements were
made for the education of his second son and for the establishment
of a school at Guntok.

In accordance with the convention of 1890 between Great
Britain and China, a trade mart was opened at Yatung on the Tibetan
side of the frontier. The place was unsuitable for a mart and offered
no attraction for traders ; but, though every attempt was made by the
Chinese Amban to induce the Tibetans to substitute Phari for Yatung,
it was found impossible to overcome their reluctance, and Yatung
was eventually accepted by both the Chinese and British Governments
as the only alternative to breaking off the negotiations altogether.
As Yatung was the mart thus established by treaty, it was not possible
that any change in the site could be sanctioned for the period of 5
years during which the treaty was to be in force. The spirit of the
treaty was violated by the erection of a solid stone wall across the
valley, the^te of which was closed to traders from the Indian side,
so that no interchange of trafHc such as was contemplated by the
treaty could take place. Notwithstanding these difficulties, there was
a large increase in some classes of the traffic, and the valine of the

SIR CHARLIES BLLIOTT. 911

imports of raw wool from Tibet increased in one year from
Rs. 3,02,498 to Rs. 4,98,593, and of musk from Rs. 3,343 to
Rs. 81,204.

Towards the close of 1894-95, a Commission, consisting of
British, Chinese and Tibetan representatives, was appointed for the
delimitation of the boundary between Sikhim and Tibet as defined in
the Convention of 1890, but the Tibetans refused to supply transport
for their party and the Chinese representative declared himself unable
to move. Three pilfars which were put up at 3 passes where there was
no dispute about the boundary were knocked down. After waiting
for some time in the expectation that orders from Pekin miglu over-
come Tibetan recusancy, the Comm ission was broken up in August
1895, and further proceedings abandoned for the time ; but it was in
contemplation to renew the demarcation in the following year.

While this Commission was unable to proceed with its work,
owing to the unwillingness of the Tibetans to send their delegates,
a claim was made by the Tibetans to lands lying within the Sikhim
boundary as laid down in the Convention with China, and on the
settlement of that claim it was hoped that the demarcation of the
boundary would be completed.

On the Raja's return to his capital, Guntok, in November 1895,
he was associated with the Council in the administration of the
State, which was conducted under the advice and general supervision
of the Political Officer.

In May 1891, there took place an insurrection of the Bhuiyas of
Keonjhur against their Maharaja^ resulting in his

Keonjhur.

flight to Cuttack and final restoration, accompanied
by Rai Nanda Kishore Das Bahadur as Government Agent. The
oppressions and exactions of the Maharaja were the immediate
cause of the disturbances, which were promptly suppressed by the
local officers with the aid of the Government police. A detachment
of troops from Calcutta was also ordered under arms, but it was
only held in reserve and not called into action. Although all active
resistance on the part of the insurgents appeared to have ceased, and
the Maharaja was duly restored, the Bhuiyas, in spite of the efforts
of the Government Agent towards reconciling them, held aloof, and.
would neither pay the revenue due from them, nor allow the payment
of revenue by -those under their influence. A proclamation was.

912 BENGAL UND£R THS LICUTKNANT-QOVERNORS.

issued warning them of the serious consequences of continued
contumacy, and, if this warning was .neglected, they were during the
ensuing cold weather, to be reduced to submission by force, and
their ringleaders, if necessary, deported. The country which was in
an -unsettled condition in the beginning of 1893-94, was gradually
reduced to peace and order, and the Bhuiyas tendered complete sub-
mission to their chief. The settlement operations in connection
with the Bhuiya and Jnang Pirs were concluded on terms agreeable
to, and accepted by, both parties, and leases were granted. The
difficult question of personal services claimed by the Raja under the
head of porterage, roof-thatching and dragging the car of the family
god, out of which the rebellion had mainly sprung, was decided in a
manner which it was hoped would be satisfactory and lasting, the
nature and extent of the services to be claimed being defined with
precision, or else commuted into an enhancement of the ordinary rent.
At the request of the District Charitable Society and of the

Eurasian and Anglo-Indian Association, Sir C.

PAnpeiism among

Buropeans and ElHott, in April 1 89 1, without pledging Govern-

Euraaians.

ment to accept any new financial responsibilities,
appointed a representative Committee to enquire into the poverty or
pauperism prevalent among Europeans and Eurasians in Calcutta
and Howrah, and the various means possible for relieving and
checking it. The Committee were occupied in this work for upwards
of a year, and the Report which they submitted, with its appendices,
was a valuable and interesting record of information. It was shown
that statistics pointed to the existence of an amount of pauperism
among the domiciled European community of Calcutta and Howrah
far larger than what was believed to be the amount of similar des-
titution in England, while the percentage of pauperism, that is, of all
those who were in receipt of charitable relief of any kind, among
Eurasians of all degrees of mixed blood was as high as 22.3. The
causes of this excessive pauperism were shewn to be, partly, the
increase of education among the natives of Bengal leading to sharper
competition for employment ; partly, inherent defects of character
common among Indo-Europeans, which often impeded and weaken-
ed them in the struggle for existence ; and partly, and most important
of all, the injudicious administration of charitable relief, which, by
fiemoralizin^ the recipients of such aid, had contributed in no small

SIR dHARLBS BLLIOTT. 913

measure to aggravate the evil. The relieving agencies of Calcutta,
its charitable societies, its homes, and schools, and hospitals, control-
led funds which in the aggregate were sufficient to meet even the exist-
ing congested demand for relief ; and, if they were properly adminis-
tered, not only would pauperism be diminished, but distress could'be
absolutely stamped out. The principles advocated by the Committee
were that the condition of idle paupers should be made less eligible
than that of the independent poor, that indoor relief should be the
rule and outdoor relief the exception, and that relief in aid of wages

should be, if possible, avoided.

In dealing with the remedies proposed by the Committee to

counteract the prevailing tendencies in the direction of ever-increas-
ing poverty. Sir C. Elliott confined himself mainly to a careful
consideration of the means by which practical effect could be given
to 3 schemes, of which 2 were intended to provide new sources of
employment, and the third to promote the better organisation of
charitable relief. Either of the 2 former would involve a not incon-
siderable expenditure. One of them was the proposal to form an
Indo-European regiment, and this Sir C. Elliott recommended to the
favourable consideration of the Government of India, with the
proviso that the new regiment should take the place of a native and
not of a British regiment. The second proposal to establish a train-
ing ship in the river Hooghly for Indo-European boys could hardly
be undertaken with an assurance of ultimate success. Even if Indo-
European boys could be induced to adopt the sea as a profession
and to inure themselves to the perils and hardships of a sailor's life,
there remained much doubt as to the possibility of obtaining employ-
ment for them either as seamen or as ship apprentices. In view of
this uncertainty, the cost of carrying out the scheme would be pro-
hibitive, and in the shape presented the proposal had to be abandoned,
but Sir C. Elliott was not without hope that some cheaper substitute
might be found practicable.

The Committee's third remedy, namely, the better organisation
of charitable relief, was a matter in which it was impossible for
Government, as such, to take any action ; but Sir C. Elliott expressed
his general concurrence with the Committee, and approved their
proposal that the District Charitable Society should undertake to
deal' with all cases which in England would come within the operation

^Vjt BENGAL UNDER TffS LIBUTBNANT-OOVERNOKS.

of the Poor Law, leaving; to the femaihing charitable agencies those
cases to which private charity was suitable. In order to carry out
Ihis division of work, some central authority would bt necessary to
investigate cases of destitution, to decide to which 6f the 2 classes
they belonged, and otherwise to assist the various agencies in working
harmoniously together. This work of a " Charity Organization Society"
might, it was thought, be undertaken by the District Charitable Society,
in addition to the duties assigned to it by the Committee. It seemed
to have an organization suited for the purpose, though it would' be
necessary to place its constitution on a somewhat wider basis, and
to form a Central Committee consisting of representatives of all
actions of the Christian religion, together with delegates from exist-
ing charitable societies and institutions. Sir C. Elliott trusted that an
earnest endeavour would be made to overcome the initial difficulties
and to organize a practical scheme oh these lines, which would secure
the co-operation of the various agencies of Calcutta. Again, in
February 1893, the Calcutta Diocesan Conference urged that some-
thing should be done to ameliorate the condition of poor Eiu'opeahs
and Eurasians : but the suggestions were too general for the
Bengal Government to accept any responsibility in respect
of them. Sir C. Elliott pointed to the Sibpur Engineering College
as affording a centre of practical education ; in respect of Govern-
ment employment he expressed his willingness to treat this class of
candidates equitably, but he regarded some of the proposals as being
entirely beyond the legitimate sphere of State operations.

The proposal to form an Indo-European regiment, with a view to
„ „ . . , counteract the tendencies of that class towards

Bnlifltment of

^^tShT*" pauperism, having been rejected, the Government
regiments. ^f India was asked to permit the admission of

selected Eurasians into British regiments. It was suggested that the
scheme might be tried tentatively, either by enlisting a limited number
of men each year, or by limiting the number of such recruits per
battalion or per company, or by restricting its operation for a definite
period. It wias urged that in this way a supply of excellent soldiers
might be obtained by the Army, who would enlist for long con-
continued service, and that this would tend to effect a saving of
considerable sums spent on reliefs. This proposal, however, did
not ccimmeAd itself to Her Majesty's Government. The authodties

SIR CHARLBS KUiIOTT. 915

at the War Office stated that the practical difficulties in the way of
the proposed scheme were so great as to be almost insurmountable.
The Military authorities at home declared themselves so strongly
opposed to any departure from the existing principles which governed
the enlistment of men for the Imperial forces that the Secretary of
State for India felt it impossible to press the question further.

In 1885 the Government of India suggested that steps should
BthograpUc ^ taken towards the collection of more precise
reeearches. information regarding the castes and occupations
of the people of India, and Mr. H. H. Risley, c. s., was selected to
prosecute ethnographic researches, from which, apart from the
scientific results, substantial administrative benefits were anticipated.
As the result of Mr. Risley's inquiries during 6 years. 2 volumes
were brought out in the year 1891-92, containing the Ethnographic
Glossary of all the castes, tribes, sub-castes, and sections, of which
a substantial number of representatives was found in Bengal, with
an introductory essay on Caste in relation to Marriage. These
volumes were welcomed by Sir C. Elliott as an important addition
to the stock of official information available on the subject and as a
valuable contribution to scientific research. It was true that a com-
plete knowledge of the caste system of India would not be obtained
from the study of the Ethnographic Glossary alone. The greatest
and purest castes of India, the Brahmans and Rajputs are (with the
exception of the Maithila Brahmans of Bihar) exotics in Bengal,
and it is only in Upper India, the country of their origin, that a
full understanding of their main permanent subdivisions, and of the
mutual relations of those subdivisions, can be obtained ; but still
much learned information was contained in the Glossary respecting
those clans or individuals of those castes who have emigrated into
Bengal, and whose descendants have established local sub-castes
with local customs of their own. The work contained the most
complete account that had hitherto been put on official record with
regard* to the numerous lower castes which had sprung up in Bengal,
and to the representatives of the aboriginal races, who had more or
less come under Hinduising influences. As a dictionary of the
castes and their occupations, the Glossary was calculated to be useful
to the Administration. The more Government officers knew about
the religious ^nd social customs of the people of their district, the

9i& BENGAL UNDiGR THE LIEUTENANT-GOVERNORS.

better able they would be to deal with either the possible social
problems of the future, or with the practical questions arising in their
ordinary work, such as the relations of the different castes to the land,
their privileges in respect of rent, their relations to trade, their
status in civil society, their internal organization, their rules as to
marriage and divorce, and as to the giving and receiving of famine
relief. It was believed that Bengal was the only province in which
any substantial attempt had been made to carry out the wishes of
the Government of India with respect to the investigation of castes
and occupations originating from the Census of 1881. This work
afforded a substantial frame-work on which further inquiries could be
instituted and their results incorporated.

The 2 volumes of the Ethnographic Glossary were circulated
to all Commissioners, district and subdivisional officers, and other
persons interested, and their criticisms invited with a view to supple-
ment in a later edition the deficiencies incidental to such an under-
taking. A scheme which Mr. Risley submitted in outline for the
continuance of ethnographical researches in Bengal, and for their
extension to other parts of India, was not accepted by the Supreme
Government on the ground that such a work would swell to unwieldy
proportions, but the republication of the Glossary v^ith the addition
of Statistical information collected in the* last Census was subse-
quently authorised.

Mr. Risley also laid before Government 2 volumes containing
his Anthropometric Data or series of tables of figures showing the
results of measurements carried on under his orders, on the methods
approved by European anthropologists, of the physical characteristics
of certain selected castes and tribes. The conclusions to be deduced
from these contributions were awaited. Another proposal made by
Mr. Risley to continue Ethnographical researches in Bengal and
extend them to other parts of India, by means of Honorary
Directors in each province, was approved by the Government of
India, but no financial assistance could be given, the work was left to
amateur effort, and a central office was created at Calcutta in the
Ethnographic Branch of the Asiatic Society of Bengal.

Early in the year 1891 proceedings were instituted under Sir C.

ProwcuUon of the ^lliott's Orders (with the approval of the Government

9wn^^Mu gf India) which had for their object to bring home

SIR GHARLSS ELLIOTT. 917

to the conductors of the Native Press of Bengal that the disloyal
and seditious utterances in which so many of their number permitted
themselves to indulge could not be tolerated. The Bangohasi
newspaper, which was selected for prosecution, (upon the opinion
of the Government legal advisers, by whom the 3 articles upon
which the prosecution was based were chosen), was one of those
which, upon the passing into law of the Age of Consent Act, had
shown themselves conspicuously violent in their attacks upon the
Government.

The 3 articles were those of the 20th March, i6th May, and 6th
June, which are too long to quote in extenso as they filled 4 columns
of the Englishman, They dealt with such subjects as the following :
*Our condition' — * A Revealed Form of the English Ruler' — *An
outspoken Policy is the Best for Uncivilised Persons ' — ' The Most
Important and the First Idea of the Uncivilised Hindu ' — * What is to
be the End ? ' The first article was to this effect : —

*' People will by this time say that we are tully a subject people.
In regard to our property, wealth, dependants, family, religioui usages
and observances &c., we are completely subject to the English Ruler.
If the English Ruler wishes, he can deprive us of our property, insult
our families, give them trouble, and can obstruct us in the exercise of
our religion, usages and observances. People will say this but we
shall no longer be able to put our hands in their mouths. The
English Viceroy, Governor-General, Lansdowne Bahadur, the other
day, in the Legislative Council, in outspoken voice loudly, with
swelling bosom, proclaimed this very matter.''

And the article went on to state that the Governor-General had
said that the Hindu community must do what appears to be proper to
the English and that the Hindus must forego all that may appear
opposed to what the English think proper, and added further : " If in
doing this, your religion is destroyed /let it be. If you are obstructed in
observances which have descended to you from time immemorial, let
it be. If you have to give a handful of water to your belief in the
Shastras, you must give it — still the mighty Ruler, the Englishman,
will never let you do that which may not appear to the English to be
in conformity to good education, good morals, and civilization."

The article went on also to inquire : " If it is so, O Probhu !
then declare it openly, and then destroy our all ; destroy our caste.

9J8! BENGAL 0NI)BR THE LIBUTBN ANT-GOVERNORS.

i!0}igion, atid society ; then we shall understand from what motives,
for the accomplishment of what object, you are carrying out these
measures/' The article further said " that if the Governor-General
has not envy of the Hindu religion in his mind ; and if he has
entered on encompassing the ruin of the Hindus with the object of
making his sway in India permanent, they clasp their hands and
Entreat him to say so plainly, when they will execute bonds, binding
themselves to perpetual slavery. The Governor-General may by the
deep laid designs of politics diminish the strength of the bonds of
lAdiari unity but he will never be able to destroy them so long as the
religion remains unshaken " and so forth.

Another article in the same issue was headed '* The Revealed
Form of the English Ruler " and was as follows : —

** In enacting the Consent Act, the English have been drawn into
the vortex of circumstances and have been obliged to cast off both
the mask and the slough. Now stands before us the severe terrible,
disgusting, naked form of the Englishman. Our heart trembles at
the sig^jt of this form. As Sita was stupefied on seeing the great
ascetic, wearing the guise of a mendicant, transform himself suddenly
into the ten-headed, twenty -eyed King of the Rakshasas, so have we
been stupefied by fear, by wonder, by contempt, by insult. Oh !
Rama, Oh, Rama ! What a terrible form ! How fearful is its attitude !
And in that attitude how violent the dance and how deadly the subdued
laugh which reverberates through half the Universe. The leering
eyes perpetually revolve like the burning wheel in the potter's kiln,
and with a thousand tongues in Mltchcha languages, with such words
as pleases it, it is roaring incessantly. Oh, Madhu Sudana, King of
Kings I Is this our Ruler ?" After much more in this strain as to the
fearful form of the Ruler who *^ slanders the Hindus from the might
of the gun," and so on, the article went on to say that the Hindu
religion cannot be destroyed, though the chief fear is that it will be.
and that '' the attempt to destroy it has rendered clearer the policy of
the English."

The law was clearly expounded in this case by the learned
Chief Justice of Bengal, and it was shown beyond doubt that
deliberate attempts to excite feelings of enmity and ill-will .against
the Government and to hold it up to the hatred and contempt of
the people) and misrepresentation of the true state of afEairs by

SIR CHARLfiS SLLIOTT. '9^9

'.partial statements of facts, so as to cause disaffection, were offences
'under the law, and that writings of this nature in the public press
rendered those who published them liable to punishment. In the
trial which took- place the jury disagreed in their verdict, and, under
the orders of the Chief Justice, the case was postponed as a remanei
to the next ensuing Sessions of the High Court. The proprietor,
editor, manager, and publisher of the Bangobasi then presented a
petition to the Lieutenant-Governor, in which they expressed contri-
tion for having allowed the articles which formed the subject of
the prosecution to appear in that paper, promised henceforth to
conduct it in a spirit of loyalty to Her Majesty the Queen-Empress
and the Government of India and threw themselves unreservedly
on the mercy of the Lieutenant-Governor. Representations were
also made by the British Indian Association and by the Native
Press Association — a body which was formed after the proceedings
against the Bangobasi had been instituted, with the object, among
others, of improving the tone of the Native Press and preserving
moderation in the discussion of all public questions — interceding on
behalf of the Bangobasi and entreating the Lieutenant-Governor to
direct, in consideration of the humble submission of those res*
ponsible for the paper, that further criminal proceedings should be
stayed. These memorials were forwarded by Sir C. Elliott
to the Government of India with His Honor's support, and,
under the orders of His Excellency the Governor-General in
Council, the matter was not pressed further against the defendants.

There was reason to believe that this act of lenity was appre-
ciated by the community generally, and that it exercised a healthy
influence on the tone of the Press at the time.

In accordance with the reccommendations of the Police Committee
which sat iif 1 800-1, a Bill was prepared to amend

VUlage Police. x,

the village Chaukidart Act, 1870, and introduced
into the Bengal Council on the 23rd April 1892. One object was to
bring the village watch into closer relations with the district Magistrate.
Another was to raise the social status of the Chaukidars, by substi-
tuting men of better caste and more respectable position. The main
alterations proposed were briefly set out in the Statement of Objects
and Reasons as follows : —

'^The present Bill ha^ been prepared to give effect to such of the

920 BENGAL UNDER TdE LIEnrENANT-aOYBRNORS.

proposals of the Police Committee of 1890-91 as have been accepted by
Government in regard to the reconstitution of the village police. The
Bill provides for the introduction of the Act into all villages irrespective
of the number of houses they contain. It is proposed that the Magistrate
may, with the consent of the Local Government, arrange for the elec-
tion of a panchayat by the rate- payers in any manner most convenient.
It is left to the Magistrate, and not to the panchayat^ to determine the
numbei* of chaukidars to be employed, and to fix the salary of the
chaukidars within certain limits. The appointment of a chaukidar will
rest with the Magistrate, on the nomination of the panchayat^ and
will no longer be made by the panchayat. The powers of arrest by a
chaukidar have been extended so as to bring the law into accordance
with the general practice. The appointment of a tahsildar is authorised
not only, as now, on the application of the panchayat,^ but also at the
discretion of the Magistrate, when he finds that collection is badly
carried out and the chaukidar is not regularly paid. Fines and penalties
will be credited no longer to the Chaukidari Village Fund, but to a
district Chaukidari Reward Fund, the control over which will rest
with the Magistrate. In other respects there are small modifications of
the existing law. It is not considered expedient at present to undertake
any legislation in regard to Part II of the Act relating io chakreut
lands."

In the progress through Council of the Bill which became Act I

(B.C.) of 1892 certain further amendments were incorporated, of
which the following only need be mentioned. The number of the
panchayat was fixed at *' not less than 3, nor more than 5," with a
further proviso that in certain local areas the Local Government might
reduce the number to i. This provision was inserted with reference to
the peculiar conditions of tea estates in the districts of Darjeeling and
Jalpaiguri, and of localities in other districts where it might not be
possible to appoint more than one member. The Magistrate of the
district was also authorised to delegate, with the sanction of the
Commissioner, his powers under the Act, either wholly or in part,
to any subordinate Magistrate of the first class in charge of a sub*
division, or to the District Superintendent of Police. A proposal
was also made to insert a clause forbidding police officers to make
use of chaukidars as menial servants, but this amendment was with*
drawn on the understanding that strict orders would be issued by
Government on the subject.

Next to low caste and disreputable antecedents one of the causes

81K 0HARLK8 BLLIOTT. 921

which had done much to degrade the village chaukidar in his own
esteem and that of the public, and to lessen :his influence for good,
had been the habit, too common among the provincial police, of
treating him as a beast oi burden and a menial servant. The
Government was pledged to do all it could to stop this custom, and
Sir C. Elliott took every opportunity of giving publicity to his desire
that Magistrates and District Superintendents of Police should set
their faces sternly against the practice.

The Police Committee made a number of recommendations for
Th Re Ur ^^ improvement of the regular police, chiefly with

Police. a, tendency to increasing the pay of the various

grades. The most important suggestion was that no officers inferior
in rank to Sub-Inspectors should be employed in the investigation
of criminal cases and that head-constables, whose number would be
greatly reduced, should be confined to work of a less responsible
nature. This was accepted so far as financial exigencies permitted.
In accordance also with the Committee's advice the special reserves
of police on military lines were further organized^ under special
legislation.

Sir C. Elliott devoted much time and attention to the working of
The Criminal ^^ Criminal Courts, and accepted generally the

Courts. recommendations of the Police Committee on this

subject He enjoined on Magistrates and sub-divisional officers
that they should watch the proceedings of investigating police officers
with greater care, and issue such instructions as they thought fit.
The necessity of carefully watching over the work of their subor-
dinates was impressed again and again on district Magistrates with
special reference to delays in trying cases and unnecessary remands.
At the suggestion of Sir C. Elliott the High Court issued
instructions to Sessions Judges that they were authorised and expected
to inspect the Courts of Magistrates subordinate to them. Above
all things Sir C. Elliott insisted that there should be no avoidable
delay in the disposal of cases.. It should, he laid down, be a point
of honour with Magistrates not to plead want of time as an excuse
for adjournment ; and when witnesses were in attendance the Court
should not rise at 5 p. m., as had hithertd been too often the practice,
but should sit till dusk or even after dark rather than subject parties
and witnesses to the inconvenience of another day's detention. Great

1*922 BRNOAL UNPER THK LIRUTINANT-GOVKRNORR.

Improvement soon manifested itself in this department of the Adminis-
tration, and his efforts to improve the procedure in Criminal Courts
were cordially responded to by all classes of Magistrates.

The change of Excise policy in Bengal, from the outstill system

of Sir A. Eden's time, through the Excise Commis-
sion of 1883-84, to the revival of sadar distilleries,
has been shewn In the previous Chapter. Outstills were abolished
on I St. April 1889 in Calcutta, the 24-Parganas, and Howrah, and
from I St. April 1890 in the 16 remaining districts of the Presidency.
Burdwan, Dacca and Orissa Divisions, with a loss of revenue. This
loss was nothing more than might have been expected under a new
policy introducing so great a change. The Government wrote as
follows : " The advantages of the distillery system are great, and
there is no reason why it should not succeed in raising a moderate
revenue in settled tracts where the people are fairly prosperous, and
at the same time in reducing consumption. In Northern Bengal,
the Chittagong Division, and in Chota Nagpur, with the exception
of Hazaribagh, there are no. distilleries. The dual system prevails
in the Patna Division and in the districts of Monghyr, Bhagalpur
and Hazaribagh. The central distillery supplies a certain area, and
the rest of each district is served by outstills, which are placed under
stringent restrictions as to the amount of liquor the lessses may
manufacture. In Bihar the poverty of the people compels the
supply of cheap and therefore weak liquor^ and undue pressure put
upon the abkars only results in the stimulation of illicit distillation.
During the year 1890-91 there was a marked decline in revenue in

every district in Bihar, and the figures indicate less success in

•

managing excise there than elsewhere in the province. - The attempt
to raise the retail prices of outstill liquor has failed, and the ahkart
have combined to refuse settlements. It appears probable that
sufficient judgment has not been exercised, and that the upset prices
have been fixed too high for the abkars to be able to recoup them-
selves by raising the price of liquor. The trade in duty-paying
spirit has been injuriously affected, but there is nothing to show that
this has been accompanied by reduced consumption, and not by an
increase in illicit distillation.^

Defects in the working of the Excise Department as regards
country -spirit attracted Sir C. EHiott^s attention in respect of (i) 4he

SIR CHARLES IBLLIOTT. 923

restriction of still and vat capacity in outstills : — (2) the system of
fixing the duty on liquor according to its exact strength as measured
by the hydrometer, compared with the system of issuing it at fixed
strengths :— -(3) the system of fixing minimum prices of retail sale,
(4) the rates of distillery fees : (5) the desirability of distilling weak
liquor at the Government distilleries : (6) the failure of the attempt
made in Bihar to raise the license fees of outstills.

He expressed himself to be a hearty supporter of the central
distillery system, — the essence of which was that every gallon of
liquor distilled should pay duty to the State, — as opposed to the out-
still system under which the more the liquor distilled the less the duty
paid. But he strongly condemned the idea that the introduction of
the Government distillery system should be followed by the introduc-
tion of stronger liquor than the people had been in the habit, of
drinking. Worked in this way, a system which was advocated oii
principles of temperance as well as of sound finance would become
an instrument making for the spread of drunkenness. He therefore
insisted on the distilling (as a general rule) of no stronger liquor
than was made at the outstills and generally consumed by the people^
subject to the condition that it must be strong enough to carry to the
shops where it was to be sold.

• As it had been noticed that the restriction of the still and vat
capacity, excellent though the scheme was in principle, had been
carried out in an unintelligent way, and practically had no effect
whatever, as in most cases the limit was placed far above the real
wants of the shop, the question was further thoroughly examined by
Sir C. Elliott, and it was amply demonstrated that the system had
proved a failure. It had given infinite trouble to the officials and
caused gpreat annoyance to the abkars, who had frequently evaded
the restriction altogether. He accordingly decided to withdraw,
unconditionally, all existing restrictions on the capacity of vats from
I St. April 1893. As regards the stills. Collectors were empowered
to allow them to-be used of any size that might be thought desirable,
reporting their action in each case to the Commissioner of Excise,
who was given power to revise the orders if necessary.

The idea that the extension of the Government distillery system
should be followed bjf the introduction of stronger liquor than th^
people had been in the habit of drinking having been strongly conr

924 BENGAL UND8R THK LIKUTBNANT-QOVRRNORd.

demned, the question was further discussed before final orders were
passed. There was no doubt that at equal prices the drinking public
preferred strong to weak liquor ; but the question was — why Govern-
ment should create a taste for strong drink by issuing strong liquor
from its central distilleries when the practice of the outstillers (who
unquestionably followed^ and did not form the public taste) showed
that weak liquor was preferred ? The only possible defence of the
practice, it was said, would be that the distillery liquor, though issued
strong, was diluted and sold weak ; . and from this arose the sub-
sidiary question whether the public preferred their liquor issued weak
from the. distiller}' ready for drinking, or issued strong and then
diluted to weakness in the shops. It was ascertained that as a rule
dilution was practised to a ver\' small extent, and even then more as
a fraud or as adulteration than with the intention of watering down
liquor to any thing like the level of weak outstill liquor. There was
no doubt that weak liquor, hot and fresh from the still, was
preferred to strong liquor diluted with hot water ; but it
w^s not so clear that weak liquor, which had grown cold
and stale, was better liked than diluted strong liquor. This
however, was but a side issue : the main point was that, when strong
distillery liquor was manufactured, it was not habitually diluted to
any thing like the weakness of outstill liquor and therefore the issu^
of such liquor must have tended to encourage a taste for strong
drink. The Board and the £xcise Commissioner, far from forbidding
the distillation of weak spirit, as was done in some places, were
instructed to so far discourage the distillation of strong liquor as not to
insist on it. It was held to be the wisest course to attempt to. meet
the popular taste and allow the distillers to turn out the spirit for which
they found the readiest sale.

With regard to outstills, effect was given from the beginning of
1893-94 to the order of Government, directing the withdrawal of the
restriction on the capacities of the stills and the fermenting vats,
which were introduced on the recommendation of the Excise Com-
mission, but were found after full trial to be vexatious and ineffectual
in practice. The licensees of outstills were not, however, allowed
to increase the size of the stills already sanctioned without the approval
of the Collectors and the Excise Commissioner. Sir C, Elliott antici-
pated no evil results from the change.

SIR CHARLES ELLIOTT. 925

As the early cessation of the rains in September 1891 gave rise
to apprehensions that the great winter rice crop of
Bengal must be materially injured and that distress
would probably ensue, Sir C. Elliott called for full and periodical
reports as to the condition and prospects of the crops and of the
people, revised and republished the Famine Code, caused lists of
works available for purposes of relief to be prepared afresh, and thus
maintained the Administration in readiness to meet famine, should
it come. The first warning that scarcity was impending in some of
the districts in the Patna, Bhagalpur, and Rajshahi Divisions was
given in December 1891. The forecast then made was verified by
the result. Although a good bhadoi harvest (or early rain crop)
enabled the cultivators to bear without much suffering the loss of
the greater part of the winter rice crop, the continuance of drought
reduced the outturn of the rahi crop almost to nothing, and resulted
in the presence of a more or less widespread distress, which in
March 1892 necessitated the opening of relief works iu several
districts. As was anticipated, the effects of the scarcity were most
acutely felt in the district of Darbhanga, and in parts of Muzaffarpur,
Monghyr, Bhagalpur, Purnea, and Dinajpur. Prices, though high,
nowhere rose to actual famine pitch, but the dearth of employment
threw on the District Boards the responsibility of enabling all
agricultural labourers who were out of work to earn subsistence
wages, and it was for this purpose that relief works were opened.
In the event of district funds failing, (and a ruling of Government
required that they should first be exhausted before an appeal to
Govornment for funds could be entertained) Government undertook
to supplement them from provincial resources, and to grant loans
liberally under the Land Improvements' and Agriculturists' Loans
Acts. Monthly Reports were, after the close of the year 1891-92,
regularly submitted, giving particulars as to the affected tracts and the
relief operations undertalcen. On the ist April 1892 there were about
23,000 labourers on the relief works, and nearly 900 people were in
receipt of gratuitous relief.

For some years past the physical training of schoolboys had
been encouraged by the formation of clubs for

Physical training. ^ ''

athletics, by drill and gymnastic exercises, in Col-
legiate competitions s^ncl annual sports, In 1891-92 it was particularly

926 BENGAL UNDER THE UEUTENANT-GOYERNORS.

noticed on every hand that there was a great increase of the zeal with
which the national English games, especially football, were played.
On tour Sir C. Elliott constantly watched the performances of the
boys with the greatest interest. He noticed how much more the
Bengalis took to these exercises than the Biharis : even in the Bihar
zilla schools he observed that the most proficient boys were Bengalis
by birth. He looked forward to great improvement in the physique
of Bengalis in the course of one or two generations from this source.
In the interior of the country no difficulty was experienced in obtain-
ing space for the boys' games, but in Calcutta the opposite was the
case. In Calcutta, sites on the maidan were allotted for 3 European
and 2 NaUve Colleges, but the distance of the maidan from most of
the private schools and the want of playgrounds near the boys'
homes proved an insurmountable obstacle. Sir C. Elliott expressed
a hope that some generous and public-spirited individuals would
come forward and provide means for the physical improvement of
their race : and with the aid of Government and private subscriptions
Marcus Square in the centre of the town was cleared and made
available for recreation.

It was not only in the physical training of the youth of Bengal
„ „ . that Sir C. Elliott showed himself to be interested.

Welure oz

studenta. jjg jost no Opportunity of advancing their welfare

in every way possible : it was a matter which he had much at heart.
He laboured for the provision of boarding accommodation for the
students in Colleges in Calcutta, arranged for the enlargement of the
boarding-house of the Presidency College, assisted the construction
of a boarding-house for the students of the Calcutta madrasa, and
at this time a boarding-house was established by the Oxford Mission.
He induced the authorities at the Presidency College to attach more
importance to the prize-giving at the end of term and to improve
the occasion with recitations, &c. &c. : he helped greatly towards the
establishment of the "Society for the higher training of young men,"
— subsequently called the University Institute : he invited the students
from the Calcutta Colleges and Schools to Belvedere several times
during his tenure of office, and organised river parties for them. But,
with all his kindness and efforts for their welfare, he insisted on a
proper sundard of discipline at all Educational Institutions and
brooked no attempts at insubordination.

SIR CHARLES ELLIOTT. 927

The Civil Engineering College, formerly a department of the
Presidency College, Calcutta, was transferred as

The Civil Bogi-

neering CoUfige, above recorded, by Sir A. Eden to Sibpur, and closely

Slbpur

connected with the workshops established at that
place about the same time by the Public Works Department.
Arrangements were made for the instruction of 4 classes of students,
namely — (i) Civil Engineers, (2) Mechanical Engineers, (3) Civil
Overseers, (4) Foreman Mechanics. The second and third classes
were, however, either never opened or were quickly closed for want of
students. The first class was composed of matriculated members of
the University, and prepared, after a course of study extending over
four years, for the License in Engineering (Civil or Mechanical)
granted by the University. The last class was of a lower status, in
point both of the initial qualifications demanded of the students and of
the standard of instruction to be imparted to them. The students in
it were apprenticed to the Executive Engineer in charge of the work-
shops, and hence were known as Mechanical Apprentices. Every
student in each class was to work for some hours a day in the shops,
both during the period of his class instruction and for a certain time
after its close.

A Committee of Engineers and Educational OfHcers was appoint-
ed to revise the course of study and of practical training, and on
their recommendation the following arrangements were introduced.
The standard for admission to the Engineering Department of
the College was raised, by requiring a candidate to have passed one
or other of the following tests : —

(i) The Entrance examination of the Calcutta University, after
obtaining not less than 40 and 50 per cent respectively of the marks
assigned to English and Mathematics. With this qualification the
candidate had to be under 19 years of age.

(2) The F. A. Examination of the Calcutta University ; the
candidate's age being under 21 years.

(3) The B. A. examination in the 6 course ; the candidate's age
being under 23 years.

In order to attract students of the highest attainments, it was
determined to award the 10 special scholarships, reserved for students
on admission to the College, to the following classes of students in
prder : — (i) Bachelors of Arts who had taken up the B course ;

928 BENGAL rNDER THE LIEUTENANT-aOVERNOKS.

(2) candidates who had passed the First Arts examination : (3) other
candidates according to the number of marks gained in English
and Mathematics jointly.

In order that those students who failed to obtain a degree might
still obtain some acknowledgment of the extent to which they had
prosecuted their studies, the Principal of the College was authorised
to hold a final College examination of the students of the Engineer
class, and to issue certificates of proficiency in the theoretical course,
similar to those which were granted to students of the apprentice
class. The holders of the certificates, whether they obtained a
degree or not, were afterwards to be put through the full course of
manual instruction and practical training prescribed for the Engineer
class.

The advantage of securing to the province a supply of young
men trained to engineering pursuits was, in Sir C. Elliott's opinion,
a sufficient justification for the expenditure incurred, as it would be
strictly reproductive. He encouraged students to join the Engineer-
ing Department by every means in his power. Formerly i and 2
appointments in the grade of Assistant Engineers were reserved in
alternate years for students of the Sibpur College who qualified at
the University Examination, and who afterwards showed satisfactory
progress when posted on probation to public^works. Sir C. Elliott
was prepared to direct that all appointments in the upper subordinate
grade of the Public Works Department, made by the Government of
Bengal, should be selected from students of the Sibpur Engineering
College, who had graduated in Engineering at the Calcutta University
and successfully passed the subsequent period of practical training.
He also agreed that the students of the College, who, without having
passed the University examination in Engineering, passed the final
College examination, and had also gone through the subsequent 2
years' course of practical instruction, should be declared qualified for
employment as District Engineers, provided they had been employed
in engineering works for not less than 5 years, exclusive of the time
spent in their practical course, and held satisfactory^ certificates of
good conduct and eflficiency during such employment. He trusted
that the Sibpur College would attain to its true position as the centre
of genuine technical education in Bengal, and would be a powerful
factor in promoting and developing the industries of the province.

: SIR CHARLIES ELLIOTT, 929

In 1895 a course of mining instruction was sanctioned for this
College. The award of 2 mining scholarships of Rs. 50 per mensem^
tenable for 2 years by holders of the B. E. degree who intended to
take up mining as a profession, 'was sanctioned, and arrangements
were made for their practical training under Dr. Saise, manager of
the East Indian Railway Collieries. In the absence of passed B. E.
candidates willing to undertake the training a commencement was
made with a Licentiate of Engineering.

The following notice of Primary Education in 1893 shows at a
Primary B d u c a- fi^^^^^cc the figures for 20 years and the system in
tion generauy- f^^ce. In the Chapter of the Bengal Administration
Report for 1872-73, which- deals with the general system of public
instruction under this heading, occurs the following passage : — * A
plan for systematically establishing Government primary schools in
all districts and of localising their administration has been framed,
and a total Government grant, amounting to Rs. 5,50,000 a year, is
now allotted.' In this sentence was announced the now well-known
system of primary education initiated by Sir G. Campbell in his
Resolution of 30th. September 1872. In August 1873 there were
under the operation of the Government scheme 10,787 village
schools with 255^728 scholars. In March 1883 there were 62,551
primary schools with 1,094,911 scholars. In March 1893 the
numbers were 47,525 schools with 1,122,930 scholars. This system
has gone through many modifications during this period and possibly
still further modifications may be required. Its main features, how-
ever, are unlikely to be altered.

The following quotation from the report of the Education
Commission* places the policy that was adopted twenty years ago,
with regard to the system of primary education in this province, in
a clear light : —

Bengal system: General view: — "The Bengal system of primary
education is therefore based entirely upon the existing indigenous
schools. Its declared policy towards them has been, first, to win their
confidence, and then, secondly, to cautiously and gradually introduce
necessary improvements. Any rapid improvement or elevation of their
standard has been studiously avoided. The object of Government has
been to give the masses of the people useful, however elementary,

• 8ir W. W. Huntcr'8 : cieo Chapter VJll. i>age 7«)

930 BENGAL UNMR tHK LIKUTKNANT-GOYKKNORS.

instruction in the schools which they themselves created and maintained
and in the form in which they are said still to desire it The schools are
declared to be village schools established and maintained by the people
for the people ; and the Government contribution, small as it is, is a
subsidy paid to the school-masters as an inducement to them to teach
and as a reward for teaching those subjects of elementary liberal instruc-
tion which find no place in the ordinary course of the village ^a/Asala,
It is believed that any attempt to raise the schools as a body above the
lower primary standard would be to drive away those pupils whom,
above all others, it desires to attract. At the same time the general
improvement , of the pathscUa is not wholly neglected ; and it is effected
partly by the substitution, as opportunity offers, of younger and better
educated teachers, and as a consequence thereof by the introduction of
new subjects of study, serving to connect the /^r/Aro/d with the general
education system of the province, and by encouraging the rise of selected
schools to the upper standard. The motive to improvement is supplied
not only by the small rewards that are earned at the annual gatherings,
but by inspection, by the stimulus of a competitive examination, by the
award of scholarships, and perhaps in a still higher degree by the know-
ledge which the people in every village of Bengal have acquired, that the
Government interests itself in their schools, desires them to prosper and
is eager to co-operate with them in their improvement".

Though the administration of affairs connected with primary
education has of late years been in the hands of District Boards in
the districts scheduled under the Local Self^Govemment Act, the
system above described is still very generally in force.

In dealing with the Municipal Reports of the year 1890-91,

and in Muni- ^*' ^' ^^^^^ ^^*^ down that municipalities might

cipaHtiM. fairly be required to provide primary education

for boys of school-going age — a number which might be taken
to be 15 per cent of the male population of the town. Commis-
sioners of Divisions were authorised to give effect to this principle
when passing the annual estimates under the Municipal Act, and to
see that municipalities made ample provision for primary schools
before allotting funds in support of secondary education. It was
suggested that the best means of attaining this end would be to ask
each municipality to prepare a definite scheme for providing the re-
quisite number of primary schools, and to submit it for the Com-^
missioner's approval. It was proposed that the grants given by
Govenmient to primary schools within municipal limits should

SIR CHARLES ELLIOTT. 931

be made over to the municipalities concerned for expenditure on the
same object, and these, together with the relief afforded by the trans-
fer of the collection and registration of vital statistics to the town
police, were expected to appreciably relieve their finances and help
them to meet the new liability. When these orders were repeated,
it was laid down that municipalities should be called upon to provide
instruction for i the number of boys of a schoolgoing age, as ascer-
tained by taking them to be 15 per cent of the male population. A
large number were not provided for as for obvious reasons it could not
be expected that all the boys should be at school. Taking the average
cost of this class of education at 10 annas per head (exclusive of that
portion of the charge which was ordinarily met from fees and sub-
scriptions), the cost which the municipalities were called upon to
defray under these orders in providing education for 180, 112 boys
was taken in round numbers at Rs. 67,000, which bore to the total
ordinary income (i. e., excluding the income derived for specific
purposes, such as lighting, conservancy, water-supply, maintenance
of hospitals, &c.) of the municipalities during 1891-92 the ratio of
3'2 per cent, — a very moderate demand to make on municipal reve-
nues for the primary education of the boys resident within their limits.
Municipalities were at the same time informed that, in those cases
in which the municipal revenues were already so deeply pledged to
obligatory expenditure that this small contribution could not be made
to primary education,' some help would be afforded from provincial
revenues for a year or 2 till the necessary equilibrium was established.
In 1892 the transliteration of the Indian names of well-known
speuing of vema. P*^«s» ^ivers &c. in Bengal, of vernacular technical
cuiar names. terms in constant use, and names of religious

festivals, was revised by the Bengal Government, with the approval
of the Government of India, lists of words being published for
general adoption. The spelling of the names of places and rivers
which had been fixed by historical and literary usage was not altered,
but it was laid down that all other names of places and all technical
vernacular terms which it might be found necessary to employ in
official letters should be transliterated on the scientific system
accepted by Government. Sir C. Elliott considered the revision
to be necessary, as the tendency of educated people was towards
a system of spelling which was regarded as scientific, and as it

932 BENGAL UNDER THE LIBUTBNANT-GOVERNOES.

was, moreover, becoming more and more irksome to spell by the
antiquated phonetic methods a number of names which could
not be said to have received the stamp of universal acceptance.

The quinquennial arrangement with the Government of India

Distinctive fea- for financial administration, which had been revised

• viS^iai°cJ)nS2cte~f in 1887, had to be renewed in 1892. The provin-

i8«7and 18W. ^j^^ contract, as it was called, of 1887 was based for

the most part on the arrangements proposed by the Financial Com-
mittee. No material advance in the system of decentralisation was
made, but by a redistribution of the shares of the Imperial and Pro-
vincial Governments in the 3 principal heads of Land Revenue,
Stamps, and Excise, and by certain reductions in expenditure which
were considered feasible, a general standard of normal revenue and
expenditure was obtained, which was adopted as the "Ruling
account/' The surplus of this account, amounting to Rs. 6,90,000,
was appropriated by the Government of India through the Land
Revenue head« leaving Bengal with a revenue and expenditure exact-
ly equal. The Government of Bengal was admitted to a quarter
share in the Land Revenue collections, except those from Govern-
ment estates, whilst under Stamps and Excise its share was changed
from J in the preceding contract to f and i respectively. The pro-
portion of charges under Stamps and Excise followed the proportion
of receipts. The cost of surveys and settlements and of the main-
tenance of agricultural works and embankments was made entirely
Provincial. Refunds and Drawbacks followed the proportions
assigned for the revenues concerned. The Patna-Gaya State Railway
was made Imperial, and the Eastern Bengal State Railway system.
Provincial, with this reservation, that any excess over 30 lakhs in the
net revenue from the Eastern Bengal State Railway (Proper) was to be
credited to Imperial revenues. The interest on funds provided for
outlay on State Railways and Irrigation Major Works was borne by
the Provincial revenues and was calculated on the entire capital out-
lay, including loss by exchange, from the commencement of opera-
tions, but excluding the amount advanced from Provincial revenues
during the term of the contract. The only important change made
after this contract was finally settled was the transfer of the manage-
ment of the Tirhut State Railway to the Bengal and North- Western
Railway Company from the ist July 1890.

SIR CHARLES ELLIOTT. 933

The quinquennial period, 1887-88 to 1891-92,'' covered by this
contract, began with a balance of nearly Rs. 20,00,000 in favour of
Bengal and closed with a balance of Rs. ^73,85,000. The provincial
resources, which were estimated at Rs. 4,64,47,000, averaged
Rs. 5,i5,29^ocx), being an increase of Rs. 50,82,000; the expendi-
ture, which was estimated at Rs. 4,64,47,000, averaged Rs. 5,14,52,000,
showing an increase of Rs. 50,05,000 ; and the surplus of revenue
over expenditure (after payment of a special contribution of 10 lakhs
to. Imperial revenues in 1890-91) was Rs. 77,000 a year, or
Rs. 3,85,000 in 5 years.

The contract made in 1892 was also for another period of 5
years commencing from the ist. April 1892. It was expressly
declared to be a consolidated contract for all provincial revenues
and expenditure, and not a collection of separate assignments for
each head. Inter-provincial adjustments were abolished. The
following changes were made in the provincial receipts and charges.
The cost of surveys and settlements under Land Revenue, which
under the last contract was entirely provincial, was made Im-
perial, with the reservation that, if the recoveries on account of
the survey and settlement operations in Bihar fell short of the
expenditure which was recoverable from the zamindars and raiyais,
the difference would be charged to the provincial Revenues. The
whole of the general establishment of the Accountant-Genera 1 was
made Imperial, but the charges of the Examiner of Local Accounts
and his establishment continued to be provincial. All police
charges, including Railway Police, were made provincial. The
salaries and allowances of officers on the cadre of the Civil
Veterinary Department were Imperial, but all other charges of that
Department were made provincial. The Nalhati and the Tirhut
State Railways were made Imperial, while the net receipts of the
Eastern Bengal system were divided equally between the Imperial
and the provincial revenues. It was also decided that the Govern-
ment of Bengal should not exercise any administrative or financial
powers in regard to railways. The capital expenditure on the
Hijli tidal canal required to complete the work was to be advanced
from the Imperial funds, the provincial Government paying interest
as before^ After making allowance for all these alterations the
Government of India adopted the following figures as the estimates

934 BENGAL TENDER THE LIBUTENANt-GOVEtlNOto.

of the total provincial revenue and expenditure for the new con-
tract:— Revenue from all sources 4,24,93,000; Total provincial ex-
penditure 4,10,54,000; Surplus I4j39,ooo.

This surplus (Rs. 14,39,000) was appropriated to the Imperial
Revenues through the Land Revenue head, and Bengal was thus
left with a revenue and expenditure exactly equal.

The year 1892-3 was the first year in which arrangements were
First Financial ™^^^ ^^^ ^^ expositiou of the systcm of Provincial
Lt^T^iVt I v^o Finance in Bengal before the Lieutenant-Governor's
Councu. Legislative Council. Although the financial state-

ment was actually made before the Council assembled on the ist
April 1893, the arrangements for the statement were all completed
in the year 1892-3. In making the statement the Hon'ble Mr. H. H.
Risley, Financial Secretary, explained briefly how the system of Pro-
vincial Finance came to be introduced, and the main differences
which distinguished it from the system of centralized finance which
it displaced. He then compared Provincial Finance as understood
in India with the cognate systems of Federal Finance as practised in
the German Empire and the American Commonwealth : and finally
explained the prominent and characteristic features of the budget
for the year 1893-94. A concise but complete history was separately
given of the working of the system of Provincial Finance for 2 1 years,
from 1871-72 to 1891-92, during which period the system had been
in force. It was there shown how, from having control over a few of
the spending departments of Government, which were made over to
the Local Government under the first decentralization Resolution
of the Government of Lord Mayo in 1871-72, the Provincial Govern-
ment had come to be entrusted with the financial management of
almost every branch of revenue and expenditure arising in Bengal.
The extent to which, by the contract commencing from ist April
1892, the Provincial Government was allowed to share in these
receipts and expenditure was shown in a schedule. On the receipt
side of the account the Provincial Government received 12 per cent,
on the land revenue collected from Government estates ; the rents
of salt warehouses ; fines and other minor receipts ; provincial rates ;
minor Customs receipts; interest on local loans; receipts from
Courts of law, jails, police, marine, education, medical, Botanic
Gardens, cinchona, fairs, emigration, and receipts in aid of superan-

SIR GHAtCLBS KLLIOTT. 935

nuation ; also stationery and printing, except the value of supplies
to railways and local bodies ; and all receipts from irrigation, navi-
gation, and civil works. It received i of the assessed taxes, forest
receipts, and registration receipts and the traffic earnings on the Eastern
Bengal Railway system ; ^ of exdse and minor land revenue heads,
and I of the important head of stamps. On the expenditure side the
Government of Bengal was required to meet all charges under the head
of land revenue, except survey and settlement, all expenditure for
provincial rates, and the transferred heads of customs, salt and
interest ; also all charges arising under the heads Courts of law, jails,
police, marine, education, medical, and, with certain exceptions, poli-
tical ; the whole of the cost of scientific and minor departments except
Census, ancient manuscripts, and certain veterinary charges ; the
whole of the cost of stationery and printing ; the working expenses
of irrigation and navigation, and civil works with the exception of
Imperial buildings. It was also made responsible for i of the
expenditure under assessed taxes, forest and registration; for i
of the working expenses of the Eastern Bengal Railway system :
and for | of the stamp expenditure and i of excise.

Towards the close of his Administration Sir C. Elliott recorded

Five yean' Pro- & hrief retrospect of the Provincial Finance of the

vtndai n»no©. ^ ^^^^ 1891-92 to 1895-96. The Opening balance

in 1891-93 was lessened by the special benevolence of 10 iak^
levied by the Government of India in the preceding year. The
sudden fall of the revenue in 1892-93, the first year of the new
contract, was due chiefly to an important change in railway adminis-
tration, and to the raising of the fixed contribution from provincial
to Imperial revenues. In consequence of these and other changes,
the balance at the close of the year was reduced to 22^ iakAs. The
following year showed a revenue increased by nearly 8^ iakks, owing
to receipts under stamps and excise, and from the Eastern Bengal
State Railway ; and the closing balance rose to 26^ iak^. The
revenue for 1894-95 exceeded that of the previous year by nearly
17 iakhSi this being inclusive of 3 lakhs levied as an extraordinary
contribution by the Government of India, and the balance at the
close of the year reached the high figure of about 43 lakhs. On
the whole period, besides the extraordinary benevolence of 10 lakhs
levied at its commencement, Bengal contributed no less than 67I lakhs

936 BENGAL UNDER THE LIEUllfiNANT-GOVEKNOKS.

to meet the necessities of the Empire, over and above the heads of
receipt ordinarily classed as Imperial, and those divided in stated
proportions between the Local and Supreme Governments. Notwith-
standing this drain upon the provincial resources, a substantial array
of administrative improvements was carried out within the period.
Three new districts were created ; the judicial staff was strengthened
in several ways, and the number of Sub-Registrars increased ; the
police was reorganised, and reinforced by reserves in every district ;
jails were extended, and their water-supply improved ; the Medical
College and Campbell Hospitals were enlarged and a new hospital
for the south of Calcutta commenced ; the Sanitary and Vaccination
Department was reorganised ; a supply of cheap quinine was brought
within the reach of the poorest classes ; and improvements were
effected in the Salt Department. Under the head of Public Works,
the period was one of considerable activity ; a large number of
Government offices, both in Calcutta and in the mufassal^ were newly
constructed or enlarged ; new lines of communication were opened
and existing lines improved ; special attention was given to the
development of railways by means of feeder roads ; and the Orissa
canals were extended and irrigation canals generally improved.
The interests of education received careful attention : new schools
were built and existing schools enlarged ; instruction in Engineering
was improved ; veterinary and industrial schools were founded and
primary female education promoted, and a great extension given
to the boarding-house system in Calcutta. In allotting the available
resources, an endeavour was made to distribute them as equitably
as possible, with due regard to the relative urgency of the many
demands put forward.

One of the conditions of the new Provincial Contract which
began on ist April 1892 involved a change in the

Roilwfiys.

relation of the Provincial Government to the Railways
which had hitherto been under its financial control. The Govern-
ment of India held that administrative difficulties had been caused
by making over the management of State Railways to Local Govern-
ments, that the measure was one of decentralization in name only^
as it had been found that Local Governments were unable to relieve
the Public Works Department of the Government of India of any
considerable amount of work in connection with the railways made

SIR CHARLIS KLLIOTT. 937

provincial, while the double control sometimes caused delay and
difficulties. Under these circumstances, it was suggested that the
control of the railways should be centralized in the hands of the
Government of India. It was proposed, however, that the Local
Government should retain a financial interest in the working of the
railways in the province, and, in order to ensure this, the offer was
made that the Local and Imperial Governments should share equally in
the net profits of those railways. The Government of Bengal cordially
supported this proposal and effect was given to it in the new contract.
Among the important railway projects considered during the year
(189 1 -2) were (i) a branch line of 20 miles from Krishnagar to
Ranaghat, (2) an extension from Khulna to Madaripur, and (3) a
branch line from Magra to Katwa. Land was acquired in the Puri
and Cuttack districts for the construction of the Ea«?t Coast Railway.
The projects actually undertaken during the year were, (i) the
Western Duars Railway, 30 miles in length, (2) the Kuch Bihar
Railway, and {3) a feeder line, about 35 miles in length, from the
Barsoi station of the Assam- Bihar section of the Eastern Bengal
State Railway to Kishanganj in the Purnea district. The second
was constructed at the cost of the Maharaja of Kuch Bihar with the
help of a loan from Government. But the most interesting project
was the Tarkeswar-Magra Steam Tramway, a light railway, 30} miles
long, from Tarkeswar to Magra, both in the Hooghly district, to be
undertaken by the Bengal Provincial Railway Company Limited. It
was the first undertaking of its kind, to be solely conducted under
native management; it was constructed, but failed to pay as expected.
The question of constructing a bridge over the Ganges at Sara was
considered and thought practicable by a Committee appointed for the
purpose, but had to be abandoned, as the Government of India was
unable to provide the cost, which was estimated at a crore of rupees.
Subsequently, steam tramways were also constructed from Howrah
to Amta and from Howrah to Sheakhalla by a private Company.
Progress was made with the 175 miles of the Bengal- Assam railway
passing through Bengal districts. A steam tramway was substituted
for the proposed branch railway from Ranaghat via Santipur to
Krishnagar. A line from Sultanpur to Bogra, advocated in 1891 as
a famine relief work, was considered but postponed. Railway lines
were sanctioned from Mogu]sarai to Gaya, and fron) Lakhisarai to

938 BENGAL UNDER THE LIEUTENANT-GOYERNORd.

Gaya : from Sini-Midnapur to Calcutta, and from Cuttack-Midnapur
to Calcutta.

Much attention was given in 1891-93 to the question of rural
Rural sanitation Sanitation, which has always been one of extreme
and wator^rappiy. difficulty in Bengal, not merely because the financial
resources of District Boards are wholly inadequate to the work to be
done, but also because no village agency exists competent to carry out
the simple measures which are necessary to guard against the pollu-
tion of the village site and the fouling of the water-supply. Under
existing conditions, the District Board alone was in a position to take
effective action in these matters, and the range within which its in-
fluence could be exercised was necessarily limited. The Boards could
not execute all the sanitary works that were needed. But they were
directed to set examples as opportunity offered by cleaning tanks,
digging or cleaning out wells, especially along the chief roads, and by
promoting general knowledge of the measures which tended to
improve the healthiness of a locality. If these sanitary works were
well and cheaply done, not of too elaborate a character, and if use
were made of materials available on the spot, it was hoped that
neighbouring land-holders would be led to undertake works of the
same kind, and that the villagers might theihselves combine to cany
out petty local schemes, with or without the assistance of the Board.
Such works were to be distributed impartially in different parts of the
district, in order to diffuse as widely as possible the knowledge of
what the District Board was doing and what its intent\pns were.
In considering the various schemes which had been brought
forward from time to time for the purpose of provid-

Drainage and

water-supply Con- ing Municipal towns, especially those on both banks

of the river Hooghly near Calcutta, with a supply ot
filtered water and with improved drainage. Sir C. Elliott was led to the
conclusion that the existing municipal law did not make adequate
provision for inducing municipalities to undertake, or to combime
their resources for the purpose of undertaking, such schemes. His
attention was also drawn to the facts that, in the opinion of the general
public, shared in by the Sanitary Commissioner, obstructed drainage
was to a large extent the cause of the fever which had for a long time
afflicted Bengal, and that the existing laws did not authorize the
execution of comprehensive schemes of drainage, embracing both

SIR CHARLSS ELLIOTT. 93d

municipal and rural areas. Tentative proposals were, therefore, drawn
up with a view to secure this object, and were circulated to selected
officers and non-official Chairmen of municipalities. On receipt of
their opinions, a number of gentlemen, official and non-official,
including the Chairmen of certain important mu/assal municipalities
who were qualified by their position and experience to advise the
Lieutenant-Governor on these difficult questions, were asked to meet
Sir C. Elliott at a Conference at Belvedere on the i8th July 1892.
After a full and careful discussion of the subject, the Conference
arrived at the following conclusions : —

(i) that the Local Government should be empowered of its own
motion to require municipalities {a) to apply to Government for the
extension of the provisions of the Municipal Act relating to water-
supply and drainage, and (b) to combine with one another, and with
District and Local Boards and Cantonment authorities, for the purpose
of improving the water-supply and drainage of the area subject to
their jurisdiction ; and

(2) that when an application was made to Government on the
part of the inhabitants of any tract where malarial fever prevailed,
or when it was notorious that there was a high rate of mortality due
to the want of drainage, provision should be made by law for
ascertaining the wishes of the majority of the inhabitants or owners
of property concerned, as represented by the District Board, and, if
the majority supported the scheme, the Government should be
empowered to carry out comprehensive schemes of drainage, and to
raise from the area affected such funds as might be necessary for
meeting the cost of such schemes.

Steps were taken to give effect to these Resolutions, the first by
The s a Hi tar including the necessary provisions in the Bill to
^>rfiinBee^ Kct, amend the Bengal Municipal Act of 1884, then

under consideration, while, in order to carry out the latter Resolution
a separate draft bill was framed, and introduced into Council in
February 1894. This passed through the usual stages into the Act,
VIII (B.C.) of 1895, to facilitate the construction of drainage works
for improving the sanitary condition of local areas. The Act
provided that, whenever an ^application was received from a Dis-
trict Board, reporting that they believed that the sanitary condi-
tion of any^tract within their jurisdiction had been deteriorated by

940 BENGAL UNDER THE LIBUTENANT-(K)VERNOR&.

the obstruction "of drainage, the Local Government might by an
order indicate the area of the tract affected, and prescribe the
appointment of 9 or more persons as Drainage Commissioners, of
whom not less than i were to be elected from the District or Local
Board, and the remainder appointed from among the holders of
estates and tenures in the said tract, or their managers. The Com-
missioners were then, through an Engineer, to cause a survey
to be made and prepare plans and estimates for the construction
and maintenance of the necessary works, and forward them, together
with a map of the affected area, to the Collector of the district.
This survey, plans, estimates, &c. were to be called the survey and
preliminary scheme. The Collector was then to publish in every
village of the tract affected a notification, inviting objections, and to
forward them, when received, to the Commissioners, who were to sub-
mit them along with the survey and preliminary scheme, and a Report,
if necessary, to the District Board for consideration. If the District
Board rejected the scheme, they would have to defray all costs
incurred up to this point : if they accepted it, they were to subqait
it to the Collector, who was to forward it to the Local Government
along with an estimate of the proportion to the road cess of the
rate leviable in the tract required to pay off in 30 years the total
cost of the undertaking and capitalized value of the expenses of
maintenance. The Local Government might approve, modify or
reject the scheme and decide what amount it would contribute, and
the scheme, as modified, was then to be finally accepted or rejected
by the District Board. The cost of construction and maintenance
was to be spread over 30 years and recovered by means of a rate
on land proportionate to, and payable along with, the road cess.
The Act also made provision for the construction of works in 2 or
more districts, for the payment of compensation, and for the punish-
ment of persons obstructing public drainage.

The Kidderpore docks were completed during the year 1891-92.
It had been originally proposed to construct 2

Kidderpore docks.

docks at a cost of Ks. 3,03,31,515, but in 1884
one dock only was sanctioned at a cost of Rs. . 2,00,00,000. A
revised estimate amounted to Rs. 2,64,01,605, but in October 1890
an accident of a serious nature happened to the dock walls, causing
them to bulge in one or two places, wl^ich entailed extn^ ej^

SIR CHARLES ISLLIOTT. 941

penditure ; additional works also proved to be necessary. A revised
estimate at Rs. 2,87,70,566, was sanctioned, and Rs. 2,80,98,066
were spent by the end of 1892-93. No further movement was
observed in the dock walls which had previously caused trouble and
alarm, by bulging in places, (an accident which necessitated the ex-
clusion of water for some months,) and it was hoped that the
measures taken by the Engineer for their security, which were in
accordance with the recommendation of a Special Committee, would
prove successful. With the exception, however, of the graving
dock, into which the first vessel was admitted on the loth of July
1891, the docks were not at once used, as the necessary arrange-
ments for connecting them with the railway lines were not imme-
diately completed. The scale of fees to be charged both for the
wet and graving dock was approved by the Local Government : and
a table of rates for the Port Commissioners' tramway, separating
terminal from carrying charges, had to be settled, as well as a
working arrangement with the Eastern Bengal State Railway. The
docks were legally open on the 28th September 1892, but were
hardly in a condition to receive heavy traffic for some months after-
wards. The first vessel entered the docks on the 28th June 1892,
but it soon became evident that shippers were not disposed to take
advantage of the facilities afforded, and the Port Commissioners
were called on by Government to take measures to arrange for the defi-
ciency in the revenues of the Port arising from interest on the capital
expenditure on the docks having to be provided for. Port dues at the
rate of 4 annas per registered ton were imposed on all vessels entering
the Port, with effect from the ist of December 1892, and a special
tax of 4 annas a ton levied, under the Calcutta Port Act, on all goods
landed from or shipped into any vessel lying within Port limits from
the I St. of January 1893. The special tax was continued during the
year 1893-94, the estimated receipts from it being Rs. 8,50,000, and
from Port dues Rs. 4,75,000. Sir C. Elliott caused the Port Commis*
sioners to be addressed as to the measures which it might be thought
advisable to take to attract traffic to the docks.

In 1892 the standing orders in force with regard to the tours to

be undertaken by administrative and executive

officers were examined, and fresh instructions were

issued in supersession of all previous rules on the subject of the

942 BENGAL 0NDER THE LIEUTENANT-GOVERNORS.

* duratioi) and object of tours. Sir C. Elliott called attention to the
great importance which he attached to personal supervision and com-
munication bet>yeen the Heads of Departments and the Chief
Executive Officers and their subordinates, and to close and minute
inspection by them of all branches of the offices and of the
work done by the subordinate officers. Specific orders on the sub-
ject were issued in the case of each Head of Department and class
of officers, prescribing the minimum period during which each was
required to be on tour and the reports to be furnished. Touring and
inspection were two of the duties of officers on which Sir C. Elliott
laid the greatest stress, and in which he himself set an example. It
had long been a commonplace of administration that officers should
" go to the spot,*' but it had never before been insisted upon that
officers should spend so much time on touring as was now prescrib-
ed : and never before had so much inspection, (and such thorough-
ness in the operation), been required. Opinions were divided as to
the necessity or desirability of such orders : the effect was no doubt
to ensure that the work of the country was better and more thorough-
ly done. The orders on the subject of tours were considerably
relaxed by Sir A. Mackenzie, soon after his assumption of office.
Under the Indian Councils Act, 1892, 1. e, 55 and 56 Vic. c. 14
the Governor General in Council was empowered
lativo Council en- by proclamation to increase the number of Council-

lurged.

lors whom the Lieutenant-Governor might nominate
for his assistance in making laws and regulations up to a maximum
of 20, and, with the approval of the Secretary of State in Council,
from time to time to make regulations as to the conditions under
which such nominations, or any of them, shall be made by the
Lieutenant-Governor, and to prescribe the manner in which such
regulations shall be carried into effect. Accordingly, on the i6th
March 1893, the Governor-General increased the number of Council-
lors whom the Lieutenant-Governor might nominate from 12, at
which it had stood since the proclamation of 17th Januar}' 1862, to
20, the maximum allowed by the Indian Councils Act, 1892. Under
Rule II of the regulations which were framed by the Governor-
General in Council, it was laid down that the nomination to 7 seats
in the Council of the Lieutenant-Governor of Bengal sdall be made
by the Lieutenant-Governor on the recommendation of the following

SIR CHARLES ELLIOTT. 943

bodies and associations. — a, — The Corporation of Calcutta ; 6. — Such
Municipal Corporations, or group or groups of Municipal Corpora-
tions other than the Corporation of Calcutta, as the Lieutenant-
Governor might from time to time prescribe by Notification in the
Calcutta Gazette] c, — Such District Boards, or group or groups of
District Boards, as the Lieutenant-Governor might from time to time
prescribe as aforesaid ; d. — Such Association or Associations of
merchants, manufacturers or tradesmen as the Lieutenant-Governor
might from time to time prescribe as aforesaid ; e. — The Senate of
the University of Calcutta.

Of the above bodies, those described under a, </, and e were to
recommend i nominee each, while those described under b and
c would each be ordinarily represented by 2 members. The recom-
mendations made by the bodies described under a, d, and e were
to be made by a majority of the votes of the members of those
bodies. With regard to the bodies described under b and c, the
following procedure for nominations was laid down. As regards
municipalities, those whose income was less than Rs. 5,000 were to be
excluded, while those whose income exceeded that amount were to
proceed each to elect a single electorical representative, who was to
exercise a voting power proportionate to the income of the muni-
cipality which elected him. Thus the representative of a municipality
with an income of Rs. 5,000 and less than Rs. 10,060 was to be
entitled to exercise only i vote at the conference of municipal
electoral representatives, whilst the nominee of a municipality with an
income of Rs. 100,000 and less than Rs. 150,000 was to exercise
a voting power of 5 votes. For the District Board elections all
districts were considered to be of equal importance, and each
District Board was to nominate one representative exercising one
vote at the election. For the elections of 1893 the municipalities
of the Presidency and Rajshahi Divisions, and the District Boards
of the Patna and Chittagong Divisions were selected as the first
bodies to exercise these new privileges.

Of the remaining 13 seats not more than 10 were ordinarily to
be filled by officials nominated by the Lieutenant-Governor while
the 3 remaining seats reserved for non-official members were to be
filled by persons nominated by the Lieutenant-Governor, so as to
secure) in his opinion, a fair representation of the different classes

944 BBNGAL UNDBR tHB LI E0TBI^ ANT -GOVERNORS.

of the community, provided that i seat shall ordinarily be held by a
representative of the great landholders of the Province.

Under the powers conferred by section 2 of the Indian Councils
Act, 1892, the Lieutenant-Governor, with the sanction of the Governor-
General in Council, made rules authorizing members of the Council
at any meeting for the purpose of making laws and regulations to ask
questions as to matters of fact framed so as to be merely requests for
information and neither argumentative, hypothetical nor defamatory,
subject to disallowance by the Lieutenant-Governor on the ground that
they could not be answered consistently with the public interests.
No question may be asked as to any matters or branches of the
Administration other than those under the control of the Lieutenant-
Governor, or as to any matters which are or have been the subject
of controversy between the Governor-General in Council or the
Secretar}' of State and the Local Government, and no discussion
shall be permitted in any case. The Lieutenant-Governor, under
the further power conferred by the same section, and with the like
sanction, made rules empowering Councillors to offer any observa-
tions they might wish on the Financial Statement of the Government
of Bengal, which is to be annually explained in Council, the Coimcil-
lor who explains the statement having the right of reply ; the dis-
cussion, limited to the branches of revenue and expenditure which
are under the control of the Local Government, being closed by the
President. The enlarged Council met for the first time on the 22nd
July 1893, under the Officiating Lieutenant-Governor, Sir A. P.
MacDonnell, who reviewed the history of the Legislative Councils,
and regarded the occasion as a landmark which would be memora-
ble in the constitutional history of the country. Under the new
rules, the position of a member of the Legislative Council has
acquired a greater value in public estimation ; the District Boards
and municipalities throughout the province have in turn elected
their representatives, generally of the pleader class, each for 2 years ;
there has been considerable local competition among a limited
number of candidates for each vacancy. The aristocracy, and the
land-holders of the province, as well as the Muhammadans, have
been well represented by the members carefully selected by the
Lieutenant-Governors. The special constituencies, such as the
University, the Calcutta Corporation, and Mercantile Associations

SIR CHARLES ELLIOTT. 945

have always furnished spokesmen who had their full confidence and
distinguished themselves in debate. The discussions have generally
been of a dignified, exhaustive, and business-like character, with a
tendency perhaps (not unknown elsewhere) of the members to justify
their election to their constituents by speaking constantly and at
great length. The right of interpellation has been freely used,
chiefly for the purposes of drawing attention to the conduct of
officials and of eliciting information to be used later. It is difficult
to see in what direction there can be a further liberalization of the
principles on which the Legislative Council is established, so long
as Government continues to preserve, as is at present essential, its
official majority.

Previous to 1892 the Bengal Legislative Council could not alter
any Act of the Governor-General's Council, but, since the passing
of the Indian Councils Act, 1892, it may, with the previous sanction
of the Governor-General, but not otherwise, repeal or amend as .to
Bengal any law or regulation made by any authority in India other
than that Local Legislature.

In May 1890 the Government of India called for a report from

the Bengal Government on the working of the iury

Trial by Jury. ° o j /

system in Bengal, with special reference 10 the
opinion entertained as to its merits as a means for the repression of
crime, and requested that any improvements in its application which
appeared to be necessary might be brought to notice. The subject
arose out of the inquiry which had been occupying the Government
of India regarding the working of the police and the machinery for
the repression of crime in British India, during which it had been
alleged by several authorities consulted that the jury system had, in
some degree, favoured the escape of criminals.

Reports were accordingly called for from the Commissioners and
Judges of those districts in which the system was in force, as well
as from the Inspector-General of Police. Sir C. Elliott was
also favoured with a copy of the replies of the Hon'ble Judges
of the High Court to a separate communication which had been
addressed to them by the Government of India. From the Reports
and Minutes received it became evident that the majority of the most
experienced Judges and officers consulted emphatically condemned
the system as then worked in Bengal, and were all of opinion that it

946 BENGAL UNDER THE LIEUTENANT-GOYESNOBS.

was capable of improvement. After a careful consideration of the
opinions and statistics t>erore him, Sir C. Elliott reported to the
Government of India that there could be no doubt of the failure of
the jury system in these Provinces in its existing shape. It Mras
pointed out that it would be scarcely possible to obtain opinions from
a large number of men more nearly approaching to unanimity than
was the condemnation of the jury system in Bengal contained in the
Reports and Minutes collected. Sir C. Elliott expressed his opinion
that, if the result could have been foreseen, no advocate would have
been found for the introduction of the western institution into India.
But as it had been introduced, and was prized on political grounds
as a means of identifying the people of the country with the adminis-
tration of justice, he was averse from its total abolition, and thought
that it would be sufficient to make such changes in its working as
seemed best calculated to remove the objections which had been
raised. To this end it was suggested that some extension should be
made in the right of appeal ; that section 307 of the Criminal Proce-
dure Code should be amended so as make it incun^bent on the
Sessions Judge to refer to the High Court every case in which he
differed in opinion from the jury ; that section 303 of the Criminal
Procedure Code should be altered so as to make it incumbent upon
the Judge to ascertain and record fully the reasons of the jury for
their verdict; that certain classes of cases, especially those relating
to murder, offences against the human body (with certain exceptions),
offences against the public tranquillity, and offences relating to
documents and trade-marks, should be withdrawn from the cognizance
of juries ; that the remaining classes of offences to which the jury
system applied should continue to be so tried ; and that offences
relating to marriage should also be made triable by jury : it was also
recommended that, where qualified jurymen were not easily obtain-
able, the number of the jury should be reduced from 5 to 3 and that
the limit of age qualifying for serving on a jury should be raised

i to 25.

In reply to these proposals, the Government of India remarked
that from a review of the Reports received from other Provinces as
well as from Bengal it appeared that the defects of the existing

I system of trial by jury were mainly attributable to 2 causes :— {1) to

the extension of the jury system (a) to areas to which it was unsuit-

SIR CHARLES ELLIOTT. 947

able, and (d) to classes of offences which, as experience showed,
ought not to be cognizable by juries ; (2) to the fact that the provisions
of section 307 of the Criminal Procedure Code, which were intended
to give Sessions Judges and the High Courts power to remedy and
correct wrong verdicts, had failed to fulfil this intention.

His Excellency in Council expressed his approval of the sugges-
tions made by Sir C. Elliott for modifying the classes of offences
which should be made triable by jury. With regard 10 the proposals
to amend sections 303 and 307 of the Criminal Procedure Code,
the Governor-General in Council observed that, although there was
a strong body of opinion among the Hon'ble Judges of the Calcutta
and Madras High Courts in favour of the proposal to amend section
307, yet it did not seem desirable that the Judge should be bound
to refer cases in which the failure of justice was not quite clear ;
while, with regard to the proposal to modify section 303, it was
remarked that no room should be allowed for anything approaching
to a cross-examination of the jury, not only because it would
be difficult for untrained men, such as the jurors would be in
most cases, to formulate their reasons in a satisfactory shape, but
also because it was doubtful whether a mere statement of their
reasons would help materially towards the disposal of the case.
With reference to the question of allowing an appeal on the facts
from the verdict of a jury. His Excellency was of opinton that this was
not expedient, as it was not clear what advantage there would be in
retaining the jury system at all if it was to be reduced so nearly to
the level of a trial with assessors, and the necessity of •any such
change in the law would be obviated by removing from the cogni-
zance of juries such classes of cases as experience showed to be
unsuitable.

A notification was then published on the 20th October 1892,
embodying the alterations which had met with the approval of the
Government of India, in respect to the classes of cases to be tried
by juries. At the same time the full correspondence on the subject
was published in the Gazette, The publication of these orders was,
however, received by an influential section of the public with much
dissatisfaction, disapproval was expressed at the partial removal of
what was looked upon as an important privilege. It was therefore
suggested by Sir C. Elliott that it would be best to refer the whole

948 BENGAL UMDKR THK LIKUTBNANl'-GOyBItNORS.

subject to a Commission, with instructions to consider the various
points under discussion and to report to Government on the feasibi-
lity of any scheme which would be generally acceptable, and yet
would safeguard the public from a recurrence of the failures of
justice to which attention had been drawn in the published corres-
pondence. This suggestion met with the approval of the Govern-
ment of India and the Secretary of State, and a special Commission
was accordingly appointed. The Commission came to the conclusion
that it was desirable that the classes of offences which, before the
20th. October 1892, were triable by jury in the 7 districts of
Bengal to which the system had been originally extended, should
continue to be triable by jury in those districts, and that the revised
classification should be amended.

In compliance with the recommendation of the Commission, and
with the previous authorization of the Governor-General in Council,
the notification of the aoth October 1892 was then withdrawn. The
further recommendations made by the Commission were taken into
consideration. While the more general questions were under dis-
cussion, a careful revision of the jury lists was undertaken, under Sir
C. Elliott's orders, in all the districts concerned, with the result that
the number of persons liable to serve on a jury was reduced, while
the qualifications of those selected were raised to a more efficient
standard.

A Bill to amend the Inland Emigration Act, I of 1882, was intro-

iniand Emigra- ^^^^^ *^^o the Imperial Legislative Council and
^^^ passed into law as Act VII of 1893. The following

were among the most important changes effected by this measure : —
(i) The maximum term of labour-contracts was reduced from 5
to 4 years, the term of labour-contracts executed in the labour districts
being restricted to one year when they were not executed before an
Inspector or a Magistrate, and to 4 years when they were so executed.
The reduction of the term of engagement had always been an object
with the authorities.

(2) No labourer was to be bound by his labour-contract to under-
take any work involving underground labour in mines, unless the
contract contained a specific obligation to that effect.

(3) The Local Government was empowered to cancel the contracts
of labourers who had been wrongfully recruited and, on the

SIR OHARLKS ELLIOTT. 949

application of any labourer whose contract had been so cancelled, to
cancel also the contract of any labourer related to htm in certain
specified degrees. Labourers whose contracts had been cancelled
under these provisions might be repatriated, and, if necessary, an
escort might be provided for them, the expense being recovered in
the manner laid down in the Act.

(4) Sub-contractors were debarred from working for more than
one contractor.

(5) Employers of labour were empowered to require medical
certificates as to fitness to labour in the case of labourers recruited by
contractors, as in the case of those recruited by gsivden-sardars or
local agents.

(6) The execution of labour-contracts at Dhubri was legalised :
i.e., at the place where the immigrant embarked on the Brahmaputra
on his voyage up that river : thus postponing the execution to the
moment of entering the province of Assam.

(7) The procedure for dealing with unhealthy gardens was revised
in certain particulars. It was intended to bestow more complete
power of inspection and subsequent action. Provision was made for
the summoning of a Committee of Inquiry by the Magistrate on
his own motion, or at the direction of the Local Government, and
the power of the Local Government to declare an estate or a portion
thereof unfit for the residence of labourers generally, or of any parti-
cular class of labourers, was restricted to cases in which the finding
of the Committee was not unanimous.

(8) Provision was made for the cancellation and determina-
tion of labour contracts by the Inspector or Magistrate in certain
cases, such cancellation giving the Inspector or Magistrate power,
'on the application of the labourers concerned, to cancel also the
contract of any labourer employed on any estate belonging to
the same employer, and related in certain specified degrees to
the labourer whose contract had been cancelled under these pro-
visions.

(9) Power was given to the Inspector or Magistrate to equalise
the terms of contracts entered into by husband and wife.

(10) Provision was made for the repatriation of, and the grants
of compensation to, labourers and their relatives in certain cases,
when their contracts had been cancelled or determined by the Inspec-

950 BENGAL UNDER THE L1EDTENANT-G0VERN0R8.

tor or Magistrate, and also for the repatriation in certain cases of
persons not under contract.

(ii) Provision was made for the punishment of gaLrdeii'Sardars
for improperly disposing of labourers recruited by them.

The Member in charge of the measure spoke as follows : — * The
result of this protracted investigation has been not only to show that
the continuance of the labour system established in 1882 is essential
for the well-being of the industry, which has done so much towards
colonising and opening out the rising province ot Assam, and in the
prosperity of which the Government of India and all of us have a
great and natural interest, but also to bear out the opinion, expressed
again and again by successive Chief Commissioners and other
impartial observers, that the condition of labourers on tea-gardens is
far superior to that of the masses in the districts from which they
emigrate. It has been also made clear that the time has not yet
come when labourers can be left to emigrate of their own accord and
at their own charges ; that without the security of the present system
employers could not risk large expenditure in assisting them to
emigrate ; and that, therefore, the continuance of the system estab-
lished in 1882 is still required as a means towards drawing-off the
surplus population • of the recruiting areas and opening-out the
sparsely peopled districts of Assam. The system has worked emi-
nently to the advantage of the emigrants, and in a manner on the
whole creditable to the body of planters ; and the Government of
India, after prolonged and anxious consideration, have come to the
conclusion that there are only two serious^ evils which have to be
remedied. These are, first, abuses and malpractices in recruitment ;
and, secondly, the high rate of sickness and mortality on the gardens,
chiefly among newly-arrived emigrants.'

When Sir C. Elliott took 6 months leave on medical certificate
sir A. p. Mac- "^ J""^^ '^93> ^^s place was temporarily filled by
ST'^Lieut^t: Sir Antony Patrick MacDonnell, of the Indian
Governor. ^j^jj gervice, then Chief Commissioner of the

Central Provinces. The latter had arrived in India in 1865, and
first distinguished himself in the Bengal famine of 1874, as
Collector of Darbhanga, receiving special promotion from Sir
R. Temple for his services. He wrote in 1875-76 a standard
book of reference on * Food supply and famine relief in Bihar and

SIR CHAKLES ELLIOTT. 951

Bengal/ As Revenue-General Secretary to the Bengal Government
from 1882 — 86 he was Sir R. Thompson's chief adviser in the dis-
cussions connected with the Bengal Tenancy Act. He had also held
the appointment of Home Secretary to the Government of India>
1886 — 90, and officiated as Chief Commissioner of Burma in 1889;
be was made C. S. I. in June 1888 and K. C. S. I. in January 1893.
During his six months in Bengal, Sir A. P. MacDonnell was chiefly
concerned with the survey-settlement work, especially that of north
Bihar. His views were not in accord with those of Sir C. Elliott,
and the differences of opinion were further manifested while Sir
A. P. MacDonnell was Member of the Govemor-Generars Council
from December 1893 to April 1895-, after he became Lieutenant-
Governor of the N. W. Provinces (in November 1895) he ex-
perienced another famine in 1896-97 and was made a G. C. S. I. oii
the 22nd June 1897.

In August 1 893 the Government of India recognised the hardships
Exchange Com- ^^'^^^h European officers in Government offices (in
pen&ition. Bengal, as elsewhere) had undergone in consequence

of the fall in the rate of exchange, as stated in their prayer for the
adoption of measures of relief. The facts left no doubt that Govern-
ment servants were suffering from wide-spread and severe distress.
The Government of India lost no opportunity of expressing sympathy
with those who had been affected and of urging upon the Secretary
of State the necessity of applying an early and adequate remedy.
But it had not been possible to deal with the matter while measures
regarding the reform of the currency were still under consideration.
When those measures were completed the following scheme was
sanctioned. To every European and Eurasian officer, of Govern-
ment, Civil or Military, not domiciled in India (except those whose
pay was fixed in sterling and converted into rupees annually at the
official rate) an allowance was granted, to be designated Exchange
Compensation allowance, sufficient to enable each officer to remit to
Europe ^ his salary, subject to a maximum limit of /'looo a year,
at a privileged rate. The privileged rate was fixed until further orders
at i^. 6d, the rupee. The allowance, which wjts to be admissible
whether any remittance was actually made to Europe or not, was
given in the form of a percentage on the officers* salary, varying with
the rate of exchange assumed as the market-rate for the quarter, and

952 6BNGAL UNDER THE LI1fiUTENANT-Q0YBRN0R8.

calculated to yield an amount equal to the difference between i salary
converted at is, 6d, and ^ salary converted at the average market
rate. The allowance was to be payable monthly along with the pay,
and under the pay rules, and was to be subject in every case to an
annual maximum equal to the difference between £1000 converted
at IS. 6d., and the same sum converted at the average market-rate.
Rules were issued prescribing the manner in which the percentage
for each quarter should be calculated, and defining the conditions
under which the allowance might be drawn. These orders took effect
from the 1st of April 1883.

During the early part of 1893-94 considerable activity was shown

Auti.kine-kuiin ^^ ^^^ different associations formed for the protec-
agitauon in BiW. tjo^ of kine, known as Gorakhshini Sabhas, in col-
lecting subscriptions and in promoting the anti-kine-killing move-
ment. Later, however, their efforts in this direction were less mark-
ed, and many of the branches either ceased to exist or confined their
attention to their legitimate object, viz, the care and feeding of
diseased, aged, and otherwise useless cattle. During April and May
1893 there were several riots, occasioned by the forcible rescuing of
cattle from Muhammadan butchers, and in no less than 7 places in
the Gaya district was it found necessary to appoint additional police
under section 15 of the Police Act. These measures were fortunate-
ly taken in time to act as a warning at the approaching Bakr-Id, and
that festival passed off without scenes of violence in any part of Bihar
except at the village of Hilsa in the Bihar subdivision of the Paina
district, where serious disturbances occurred. It was held that mis-
management on the part of the Government subordinates on the spot
was mainly responsible for what took place. The riots at Hilsa
occurred on the 26th and 27th June, and the Muharram passed off
quietly ; but on the 27th August a very serious riot broke out at
Koath in the Sasaram subdivision of Shahabad. A large concourse
of Hindus assembled from the neighbouring villages and made a raid
on the Muhammadan butchers of Koath, who were charged with
having caught and slaughtered a Brahmini bull. The Muhammadans
in revenge, on the afternoon of the same day, made an attack on
the Hindu quarters, in the course of which several persons were
severely injured, some with gunshot wounds. In the counter cases
which were brought, several accused on both sides were sentenced to

SIR CUlRLES ELLIOTT. 953

2 years* rigorous imprisonment, and the sentences were upheld m
appeal by the Sessions Judge and the High Court* Meanwhile in the
Saran district a drove of cattle intended for the Dinapore Commissariat
was stopped on the 3 1 st August by a riotous mob of Hindus at a place
called Bala on the high road between Champaran and Chapra. The
officer in charge of the Basantpur police-station then took up the case
and brought the cattle to the thana^ where they were eventually
placed for safety inside the police compound in charge of an Inspec-
tor and an armed guard of 10 men, who had been despatched
thither from Chapra. The subdi visional officer and the District
Superintendent of Police went to the spot and commenced inquiries ;
but, taking advantage of their temporary absence, and incited by
the preaching of a wandering propagandist, a large mob of Hindus,
who had collected from different villages for miles around, armed
with lathis^ on the evening of the 6th September at nightfall, after
an unsuccessful parley with the police with a view to their purchase,
made a determined assault on the thana in an attempt to forcibly
rescue the cattle. The police, however, stood their ground well, and,
after discharging blank cartridge with no effect, fired a round of
buck-shot, which wounded several of the assailants, 2 of them un-
fortunately mortally, and caused the mob to immediately disperse.
Several accused persons were prosecuted in each case — in the Bala case
before the subdivisional officer of Gopalganj on a charge of rioting,
and in the Basantapur case before the Chapra Sessions Court on
charges of dacoiiy and rioting. In the former case the convictions
were all set aside by the Judge in appeal, while in the latter only 2
out of 1 2 accused were convicted on the rioting charge, but even these
sentences were reversed by the High Court. These trials illustrated
the very great difficulty there often is in such cases in procuring
satisfactory proof of identity. The 2 men who were convicted by
the Sessions Court actually bore on their bodies the marks of the
buck-shot, but, though convicted unanimously by both the Judge
and the Assessors, they were given by the High Court the benefit
of the doubt of their having been disinterested passers-by. Besides
the prosecution of the actual offenders, steps were also taken to call
others to account, and prosecutions were instituted against certain
maliks and chauktdars for failure to give information, and a
number of sudhus found in the district at the time were required

954 BENGAL UNDER TflE LIEUTENANT-GOVERNORS.

to give security to keep the peace. After the occurrences above
narrated the tension of feeling much relaxed, and although subse-
quently cases occasionally occurred of Muhammadans being refused
the use of wells, and otherwise boycotted, no further open breaches
of the peace were reported. There was a good deal of mutual
forbearance on both sides, especially among the leaders of each
party. This was particularly marked by the absence in most places
of any tendency on the part of the Muhammadans to increase the
number of kine sacrifices, and their care to avoid doing anything
ostentatiously to hurt the feelings of the Hindus.

The ploughmen's begging movement first appeared in the
Gopalganj subdivision of the Saran district in the beginning of
November, having apparently come across the border from Gorakh-
pur. All ploughmen, the story went, were commended to give
their cattle 3 days' rest and go round the neighbouring villages
begging. With the proceeds 3 wheaten cakes were prepared, i for
the ploughman himself, i for his cattle, and the third to be buried
under their stalls. The movement gradually spread throughout
Bihar, and after affording a few days' wonder passed away, and
nothing was afterwards heard of it.

The tree-daubing mystery also afforded the widest grounds for
speculation. This movement consisted in marking trees with daubs
of mud, <in which were stuck hairs of different animals, buffaloes'
hair and pigs' bristles, according to the reports predominating ; and
it slowly spread through the north Gangetic districts eastM^ards into
Bhagalpur and Purnea, and westwards through many of the districts
of the N. W. Provinces. It also appeared in a few places in the
districts to the south of the Ganges, and was generally attributed to
wandering gangs of sadhus^ or religious mendicants. The move-
ment died out in a few months and the result seemed to show that
it had no real political significance.

In Sir A. Eden's time orders had been issued that either Nagri
Court Ian- ^^ Kaithi should be exclusively used throughout
guago in Bihar. ^j^g Patna Division, and that the use in the Courts
of any document in the Persian character, except as exhibits, should
be absolutely forbidden. The intention of Government was that
Hindi should be the language and Kaithi the character used in the
Courts. Subsequent experience, however, showed that the Nagrf-

SIR GAARLES fitLTOTT. ^55

character was more easily written and more legible than Kaithi, and
in accordance with the views expressed by the British Indian Asso-
ciation and others Sir C. Elliott decided that the Nagri character
should in future be used in the Courts in Bihar, and that the Court
. registers should be maintained in English and Hindi. On further
investigation it came to his knowledge that the difficulty of writing
the Kaithi character in a legible hand, and the extent to which the
Nagri character was known in Bihar, had been somewhat exaggerated
in the representations made to him. The Hon'ble Judges of the
High Court pointed out that the law empowered the Local Govern-
ment to declare what was to be deemed to be th« language of the
Courts, but provided no authority for the issue of orders regarding
the character in which such language was to be written. Sir C.
Elliott accordingly cancelled his previous orders which had pres-
cribed the use of the Nagri character, - and revived the orders
formerly in force, under which the Kaithi character was introduced
into the Courts and offices of the Patna, Bhagalpur, and Chota
Nagpur Divisions. But it was ordered that the headings of all
registers, other than those prescribed by the High Court, kept up
in the Courts and offices, not in Bihar only, but throughout the
province, were in future to be printed in English only. Figures
were invariably to be written in English (i. e., Arabic) numerals.
All clerks in charge of registers were warned that they must learn
the English character, and that, if they were not sufficiently well
acquainted with the English language by a certain date to admit of
their keeping the registers in the English character, their prospects
of promotion would be endangered.

The Secretary of State for India having, in answer to a question

put in the House of Commons, signified his willing-
Hemp Drugs *^ TOO

Commission. jj^gg jq have a Commission appointed to inquire into

the cultivation of the hemp plant in Bengal, a Commission was
appointed in July 1893 by the Government of India to inquire into
the production and consumption of hemp drugs in the whole of
India. The Government of Bengal rendered to the Commission all
the assistance in its power by procuring witnesses from all parts of
the province to give evidence before them and by carrying out in
other ways the wishes of the Commission. Before any oral evidence
was recorded, a series of questions framed by the Commission with

956 BENGAL UNbER THE LIEUTENANT-GOVERNORS.

the object of eliciting information on the subject-matter of their
inquiry were widely distributed among Commissioners, Collectors,
District Boards, and officers of the Police and Medical Departments,
private gentlemen and other public associations. The Commission
held sittings in Calcutta and in other selected centres in Bengal.
Their report was submitted in 1894, and the Government of India
issued a Resolution in March 1895. The subject was one of consi-
derable concern to Bengal, in which a large amount of excise revenue
is derived from the taxation of ganja. The Commission found that
very vague opinions or impressions had been formed on matters
relating to ganja consumption. The evidence taken showed pre-
sumptix'ely that the moderate use of hemp drugs does not cause
injury, though exceptional cases might indicate differenily. The
Government of India found also that hemp drugs cause insanity
in far fewer cases than had previously been popularly understood;
that the insanity so caused was usually of a temporary character
and of shorter duration than the insanity due to other causes :
and that there were no such marked ill-effects, physical, mental
or moral, attendant on the use of hemp drugs, as there were popu-
larly believed to be before the inquiry of the Commission was
made.

In accordance with the orders of the Government of India

certain statistics were compiled in 1893-4 showing
tiativw^iu the the Strength of the Indian Civil Service and the

non*Regulation Commission, the Provincial Civil
Service and the Subordinate Civil Service, and the number and per-
centage of natives of India employed therein on the 1st July in the
years 1870, 1879, 1 881, and 1893. While these statistics showed a
very Urge diminution in the strength of officers holding posts in the
cadre of the Indian Civil Service, the number in Bengal (excluding
Assam) in 1870 being 265, and in 1893 only 207, they were princi-
pally remarkable for the illustration they afforded of the large reduc-
tion in the numbers of executive and judicial appointments in the
Provincial Service held by Europeans and Eurasians. In 1870, out
of a service of 231 members in the Executive Branch of the Provin-
cial Service, there were 81 European, Eurasian, and American
officers, of whom 33 were European British subjects. In 1893 the
total strength of the service had been raised to 368 members, of

SIR CttARLES KtLIOTT. 957

whom only 38 were Europeans, Eurasians, and Armenians and only
12 were European British subjects. In the Subordinate Judicial
Service, out of a total staff of 257 officers in 1870, 12 were Europeans
and Eurasians, and only i was a European British subject. In 1893
the strength of the service had been raised to 364, and there was not
a single European or Eurasian in the service. Nothing could show
more clearly than these figures how largely the magisterial and judi-
cial appointments in Bengal had passed in recent years into the
hands of pure natives of India.

In 1892 the Government of India issued the following rules
under the Statute 33 Vic. c. 3, sec. 6, in supersession of the rules
of August 1870 : —

1 . The Local Government may appoint any member of the Pro-
vincial Civil Service subordinate to it, who is a Native of India and of
proved merit and ability, to any of the offices, places and employments
ordinarily held by members of the Civil Service of India, to fill
which it has been declared by such Local Government (by notification
in the official Gazette) that members of such Provincial Civil Service
can properly be appointed, provided that no appointment shall be
made to the office of District and Sessions Judge, or Chief Adminis-
trative officer of a district, or to any administrative office of higher
rank, if the vacancy to be filled is permanent, or for a period of more
than 3 . months, without the sanction of the Governor-General of
India in Council.

2. The Local Government may, with the previous sanction of
the Governor-General in Council (but not otherwise), at any time
appoint any Native of India of proved merit and ability to any of
the offices, places, and employments specified by such Local Govern-
ment in any such notification as in Rule- i is mentioned ; provided
that not more than one-fourth of the offices, places and employments
so specified shall at any one time be held by Na^tives of India not
members of the Provincial Civil Service subordinate to. that Local
Government : but this proviso shall not apply to or include any Native
of India (not a member of a Provincial Service) who has, prior to the
making of these rules, been appointed under Statute 33 Vic. c. 3*
s. 6, to an office, place or employment in the Civil Service of
India.

In 1891-92 a ruling of the High Court which had the effect of
61

958 BBI^GAL UND16R THE LIKtTENANT-GOVKRNO&S.

declaring important provisions of the municipal law not to be in force

in certain municipalities called for immediate
Munidpfti remedy. Sir C. Elliott was thus led to enter upon the

Act 1894. , .,,,.,*

general question whether the time had not come to
amend the Bengal Municipal Act, III of 1884, on a variety of points
which had from time to time been brought to notice as calling for
amendment. The matter principally requiring reform was the system
under which the assessment of municipal rates was framed, in which
many irregularities were found to exist. Larger powers were also
needed to enable the municipalities to enforce sanitary regulations,
and provisions were required to facilitate the control of the Govem-
^ ment over municipalities which neglected their duties — a control
which could then only be exercised by the drastic process of sus-
pending or abolishing the powers of the Commissioners. A draft
Bill embodying such changes as app)eared to be most urgently called
for was accordingly prepared, was approved by the Government of
India, introduced into Council in July 1892, dealt with by a Select
Committee and so much altered, even in important principles, as to
require republication. Thereupon considerable opposition to certain
provisions of the Bill was manifested, on the ground that they tended
to interfere with the principles of Local Self-Govemment and to put
the municipalities in a worse position than was contemplated in the
Act of 1884. Sir C. Elliott took note of these objections, and, in
his desire not to insist on reforms distasteful to the majority of those
concerned in cases where the administration could be satisfactorily
maintained by taking any other course, formally withdrew, in a speech
made at a meeting of the Legislative Council held towards the
beginning of January 1893, those provisions of the Bill against
which hostile criticism had chiefly been directed, viz., those empower-
ing the Local Government of its own motion to vary the boundaries
of a municipality, or to deprive a municipality of its power to elect a
Chairman in case of continued neglect of duty. The other points
objected to by the public were left to the consideration of the Select
Committee, to whom the opinions received were communicated, and
Anally to that of the Council. When proceedings had reached this
stage, the question of remodelling the constitution of the Legislative
Council on a mixed basis of election and nomination engaged the
attention of Government, and it was decided not to proceed with the

SIR CHARLBS BLLIOTT. 959

Bill till the Council and with it the Select Committee on the
Bill, were revised and enlarged. The measure was subsequently
reintroduced into Council, and passed into law.

The Bengal Municipal Act IV (B. C.) of 1894 was divisible into
3 categories ; the first consisted of important changes in the law ;
the second of administrative changes of minor importance ; and
the third of changes merely corrective, which repaired omissions,
gave effect to judicial decisions, recast the wording of sections with
the object of removing possible doubts, and repealed those which
were no longer necessary.

The important alterations in, and additions to, the law effected
by the Act were the following : —

Power was given to the Commissioners of any municipality to
unite with any other neighbouring local authority or local authorities
in constituting a Joint-Committee for any purpose in which joint
interests were concerned.

Effect was given to the Resolutions passed at the Belvedere
Conference on the i8th of July 1892, on the subject of drainage and
water-supply, local authorities being empowered to introduce schemes
for carrying out a system of drainage or for supplying water for
domestic purposes, provision being made for Government taking the
initiative when a local authority was unwilling to do so, Government
at the same time being precluded from carrying out a scheme to
which Irds of the Commissioners or Joint-Committee, in certain
cases, or Jrds of the rate-payers of a municipality in other cases,
were opposed.

The franchise was extended to persons holding an office on a
salary of not less than Rs. 50 a month, provided that —

(a) they were paid by a registered Company which had paid
Rs. 100 in rates during the year ;

(d) they were under a joint undivided family, one of the members
of which had paid not less than Rs. 3 as rates during the year ;

Power was given to Government to disestablish a municipality,
or to alter its boundaries when it no longer fulfilled the conditions
which originally justified its creation ; to appoint Commissioners
tX'officio ; to delegate some of its less important powers to Commis*-

960 BENGAL UNDEft THE LlEtJTBNAI^T-GOVERJiOkS.

sioners of Divisions ; to appoint a special auditor when the accounts
of a municipality were in confusion ; to appoint an assessor of
municipal taxes when it had been found that the affairs of a muni-
cipality required it, and when the Commissioners would not move
themselves.

Commissioners were empowered to order a survey ; to organise
a fire-brigade ; to close after due formalities any source of water-
supply which was suspected of being dangerous to health ; to
exercise greater control over buildings in a dangerous state ; to
frame wider bye-laws than before^ and to make rules for the conduct
of their business, and, in the case of municipalities in the hills, to
make bye-laws for the prevention of landslips and other dangers to
which such localities were especially liable. Commissioners of
Divisions were precluded from finally passing orders on municipal
budgets until the Municipal Commissioners had had an opportunity
of replying to their criticisms.

The maximum rate leviable for the supply of water was increased
from 6 to 7i per cent, on the value of holdings. The tax on persons
and the tax on holdings might be levied in the same municipality,
and arable lands might be assessed where the personal tax was in
force. Detailed building regulations were provided by the Act.
which might be extended to any municipality at the request of the
Commissioners thereof.

Sir C. Elliott availed himself of the occasion of a disturbance in

Maintenance of ^^^ ^^^" ^^ Rampur Boalia in connection with the
order at feetivaia. Muharram Celebration to issue general instructions
regarding the maintenance of order on the occasion of the Muharram
and other festivals when large concourses of people assemble
together. He directed that the carrying of sticks, which could be
used for purpose of attack, should be prohibited whenever there
might be reason to expect disturbance. But this prohibition was
not made universal, for it had to be remembered that, as a rule,
these processions were peaceful and popular, and also that fencing
with sticks was by immemorial usage a conspicuous feature in the
Muharram proceedings.

If assemblages of the public were not permitted to carry weapons
of offence, the ordinary police with their batons would be sufficiently
equipped to be able to maintain and enforce order even against

SIR GHARLBS ELLIOTT. 961

large crowds. It was therefore laid down that the armed police
should always be kept in reserve and only called out when it was
necessary to take some specific action such as to disperse a mob,
and that they should never be entrusted with the routine duty of
marshalling the processions. When armed police were necessary
they should go out only by special order of the district Superin-
tendent of police, who should consult the district Magistrate if there
was time to do so. The district Superintendent should himself be
in charge of the party ; but, if he should be temporarily engaged
elsewhere, the command must devolve on his Assistant or on an
Inspector. If it was necessary to call out the armed police at
subdivisional head-quarters, the responsibility was to rest on the
Inspector in charge, subject to the orders of the subdivisional officer.
In all cases when armed police were sent out, they should keep
together in compact bodies under competent officers fully instructed.
The officer in charge of the party would be responsible for the
order to fire if the emergency should arise ; but in no case should
such an extreme measure be resorted to unless it was absolutelv
necessary for the protection of life and property.

The Indian Museum derived great benefits from Sir C. Elliott's
regard for Archaeology, and it may be mentioned
that in recognition thereof the Trustees of the
Museum presented him with an address on his departure, and erected
a tablet in his honour. Early in May 1894, the Trustees of the
Museum drew the attention of Government to the historical and
philological importance of the Asoka * inscriptions scattered all over
India, and to the fact that no permanent memorial of them existed,
while the originals were exposed to decay and injury. As the
Museum contained no copy of these inscriptioifs, and it seemed to
Sir C. Elliott desirable that a collection of them should be made and
exhibited for the information of the public, he arranged to have casts
taken of those which existed in Bengal, and addressed the Govern-
ments of the N. W. Provinces and Bombay for the Khalsi and Girnar
inscriptions respectively. As an application to the Government of
India for the appointment of a special Archaeological officer for
Bengal proved unsuccessful, Mr. A. £. Caddy, then employed as
teacher of drawing at the Sibpur Civil Engineering College, was

Aspki^ : King of Magatlha b.c. 264, died B.C. 223,

962 BENGAL UNDER THE LIBUTENANT-OOVERNORS.

deputed to take plaster casts of the inscriptions at all the sites In
Bengal, viz., the Radia and Mathia pillars in Champaran ; Sahasaram
(or Sasaram) in Shahabad ; Barabar and Nagarjuni in Gaya ; Dhauli
and Khandagiri in Cuttack ; and, with the assistance of the Madras
Government, Jogoda in Ganjam. The undertaking proved more
laborious than had been anticipated. Eventually the Indian Museum
was presented by Government with a facsimile set in plaster of the
Asoka inscriptions at these places. The Government of the N. W.
Provinces furnished a copy of the Khalsi inscriptions in Dehra Doon.
Dr. Hultzsch, Epigraphist to the Madras Government, provided copies
of 3 inscriptions found at Siddapur in the Mysore territory, and Dr.
Fuhrer, Archaeological Surveyor, N. W. Provinces and Oudh, obtained
a copy of the Asoka inscription at Nigliva in Nepal, and of that on
the pillar at Allahabad, so that the collection of such inscriptions at
the Indian Museum was made as complete as possible, in a separate
Asoka Court.

Also, Surgeon Major L. A, Wad dell, of the Bengal Sanitary-
Department, a well-known authority on Buddhistic antiquities, was
deputed to make investigations of the Buddhistic remains in the Swat
Valley and in the direction of Chitral, and to procure specimens and
relics for the Indian Museum. Major Waddell received much assis-
tance from the civil, political, and militar}' officers. A number of
sculptures, figures, and carvings were discovered in the Swat Valley
and at Dargai, and the Government of India sanctioned their presen-
tation to the Trustees of the Indian Museum, Calcutta, after the autho-
rities of the Lahore Museum had made a selection of such of the
articles found at Dargai as they required. Mr. Caddy was also
deputed to the Swat Valley and obtained a number of interesting
Grecian and Buddhistic remains for the Indian Museum. He also
took moulds of the rock inscriptions at Girnar in Kattiawar and
Siddapur for the same purpose.

It was arranged that at the close of the rains of 1894 excavations
should be made, under the supervision of the Collector of Patna,
and with the advice of Dr. Fuhrer, in some of the more important
mounds to the south of the city of Patna which were sup]>osed to
cover the site of Asoka's capital of Pataliputra, a relic stupa and
the vihara of Buddha's footprint. Some excavations were made and a
circular wall, probably the remains of a watch-tower, brought to light;

SIR CHARLES ELLIOTT. 963

but the primary object in view, viz., the discovery of the site of the
Maurya Palace, was not effected, and it was decided to continue the
explorations subsequently in consultation with Major Waddell. He
visited Patna under Sir A. Mackenzie's orders in February 1896, and
indicated certain sites on which, in his opinion, excavations were
likely to be more successful. The local authorities were entrusted
with the arrangements for these excavations.

The construction estimate of the Orissa Canals project was closed
on the 31st. March 1895, and up to that date

OriMNi CanalM.

the outlay amounted to Rs. 2,61,84,061. The
further expenditure required to complete works already sanctioned,
but which had either not been commenced or had not been com-
pleted on the 31st. March 1895, was Rs. 1,86,621. The total cost
of the project was therefore Rs. 2,63,70,682. As the result of this
outlay, the province of Orissa was provided with the following works,
which were for the most part situated in the Cuttack district : — 7 weirs
across river channels, with an aggregate length of 3^ miles, and
constituting, with the canal head sluices and entrance locks the most
extensive system of head works of any canal system in India : — ^there
were 204I miles of canals, which were navigable in addition to
carrying water for irrigation ; these canals communicated with tidal
water at 5 points, of which the more important were the locks ai
Alba and Jumboo : the former gave the [most direct route to Chand-
bali, and thence by sea-going steamers to Calcutta, while the latter
opened into tidal creeks leading to False Point harbour : there were
also 75 miles of canal for irrigation only : the distributaries aggre-
gated 1,091! miles in length. First-class embankments for a total
length of 172^ miles had been constructed and charged to the
project, which gave protection to an area of over 850 square miles.
More than 200 miles of drainage cuts had been made to prevent the
soil being water-logged from the use of canal irrigation, and a
considerable number of natural drainage channels had been opened
up and made more efficient. The aggregate supply of water avail-
able at the heads of the main canals was 6,058 cubic feet per second,
out of which 5,340 might be usefully employed in irrigation. With
this supply it was probable that, in a year of drought, the area on
which a full crop could be guaranteed would be about 272,ooj
acres. The largest area previously irrigated was 186,627 areas.

964 BENGAL UNDBR THE LIEUTENANT-GOVERNORS.

The Orissa Canals have proved an expensive undertaking, and there
is little hope of their becoming remunerative, but on the other hand
the works have been and are of great value to Orissa. The large
expenditure has greatly improved the position of the labouring
classes. Trade has been developed, and a large area has been put
practically beyond the fear of famine.

In October 1895 the Bengal Chamber of Commerce suggested
Labour In ui ^^ Government the appointment of a Commission

Commission. ^q consider the question of the supply of labour,
not only to the tea industry in Assam, but also to the local mines
of Bengal. Attention was drawn to the inadequacy of the supply
of labour to local mines, and to the enormous and steadily increas-
ing cost of the labour imported from Bengal into Assam. Sir C.
Elliott was impressed with the opinion that evils attending recruit-
ment for emigration were largely due to the competition among
employers and might be avoided if an agreement could be come to
by which a sort of central clearing-house could be established, to
which all intending emigrants could be brought and from which
they could be distributed to the different pldces from which demands
for labour were sent in. Accordingly a Commission was appointed
during the cold weather months. The Commission, consisting of
6 gentlemen under the presidency of Mr. H. C. Williams, c. s.,
were instructed — (i) to ascertain the extent and conditions of the
labour requirements in the local mining industry, and the condition
of the districts in which the coal mines of Bengal were situated ;
(2) to inquire into the best means of encouraging emigration from
the congested districts of the N. W. Provinces and Bihar to the
mining districts, where labourers were scarce ; (3) to consider the
possibility of establishing one central agency for recruitment.

The Commission submitted their Report in June 1896.

Towards the close of his tenure of office Sir C. Elliott recorded
District and Local ^'^ vicws (which Sir A. Mackenzie shared; of the

Boards. ^q^j^ of the District and Local Boards in Bengal :

he had watched it with interest during his 5 years and formed a
distinct opinion as to their respective merits as departments of the
public service. " In District Boards the Government possesses a
valuable agency, for assisting the executive of the districts with
information as to local wants and conditions, and advice in the

SIR CHARLES ELLIOTT. 965

manifold details of internal executive administration. The strength
of these Boards resides in the fact that they represent more or less
adequately the chief interests of the district, and that the questions
which come before them are important enough to arouse their interest,
while at the same time they are relieved by the executive of the
duty of controlling and supervising details. The chief defect of the
District Boards consists in the large area of their jurisdiction and in
the difficulty of appointing a body of men who will effectually re-
present all parts of the district and all interests in it. The division
of functions between the Boards and their Chairmen is one well
adapted to the work that has to be done. The representative body
supplies the information and experience on which to base the de-
cision as to what should be done ; the officer who wields the executive
power in the district gives effect to those decisions. With Local
Boards it is different. It has hitherto been found impossible to
extend their functions so as to give them work of sufficient importance
to enlist their interest keenly. Nor, at any rate in most cases, have
they at their head an officer of experience in business with a
sufficient staff at his disposal. Thus their energies flag, and the
work that is given them to do is too often indifferently looked after.
The policy by which these defects can be cured seems to be one
involving larger decentralisation, the devolution of ' some of the work
now retained by the District Boards^ the appointment of an official
Chairman, and the abolition of the Sadar Local Board, which is an
evident superfluity. It is possible also that the extension of Union
Committees and the promotion of village sanitation may stimulate
the energies of Local Boards and provide for them congenial work
in supervising and guiding the action of the Committees ; or again
the latter, being more closely in touch with local interests, may in
time absorb the functions of Local Boards and render these bodies
superfluous. Either result, however, must be the work of time, and
it would be premature to venture on any forecast of what will happen
within the next few years."

Besides the Acts of the Legislature of which special mention
has been made, other Acts passed by Sir C. Elliott

Legislation. * f J •

to deal with pressing requirements of the Adminis-
tration may be briefly noticed. In 1891 the law relating to Hackney
(:arria^es and palanquins in Calcutta was amended and consolidated

966 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

in 1893 provision was made for the licensing of warehouses and the
maintenance of a fire-brigade : both these projects of law were
minutely debated. The main object of Act I (B.C.) of 1895 (relat-
ing to the Recovery of Public Demands) was to amend and
consolidate the law dealing with certificate procedure, and to
separate the process by which the land revenue due from pro-
prietors of estates was recoverable from that by which a great
number of minor demands, such as fees, fines, duties, taxes, costs,
and the like were recovered from the public in general. The
2 processes were to be independent of each other, each having
its own Act and its own procedure. It was also found desirable to
provide, by Act V (B.C.) of 1895, for the segregation of pauper
lepers, and the control of lepers exercising certain trades. Altogether
the Legislative Council was amply employed from 1890-95,
although no measure of first-rate importance came before it.

It is impossible to describe at equal length all the matters which
come before a Lieutenant-Governor, especially when his term of

office was conspicuous for such vigorous activity as

Miscellaneous.

distinguished the quinquennium 1890-95. A bare
enumeration of the following matters dealt with by Sir C. Elliott
must suffice. Three new districts were created ; the subdivisions of
Lalbagh and Barrackpur were abolished : the Chuadanga sub-division
was amalgamated wiih Meherpur : a City Magistrate was appointed
for Patna : an additional Commissioner of Patna was appointed for
6 months yearly : the Deputy Commissioners of the N on- Regulation
districts were converted into Magistrate-Collectorships : the number
of Subordinate Judges and Munsifs was increased : an additional
Judge was appointed for the eastern districts : the Subordinate Judge
of Gaya was dismissed for taking a bribe : the ministerial establish-
ments of judicial officers were strengthened : the number of Rural
Sub-Registrars was increased : the Excise Commissionership was
made permanent. The police was reorganised mainly on the lines
suggested by the Police Commission of 1890 at a total cost of more
than 5 lakhs per annum : a school for the training of police officers
was opened at Bhagalpur : barracks were built and improved : special
reserves of armed police were created in every district to meet local
emergencies : and the French system of identifying criminals by
measurement was introduced. The jails at Buxar and Bhagalpur

SIR GHARLBS BLLIOTT. 967

were enlarged : the Hazaribagh jail was converted into a central jail :
special Committees were formed for the purpose of conducting
systematic inquiries into the condition of the less healthy jails : the
water-supply of all the jails was examined and improved : an inquiry
was instituted into the working of the Small Cause Court, Calcutta :
the practice of throwing dead bodies into the rivers of Bengal was
prohibited : the system of payment of land revenue and cesses and
the zamindari dak cess was inquired into and reorganised : the
Famine Code was revised : the amendment of the revenue sale law
was much considered but given up : revised rules were issued for
leases of waste lands for tea cultivation : rules under the Emi-
grants' Health Act were considered : the revenue administration
of the Orissa Canals was reformed. A large block of build-
ings to be devoted to the study of anatomy was added to the
Medical College, and numerous minor improvements were made
in the buildings of that institution; surgical and midwifery wards
and a dispensary were constructed at the Campbell Hospital ; a new
hospital was commenced at Bhawanipur : the medical relief available
in Calcutta was fully examined : the sanitation of Puri was improved :
the Vaccination and Sanitary Departments were completely
reorganised : the Albert Victor asylum for lepers was established as a
permanent memorial of His Royal Highness's visit to Calcutta :
quinine was brought by the sale of one-pice packets of 5 grains
through the Post office within the reach of the poorest classes, and
the supply was increased by the purchase of a fresh plantation at
Nimbong near Darjeeling. The system of weighing salt was
improved. Under the head of Public Works the period was one of
considerable activity. In Calcutta, a new Police Court, an office for
the Presidency Commissioner, the Collector of Calcutta, and the
Collector of Income Tax, and 2 new buildings for the Stamps and
Stationery Department, were built, a fresh wing was added to the
Indian Museum, and the Small Cause Court was greatly enlarged.
In the mufassal a large number of Government offices were built and
extended, and quarters provided for officials in several places where
houses were not to be had. Feeder roads were opened in connection
with several railways, and a definite scheme was worked out for
future operations in this direction. Material help was afforded to
the backward districts of Palamau and the Sonthal Parganas towards

968 BBNOAL UNDER THR LIBUTBNANT-QOVBRNORd.

new and improved roads ; the communications of the tea districts
of the Duars and of Darjeeling were improved and a great number
of bridges constructed on provincial roads. A large project, the
canalisation of the Bhangor Khal, was undertaken, to improve the
best route to Backergunge and extend the facilities for traffic with
Eastern Bengal generally. The Orissa system of canals ^'as ex-
tended; and the Hijli tidal canal remodelled. Particular atten-
tion was given to the construction of distributaries, and the col-
lection of irrigation rates was improved. In the Education De-
partment, money was spent on improving the teaching at the
Sibpur Engineering College, and a new set of workshops was con-
structed for the practical training of the students; a Veterinar)'
School and Hospital were created at Belgachia, near Calcutta ;
primary and female education were extended ; the Bihar industrial
school was reopened in November 1892, amalgamated with the Patna
Survey School and named the " Bihar School of Engineering";
a new school for European boys was commenced at Kurseong ; the
Sanskrit tols were inspected and a grant was made for stipends and
rewards to teachers and pupils : drawing was introduced into schools
where possible : a chemical laboratory was added to the Presidency
College : a new building was provided for the School of Art in '
Chowringi : large additions were made to the Eden Hindu Hostel,
and the Calcutta Madrasa boarding house was begun with the object
of providing suitable accommodation for all, or a large proportion, of
both Hindu and Muhammadan students : the Lady Elliott hostel for
female students was erected at Sealdah : the Volunteer movement was
encouraged : the Dacca, Bhagalpur, and Burdwan water-works were
extended, and schemes for supplying Arrah, Howrah, Maniktola,
Cossipore-Chitpur, Midnapore, and Berhampore, sanctioned or ad-
vanced : various local drainage works, e. g. for Patna, Muzaffarpur,
Comilla and Jalpaiguri, and for the Rajapur, Howrah and Amta
swamps were carried or matured : the work of Executive Engineers
of the P. W. D. was transferred to District Engineers : and even this
list cannot claim to be exhaustive. Sir C. Elliott personally gave
Rs 5,000 in 1892 to create an endowment for the encouragement of
original research in Physical Science in Bengal. He gave also ;f 1000
to the children's ward of the Calcutta DufFerin Hospital, and a large
sum to the Universitv Institute,

SlK CHARLES ELLIOTT. 969

The preceding pages will have given some idea of the principal
incidents of Sir C. Elliott's Administration : it is

Romarlu.

difficult to give an adequate impression of the strenu-
ous energy, the mental and physical activity, which were its chief
characteristics. Never sparing himself, he was always at high pres-
sure and expected everybody to be the same. He worked laborious-
ly to acquire the fullest knowledge of Bengal and its people, and to
advance the province, A great critic said of him that ' he was always
too ferociously in earnest.' There were some who thought that
better results might have been obtained by more persuasive methods.
The policy was to make everybody work to the utmost and by rigor-
ous inspection to ascertain that the work was done. Such a policy
could not be popular and it engendered some friction. But like
some other Lieutenant-Governors -he cared nothing for popu-
larity, and aimed at nothing but the performance of his duty,
as it presented itself to him. His moral courage, self-reliance,
independence and single-mindedness were conspicuous in all his
actions. There was not another man in India at the time who
could have done the Settlement work he did in Bihar and Bengal,
so much of it or so well. In this department he left an imperishable
mark on the country. His knowledge of the whole subject, gained
elsewhere, enabled him to form anticipations which have been fulfilled.
The success of the Bihar Survey-Settlement has been proved by the
satisfaction which it has given to all concerned and by the easy reco-
very of the costs. He knew no fear in grappling with difficult or dan-
gerous questions. The prosecution of a native newspaper effected its
purpose in checking the license of the press. In dealing with the
jury question he was substantially in the right, though he had to
yield to public opinion. He declined to sacrifice a subordinate officer
to the vindictiveness of the Native Press, who never forgave him. His
labours for the improvement of the province in all matters of sanita-
tion, education, and public works were indefatigable and only limited
by financial considerations. For the schoolboys of Bengal especially
he had a kind heart and a though tfulness for their best interests.
His philanthropic munificence was unprecedented. There can be no
question that great progress was achieved and the work better done
in Bengal during the years 1890—95, and that Sir C. Elliott deserved
the whole credit for these improvements. *

970 BENGAL UNDER THE LIEUTENANT-GOTERNORS.

No account of his time would be complete that omitted to make
mention of Lady Elliott. I would rather avoid alluding to ladies in
this work^ but an exception must be made in her case : and even so
I prefer quotation to any words of my own. A leading journal said
— *' The salon of some notable dame is no longer the rallying point
of a party, the centre and focus of its activities. It has been reserved
for Lady Elliott to revive in India an interesting tradition of English
public life and to show us what power for good can be exercised by
an English lady who joins to sincerity and kindness a remarkable

social talent It is the peculiar credit of Lady Elliott that she has

wiih singular success maintained and popularized in this Presidency
a neutral ground whereon men of the most divergent opinions could
meet and sink their differences. That is no slight public service.
Upon the kindly tact and just discrimination which have enabled her
to render everyone his due, after such sort that none felt the shade of
neglect or the chill of despite, we will not dwell. They are familiar
to everyone who has been privileged to meet the gracious hostess of
Belvedere in her own home or elsewhere. Kind and true she has
done her duty, and much besides, in the arduous position which she
has held for 5 years. Lady Elliott may take with her, to sweeten the
leisure she has so hardly earned, the sense of high responsibilities
fulfilled and the knowledge that she lives in hearts she leaves behind."
And much more might have been said. The pictures of two ladies
permanently adorn the walls of Belvedere ; one is of the late Queen-
Empress, — the other is of Lady Elliott : could there be better testi-
mony to the esteem felt for the latter in Calcutta and Bengal ?

Sir C. Elliott married, ist, in 1866, Louisa (who died 1877)
daughter of G. W. Dumbell, Esqre. of Belmont, Isle
of Man and had 3 sons and a daughter ; and and,
in 1887, Alice, daughter of the late Thomas Gaussen Esqre. of
Hauteville, Guernsey, and widow of T. J. Murray, Esqre., i. c. s.
and had one son. After his retirement, he was elected a member of
the London School Board and soon became its Finance Mini-ster.

.vure. Sucvry nf India Offlre>,Calcuna,rebruary ]S01

SIK ALt:XANi)ER MACKK N7.1 ". K.C. S. I.

CHAPTER XI.

SIR ALEXANDER MACKENZIE, k. c. s. l,

1895—98.

When Sir C. Elliott's time was drawing to a close, there were 2
Freviows officers, Sir A. Mackenzie and Sir A. P. MacDonnell,

.areer. ^^^^^ ^£ whom were understood to have claims to the

succession. Both belonged to Lower Bengal : both had held important
posts in other parts of India : the former was the senior, the latter
had officiated as Lieutenant-Governor for 6 months. Lord Elgin's
choice fell on the former. Alexander Mackenzie, b.a., was a son (born
28th June 1842) of the Revd. Dr. Mackenzie of Birmingham and In-
verness: was educated at King Edward VFs Grammar School, Birming-
ham, and Trinity College, Cambridge ; appointed to the Bengal Civil
Service after the open competitive examination of 1861 ; arrived in
India, December 1862 ; was Assistant Magistrate and Collector, Shaha-
bad, September 1863, and at Kushtia ; from February 1866 to Decem-
ber 1873, served as Under-Secretary, Junior Secretary, and OfFg. Secre-
tary to the Government of Bengal ; on famine duty, December 1873 '■>
on furlough 1874-75 ; Officiating Secretary, Board of Revenue,
November 1875, and again in 1877 ; Magistrate and Collector,
Murshidabad, July 1876 ; also in charge of the office of Agent to the
Governor^General, Murshidabad ; Junior Secretary. Board of Revenue,
May 1877 ; Officiating Secretary, Government of Bengal, General and
Revenue Departments, July 1877 ; Secretary, Government of Bengal,
Financial Department, October 1877; Member of the Lieutenant-
Governor's Legislative Council, January 1879; Secretary to the
Government of India in the Home Department, April 1882 ; C, S. I.,
May 1886; Chief Commissioner of the Central Provinces, March
1887; Chief Commissioner of Burma, December 1890; K. C. S. I.,
January 1891 ; Member of the Council of the Governor-General,
April 1895. Early in his service he had compiled a " History of the
relations of the Government with the Tribes of the N. E. Frontier
of Bengal." On becoming Lieutenant-Governor on the 17th Decem-
ber 1895, he retained the services of Captn. J. W. Currie as Private

972 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

Secretary for a few months and then appointed Mr. A. H. Gayer of
the Burma Commission. He married, ist, in 1863, Georgina Louisa
Huntly, youngest daughter of Colonel W. Bremner of the Madras
Army (she died in July 1892): and 2nd, in 1893, Mabel Elizabeth,
youngest daughter of the late Ralph Elliot Esq., eldest son of Sir
George Elliot, Bart^ m. p. ; by his 2nd wife he has a son and a
daughter.

Early in 1896 Sir Alexander Mackenzie, having received com-
munications from various experienced officers in-

Tours of Officers.

dicating the advisability of modifying to some extent
the hard-and-fast rules in force on the subject of the inspection tours
of revenue officers and Heads of Departments, so far relaxed the
orders prescribing certain minimum periods for the tours of Com-
missioners, district and subdi visional officers, that Commissioners of
Divisions were allowed discretion to arrange the length and character
of their own tours, and those of their district and sub-divisional
officers, with due regard to the importance of making themselves
personally acquainted with all parts of their respective jurisdictions «
of inspecting with reasonable frequency all public institutions therein
situated, and of making from time to time, in person, such local
inquiries as might be necessary to enable them to conduct their
duties with satisfaction to themselves and Government, and to supply
any information specially required by Government. Stress was laid
upon the necessity of having the disposal of case-work by district
and sub-divisional officers interfered with as little as possible by
their tours ; and periodical (in the case of sub-divisional officers,
weekly) visits to head-quarters were prescribed.

Shortly after his assumption of the Lieutenant-Governorship

Sir Alexander Mackenzie's attention was attracted

Settlement

operations in to the slow progress of the resettlement operations

Orisea and Bihar. » ■«»»-•*

in Orissa where the current settlement was to expire
in September 1897. The traverse and cadastral survey had been
completed according to the programme by September 1894, but the
settlement portion of the work had not proceeded beyond the stage
of attestation. The settlement of rents and revenue had practically
not been begun, except for a few unsuccessful experiments made
within limited areas. For the season which commenced in October
1895) the programme fixed was the completion of attestation and the

SIR AliBXANDER MACKENZIE. 973

commencement on a large scale of the assessment of rents. The
whole temporarily settled area in Orissa^ including the Khurda
Government estate, was about 5,218 square miles, and it was esti-
mated that the revenue officers would have to settle rents for no
less than 13) lakhs of tenants. Apart from its magnitude, the work
was rendered especially difficult by the fact that in the temporarily
settled area a large body of tenants had to be dealt with, whose
rents had been stationary for 60 years and many of whom were
assessed at the last settlement in 1837 at privileged rents far below
the ordinary rates. He therefore thought that, at the rate of
progress then being made, the resettlement of Orissa would not be
completed till long after the expiry of the current settlement and a
considerable amount of revenue would thus be lost to Government.
It was clearly necessary to expedite settlement work in that province
by the deputation of more revenue officers ; but, as there were
already about 1 20 gazetted officers employed on settlement work in
Bengal, it was not possible to withdraw more officers' from the
general work of administration without seriously hampering it. The
only way to meet the difficulty was to reduce the pace of work in
north Bihar, where the survey portion of the work was already
too far in advance of the settlement portion, so as to make more
officers available for Orissa, and in March 1896 proposals were
submitted to the Government of India for prolonging the survey
work in north Bihar to September 1900 and the settlement work to
September 1902. These proposals were approved by the Supreme
Government and arrangements were made to withdraw i of the 2
survey parties employed in Bengal.

Sir Alexander Mackenzie also approved provisionally of a scheme
for the settlement of rents in Orissa, differentiating between (i) the
rents paid by the ratyais whose rents had been liable to enhance-
ment and had been enhanced by the zamindars during the 60 years'
settlement expiring in 1897, and (2) the rents of the rflfya/j which
had not been enhanced during that period.

The survey-settlements of the large tracts of country viz, Orissa,
Chittagong and north Bihar, &c. under the Tenancy Act, which had
been previously undertaken, were necessarily continued under Sir A.
Mackenzie, with small changes of detail in the procedure from time to
thhe. The amount of such work may be gathered from the figures : —
62

974 BBNQAL UNDER THB LIEUTKNAKT-GOVKRNOR8.

(in {a) Government, (b) temporarily settled, and (c) private
estates),

1895-96
1896.97
1897-98

areacadas-

trally
surveyed.

sq. miles.
2,318

1,651
1,305

cost of
survey.

Rs.

4,5o,9«5

3,32.882
2,06,317

cost of
settlement.

Rs.
7,91,258

10,17,643
11,34,821

Total.

(thus stated)

Rs.
12,56,056

13,67,065
13,64,971

The work everywhere proceeded without friction or disturbance.
In 1897-98 also important principles of the new Orissa settlement,
which came into force from the autumn of 1897, were determined.
The incidence and enhancement of rents, the duration of the new
settlement, the proportion of the rental to be taken as revenue, and
the future maintenance of the records were among the principal
questions considered and finally settled. The term of the settlement
was fixed at 30 years. The normal percentage of the assets to be
taken as revenue was decided to be from so to 55, as against 60 to
70 per cent taken at the previous settlement, but it was determined
to reserve the decision of the question of what percentage it might
be equitable and justifiable to take at the expiry of the new term of
resettlement until the necessity for its settlement should arise. Orders
were also passed that the records should be maintained through the
agency of patwaris^ to be paid from the proceeds of a special cess.
Good progress was at the same time made with the setdement
operations.

During the year 1895-96 only Rs. 32,500 of the costs were
Reco of costo recovered in Champaran and Muzaffarpur, instead
ti«mwt^in°nol^ ^^ ^^' i» 50,00° ^ expected. It was at first anti-
^^'^''' cipated that the distress caused by the famine would

seriously check the recovery of the costs of the survey and settle-
ment, and that it would not be possible to realise more than i\ lakhs
in 1896-97 and 3 lakhs in 1897-98. That the estimate was much
underrated was shown by the fact that the actual recoveries in
1896-97 aggregated Rs. 2,05,389, while in 1897-98 the recoveries in

SIB ALEXANDER MACKENZIE. 975

* •

Muzaffarpur alone amounted to Rs. 3,15,360, the total amount

collected in that district up to 31st March 1898 being Rs. 3,83,460,

or 94*8 per cent of the total demand in the villages actually under

collection. In Champaran Rs. 2,42^698 were collected during the

year, making a total of Rs. 3,52,460 since the beginning, and in Saran

the collections during the yeai; amounted to Rs. 74,441, Rs. 50,000

having been collected during the previous year. The recoveries made

in the 3 districts during the year aggregated Rs. 6,32,499. The

assessees, both landlords and tenants, were eager to obtain their copies

of the records, and had nothing to urge against the petty sums

demanded of them in return. The success met with in these

recoveries was the measure of the efficiency and popularity of the

survey-settlement operations.

In the South Lushai Hills, an expedition was despatched during
South Lushai ^^® ^^^^ scasou of 1 895-96 agaiust Kairuma and his

Hui». dependent chiefs, Jaduna and Kapleheya, who had

never been completely brought under control. The arrangements
were made by the Assam Administration, columns of Military Police
from Burma and Bengal being sent as supports. The objects of the
expedition were fully attained, and the chiefs accepted the obligation
to pay tribute and furnish labour. The Chief Jacopa, who attacked
a party of the South Lushai Military Police in 1891, was captured by
the Superintendent of the South Lushai Hills. This tract was formally
annexed to British India during the year, and a Regulation was
passed to enable the Bengal Government to declare what laws were
to be in force in the district. Rules were also to be framed for the
administration of the Hills, so as to assimilate the system to that
proposed for the North Lushai Hills by the Assam Administration.

The settlement of the dispute between Sikhim and Tibet regard-
ing the boundary in the direction of Giagong
remained in abeyance in consequence of the absence
of a Chinese Resident at Lhassa : he arrived there towards the close
of 1897-98. The frontier was quiet, and no disturbance of any kind
was anticipated. The Gnatong garrison of Military Police was
withdrawn in November 1896. The retention of a post at that
elevation was expensive and inconvenient, and the men were exposed
to extreme cold during the winter months.

The second son of the Raja of Sikhim, Chotal Namgyel, was

976 B£MQAL UNDER THE LIEUTENANT-GOVERNORS.

in October 1 896 removed from Darjeeling to Guntok, where it was
thought more desirable to complete his education. The Raja's
eldest son, Tchoda Namgyel, remained in Tibet.

The question of amending the Bengal Municipal Act came up for
ThoBc aiMuni- Consideration towards the close of 1895-96, in con-
cipai Actof 1806. nection ^\ith a proposal to empower Municipal Com-
missioners to devote a portion of the funds at their disposal to the pro-
vision of a veterinary staff and of veterinary hospitals for the treatment
of horses and cattle. The opportunity was taken to remove certain
defects in the existing law, to extend the franchise to certain
classes of persons who did not before enjoy it, and to increase the
powers and responsibilities of the Commissioners in several directions.
By this Act, II (B.C.) of 1896, Commissioners of municipalities were
enabled to apply municipal funds to the creation of open spaces, to
the training and employment of female medical practitioners and of
veterinary practitioners, to the establishment and maintenance of free
libraries and veterinary hospitals, and to the improvement of the
breed of horses and cattle. Municipal expenditure on hospitals,
dispensaries, education, and vaccination, which before rested with the
Municipal Commissioners, was brought under the control of the
Commissioner of the Division, so that municipalities could be required
to incur a reasonable expenditure on these items. By the amended
Act also the levy was permitted of a differential water-rate according
to the distance of houses and lands from the nearest hydrant or other
source of water-supply, and of a higher rate on premises which had
communication with the municipal pipes than on those which had not.

A Bill for the amendment of the Local Self-Government Act of

jjocai seif-Gov. ^^^5 ^^^ prepared by the desire of the Government
ernment Bill. Qf India. Its immediate object was to enable Dis-

trict Boards to devote some portion of their funds to the improvement
of the breed of horses^ cattle and asses, the breeding of mules and
the prevention and cure of diseases among horses, cattle and other
animals : it also empowered District Boards to spend money on the
training and employment of medical and veterinary practitioners, and
the promotion of free vaccination, and contained some amendments
of a formal character* It was subsequently proposed to make extCH'^
sive additions to the Bill, with the object of legalising the levy of tolls
by District Boards on certain conditions, and to empower Union

SIR ALEXANDER MACKENZIE. 977

Committees to raise a small local tax mainly for the purposes of
village water-supply and sanitation. Legislation was accordingly
postponed, and after further consideration was abandoned.

For some time past the district of Backergunge had been notori-

DiBanuament ^"^ ^^'" *^^ lawlessness, and serious measures had
of Backorgr»mgo. {^qqh jn contemplation. Crimes of violence had
always been very common in the district, but had lately increased in
number, and murders by gunshot were being frequently committed.
The motive for the majority of the murders was found in land dis-
putes and quarrels about women. At last it appeared necessary to
Government for the suppression of such crime that the possession
and use of firearms should not be permitted any longer. In August
1896 therefore a notification was issued to disarm the district under
the Arms Act, by cancelling all licenses for the manufacture, sale,
possession &c., of arms and ammunition. The number of murders
and violent crimes was at once greatly reduced.

In February 1896 the Surgeon-Superintendent of the Presidency
The Preaidenc General Hospital drew attention to the defects in the
General Hospital, structural arrangements of the hospital and submit-
ted certain proposals for improving and adding to the existing
buildings. He maintained at the same time that it was [doubtful
whether the present buildings would bear any alteration, and whether
the results would justify the large expenditure involved. It was
decided, therefore, to appoint a special Committee to consider and
report on the subject. The Committee, which submitted its Report at
the beginning of September, after fully discussing the questions in-
volved, drew up a scheme which comprised the demolition of most
of the existing buildings and the complete reconstruction of the
hospital at a cost of 22 iak/ts. This scheme was accepted by Govern-
ment, and was to be carried out gradually as soon as funds permitted.
Meanwhile the land necessary for the purpose was acquired, and
3 lakAs were provided in the budget for 1898-99. The Supreme
Government promised a handsome contribution to be spread over
several years.

Under the direction of the Medical Board a sanitary survey of

Sanitation of ^^® '^^'^ *^^ suburbs of Calcutta was made in

Calcutta, October 1896 by 5 sanitary officers, specially

deputed for the purpose, assisted by the Civil Surgeon of the

978 BENGAL UNDER THE LIEUTENANT-GOYBRNORS.

i^-Parganas, The Report submitted by these officers was consi-
dered by Sir A. Mackenzie to disclose a state of things which
constituted a standing menace to the health of the city, and indi-
cated a lamentable failure on the part of those responsible for
the conservancy of the town. As the establishment previously
employed for the purpose of removing accumulations of filth was
found to be quite inadequate, a special temporary staff, presided over
by a medical officer of the Government establishment, specially
appointed as Chief Superintendent of conservancy, was employed by
the Corporation for the purpose of thoroughly cleansing the town.
On the 26th November 1896 Sir A. Mackenzie laid the founda-
u * *K r. 1 tioi^ stone of a series of new works for the exten-

Speech to the Cal-
cutta Ck>rporation. j^iQn Qf j^jg drainage of Calcutta (to cost over 45

lakhs) at a site a little beyond the Palmer's Bridge Pumping Station.
Entally, and in reply to the addres to the Calcutta Corporation made
a speech, which created a considerable sensation in the town and
led to the amendment of the Calcutta Municipal Act. He spoke
as follows : —

Mr. Chairman and Gentlemen, — I had pleasure in complying with
your request to lay this stone not only because of the importance of the
work of which it is the commencement, but in recognition of the position
which the Commissioners occupy as the local representatives of the
Provincial and Imperial Capital. You have in the address that has
been presented given a brief history of the inception, objects and
development of this project, and of its connection with the general
scheme of Calcutta drainage. That subject was at one time very familiar
to me, and there are in the Bengal Office, if I mistake not, lengthy notes
of mine, written years ago, dealing, as Secretary to Government, with
not a few phases of the question. It has always been surrounded with
difficulties, and the complexity of the problems involved has certainly
not diminished with time. I hope, however, you are now fairly on the
way to a solution of the most pressing of these. I have elsewhere sought
to vindicate the Commissioners from the charge of having dealt inade-
quately and perfunctorily with this drainage question. There has been
delay, no doubt, in prosecuting these extensions of the system, but the
delays have not, as was thought, been inordinate, and the wisdom of
caution in undertaking such costly and gigantic operations is vindicated
by a comparison between the original estimates and those of the scheme
as now sanctioned. The municipality has, I am afraid, many short-
comings to answer for. But I must say this, that I have never been

SIR ALEXi^KBKR MACKKNZIK. 970

able to agree ihat it has shewn niggardliness or been backward in
sanctioning money for either water-supply or drainage.

You have, gentlemen, no doubt, been hampered in the task of
improving Calcutta by many things, and perhaps by nothing so much
as by your own constitution. The marvel is that with such an impracti-
cable organization so much good work should have been done. You
have a constitution borrowed er bloc from the most advanced models in
England, and without any reference to the utterly different circumstances
of an Oriental city, and a very mixed community. It seems to have
been supposed that, because Birmingham for instance (which I know
well) is admirably managed by an elected Council of 72, Calcutta could
be equally well managed by a Council of 75, of whom 50 are elected.
But in Birmingham, to begin with, the population is homogeneous, and
accustomed for generations to manage its own affairs on lines as to
wh'ch all parties are agreed. The Council there is composed entirely of
shrewd, capable men of business— manufacturers, merchants, tradesmen
and the like — whose one object is to treat every question before them,
not as an opportunity for speech- making, but as a matter to be settled
as promptly as may be in the most practical way. They work, no doubt,
as you do, through Committees, but the endeavour is to place on each
Committee only the men who know most of the particular subject
entrusted to it, and to have in the Chair of each Committee a man who
has for years been administering that special branch. This done, the
Town Council does not waste its time in doing over again the work of
its Committees. It criticises when necessary, and can on occasions
condemn, but its general object is to strengthen and support the executive
and to have the work of the town done, and not merely talked about.
There is (according to the November number of the Century Magazine)
only one lawyer and one newspaper man on the whole Council. Now
I think everybody in Calcutta outside the Corporation, and a good many
people inside it, will admit that there is here far too much speaking for
the sake of speech, that your executive is not nearly strong enough for
action and is far too readily upset and interfered with ; that work is often
done twice or thrice over, and is often spoilt by the multitude of coun-
sellors or cooks, and that far too much deference is paid at times to the
wishes and objections of special interests. This is inevitable, I fear, in
a Corporation constituted as yours is, having many members whose
individual stake in the town is small, who are not all practical men of
business, and who represent themselves in the first place and a variety
of heterogeneous interests in the second. But if you are wise you will
seriously set yourself to reduce the evil of desultory discussion to a
minimum. I know that much of this is dye to the laudable feeling that

980 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

each Commissioner is individually responsible for the good working of-
the whole, but this interest can often be as well shown by a silent
sensible vote, as by a long speech or an acrimonious debate. You cannot
all be experts even in such simple subjects as bacteriology and quantita-
tive analysis. It is to be regretted that Calcutta was too proud to
borrow its constitution from' Bombay, which to my mind has an admirable
system, combining all that is required of popular representation with a
strong executive. But do try to make the best of the system you have,
and trust the actual work of the town more fully to your executive officers
and to those members of your body who have most experience of its
needs.

You must indeed understand, gentlemen, that the municipality stands
at present, or will certainly very shortly stand, at the bar of public
opinion in the matter of its general conservancy. Many of you have,
I see, made up your minds that, however Bombay may suffer, no plague
shall come nigh your dwellings. You want now to crucify those who
originally startled you, and, as for your Health Qfficer, crucifixion itself
is not good enough for him. He is to be immolated by a Special
Committee. Now gentlemen, it is an old saying that it is best not to
shout till you are out of the wood and safe from all the dangers of the
jungle. I hope with you that the plague may not invade us, and the
town is certainly at present as regards its human population quite
remarkably healthy, even though dead rats have been found in some of
the drains ; but I must tell you frankly that the marvel is that we are
ever without plague and every other disease that comes from neglected
filth. I hold in my hand the Report of the 5 Sanitary Commissioners
deputed by the Special Medical Board to examine and report upon the
state of Calcutta conservancy, and a more appalling document it was
never my misfortune to peruse. I positively dare not read out to this
assembly its revelations of the abominations in which this city abounds.
It will be for the Medical Board to say, in the first instance, where the
responsibility lies for this, and to indicate what form, in their opinion,
the remedies should take. But it is clear to me that the excessive
tenderness which the Commissioners have hitherto shown in dealing
with the so-called rights of private ownership will have to be given up.
Private owners cannot be permitted to maintain death-traps, cholera and
plague nurseries, for the destruction of their fellow citizens. The city
must have Building Regulations of the most stringent description for
preventing the creation of such dreadful places as the Sanitary Officers
have discovered. I believe, as a matter of fact, you could do nearly all
that is wanted for the future under your existing law but that law is not
put into operation. Private interests, as I have hinted, are too strongly

SIR ALEXANDER MACKENISIE. 981

defended to the detriment of the public weal. The operation of the
law must henceforth be practically automatic and beyond the influence
of party or personal votes. But the chief problem is how to clear out
the pestilential quarters that already exist. Something may be done, as
I have said, by insisting on private improvements, but many of these
places are too bad (hr any improvements. They cannot be mended and
must be ended. The only remedy is to drive broad roads through these
quarters, and to replace these horrid pigsties (where, indeed, no normally
constituted pig could live) by respectable, well-sanitated dwellings. This
operation properly conducted ought not to involve the town in much
permanent expense ; but whatever it costs it must be done if Calcutta is
to cease to be a disgrace to the Empire and the nineteenth century.
The Government must, for its own credit and for the sake of the
commerce of Bengal, see that these reforms are carried out. I have
already invited the Commissioners to concur in the appointment of a
Commission to consider this question of Building Regulations. I trust
shortly to hear that they are prepared to work with me in the matter.
I shall not then have to consider the disagreeable alternative of proceed-
ing without them and in supersession of their authority. You must also,
to raise the necessary funds, make the most of your existing sources of
income. Your Warrant Department, in spite of all special pleading,
is a standing scandal. I believe that your Loan Department would be
all the belter of a thorough overhauling. And when all this is done, if
more money is required, you must consider the question of special cesses
on specially bad areas and specially neglectful owners, and such other
measures of raising revenue as may suggest themselves to you. You will
receive all the support and assistance that I and the Bengal Council
can afford you.

Gentlemen, I am well aware that you have spent much on the conser-
vancy of Calcutta, and I believe that the state of those streets and lanes
which can be easily reached by your sweepers and carts is by no means
bad. But these sanitary reports show that there is behind these streets
and lanes a festering area that it is at present almost impossible for your
agency to scavenge effectually, and Mo/ must be opened up. I believe
the description given of this area will take many of you by surprise.
Whether it ought not to have been discovered and attacked before is a
question for discussion. That it must be effectively dealt with now is
what I am trying to impress upon you. Then the dastt question must
in future be disposed of and not played with. The condition of the
cow-sheds and ticca-gkari stables is another grave blot on the town and
a standing peril to the population. I believe you could not do better
than remove all the cow-sheds outside the urban area, as the Sanitary

982 BENGAL UNDER THE UErTENANT-GOVERNOBB.

Commissioners suggest. With most of the evils depicted by the Sanitary
Commissioners your existing Act gives ample power to deal. I trust
that when once the requirements of the case are laid before you you
will, with a minimum of discussion and controversy, set yourselves to
remedy those evils and earn for yourselves a reputation for businesslike
courage and capacity in dealing with what is undoubtedly a very difficult
situation. That the Commissioners can rise to the height of great
enterprise has been shown by their treatment of the water-supply and
drainage questions. I am not without hope that, when they find what
is before them in this matter of conservancy, they will sink all differences
of opinion and unite to initiate and carry through a scheme of general
reform worthy of the first city in India and of their own responsibilities.

Some one has said that Councils are on ordinary occasions more
courageous than most individuals because they can bear odium better.
I trust that the Calcutta Corporation will show its courage in accepting
any burden of unmerited odium that may come from doing its duty, and
defeat the odium that some seek to attach to it as a sample of the failure
of Local Self-Govemment in India. You would (I repeat again as a friend
what I have already suggested as Lieutenant-Governor) do well to
improve your methods of working. "There be," says Bacon, "three
parts of business— the preparation ; the debate or examination ; and the
perfection ; whereof if you look for despatch, let the middle only be the
work of many, and the first and last the work of few." Give your
executive full powers in " preparation " and " perfection," i. e., in the
preparation of projects and the carrying of them out. And " the surest
way to make agents do their duty " (says Phelps) " is to show them that
their efforts are appreciated with nicety. In your daily dealings with
them, you should beware of making slight or haphazard criticisms on
any of their proceedings. Your inclination should be to treat them with
hearty confidence." In that way only will you get satisfactory woric
done : and the state of Calcutta is such that unless the Government,
the Corporation and the Executive of the town all work together heartily
and with a single mind, there must come a general cataclysm in your
municipal affairs, and radical changes such as I, last of all men, desire
to bring about."

It was proposed by the Calcutta Municipal Bill to repeal the
Calcutta Muni- Calcutta Municipal Act of 1888 and re-enact it
cipai BUI. ^-^^ considerable modifications. The Act had been

in force for over 9 years, and actual experience and decisions
of the Courts had shown it to be in many insUnces imperfectly
drafted and to stand in netd of material alteration. The necessity of

SIR ALEXANDER MACKENZIE. 988

legislation msls onginallj urged upon the Government in order to
enable the Comniissioners to recover license tax from certain
companies which had escaped payment, and in order to supply an
omission in section 237 of the Act, which rendered it impossible for
the Commissioners to exercise effective control over re-building and
alterations in buildings. After the amendment of the law in these
points was decided on, facts were brought to light in connection
with the alarm of plague in Calcutta, which showed that the town
was in a terribly insanitary condition and that the existing constitu-
tion of the Municipality was ill-adapted to stand the strain of a
grave and sudden emergency, and failed to secure th« prpmpt* and
continuous executive action which was necessary in view of the
fact that the sanitation and conservancy of the great Indian maritime
cities had become a matter of international concern. About the
same time it came to notice that the collection of the rates had * for
a long time been defective ; that important branches of the accounts
had fallen into confusion ; and that considerable uncertainty
prevailed as to the respective functions of the Chairman and the
Corporation. Further, it had for long been recognised as a defect
in the existing law that the European community was inadequately
represented, and did not exercise the influence to which it was
entitled.

The Bill was intended not only to remedy these defects, but also
to provide for a responsible municipal executive, and to furnish this
executive with a law adequate to the sanitary requirements of the
city and to modern standards of municipal administration. It was
sought to attain these ends by re-constructing the Act more or less
on the lines of the City of Bombay Municipal Act, with certain
material changes which appeared to be called for in view of the
special conditions of Calcutta and the course of previous legislation
on the subject. The constitution of the Corporation itself, so far
as concerned the electoral franchise, the arrangement of wards,
the number of Commissioners, and the methods in which they
were elected or appointed, were left unchanged. But in order to
enable the heavy and complicated business of the city to be
carried on smoothly, the Bill interposed a small working Committee
between the Chairman and the main body of Commissioners ; and
the functions of these authorities — the ^Corporation, the General

984 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

Committee, and the Chairman — were precisely defined and carefully
distinguished.

The Bill abandoned the system, followed in the previous Acts,
of vesting the entire municipal government in the Commissioners,
with permission to the Chairman to exercise such powers of the
Commissioners, not being expressly reserved to the Commissioners
in meeting, as they might not withdraw from him by Resolution, and
subject to such conditions as they might lay down. It provided
for 3 co-ordinate municipal authorities — ^the Corporation, the General
Committee, and the Chairman, assisted by a Deputy Chairman
who was to act only under the Chairman's orders. All powers
conferred by the Bill were distributed among these authorities, with
reference to their assumed fitness to exercise them and to general
administrative convenience. To the Corporation was reserved the
right of fixing the rates of taxation and all those general functions
which could be efficiently performed by a large body, provision
being at the same time made against the contingency of their
deliberations impeding the transaction of necessary business.
Following the Bombay Act, the Bill vested the entire executive
power in the Chairman, to be exercised either independently or
subject to the approval or sanction of the Corporation wherever
this was expressly so directed. The General Committee was to
stand between the deliberative and executive authorities, and deal
with those matters which by their nature were ill-adapted for
discussion • by the Corporation, and yet were too important
to be left to be disposed of by the Chairman alone. Power was
also taken for the General Committee to appoint Sub-Committees,
either from their own body or from the general body of the Com-
missioners, on which all the working talent among the Commissioners,
would find a place.

The Bill reduced the number of the General Committee from
1 8 to 12 members, and provided for the appointment of these from
among the general body of Commissioners in equal proportions by
(a) the elected Commissioners voting in four electoral divisions, (3)
the Chamber of Commerce, the Trades' Association, and the
Port Commissioners, and (c) the Government. It was based on
the principle of giving adequate representation on the governing
body of the municipality to*the 3 chief interests in Calcutta — ^to the

SIR ALEIAI^DER MACKBN2IE. 985

European commercial community which had made the city a centre
of trade ; to the Governnient which had made it the capital of the
Indian Empire, and was responsible to the world at large for its
sufficient and progressive municipal administration ; and, lastly, to
the residents, house-holders, and ground-landlords who had been
attracted to Calcutta by its creation and maintenance as a commercial
capital.

For the purpose of electing the 4 general members of the
General Committee who were to represent the elected Commis-
sioners, it was proposed to divide the 25 wards into groups or
electoral divisions, each of which was to elect i member from among
the entire body of Municipal Commissioners. The 4 seats reserved
to the Government were to enable it to provide for the representation
of minorities and also to nominate at least i Commissioner as the
special representative of the humbler working men of all ranks
and trades who earn their livelihood in Calcutta, and who were
wholly unrepresented under the existing system.

The section of the existing Act which conferred certain powers
of control upon the Government was framed in very general terms,
and would be difficult to put in force effectively. It was also unfair
to the Commissioners, in that it gave them no distinct right to show
cause against an order, and forced the Government to take the
extreme course of at once appointing some person to perform
the duty alleged to be neglected, instead of calling upon the
Commissioners to perform it themselves within a given time.
Section 22 of the Bill, which was based upon section 64 of the
City of Madras Municipal Act, reserved to the Government ample
powers of intervention, while at the same time providing for a
fair inquiry into the facts and giving the Corporation sufficient
opportunity for stating their view of the matters in dispute.

The building regulations in the Bill were based partly upon the
report of the Calcutta Building Commission and partly on the
London Building Act, 1894, and other English and Continental
building laws. The subject was a peculiarly difficult one, owing to
the irregular manner in which buildings had been constructed in
Calcutta in past years. The general principle on which the draft
proceeded was to lay down regulations for new buildings and to pro-
vide that existing buildings were 10 come* under those regulations

986 BENGAL UNDER THE LIEUTENANT-GOVERNOBS.

when they were re-erected or, at the discretion of the General Com-
mittee, when they were materially altered. A special power of dis-
pensation was also given to the Local Government, to be exercised
on the recommendation of any 2 of the municipal authorities.
Following modern legislation on the continent of Europe, the Bill
provided for the reservation of particular streets and quarters of the
city for particular kinds of buildings. Government buildings were
exempted from all the building regulations.

Various other amendments of more or less importance were pro-
posed by the Bill in the existing law.

The Bill contained an important section giving power to extend
to Howrah by notification any specified portion of the Bill, subject to
such restrictions and modifications as might be thought fit A special
procedure was laid down for this purpose which provided for notice
being given of the intention to extend any portion of the Bill and
for the hearing of objections. The Bill was referred to a Select
Committee on the 4th April 1898. In winding up the debate on the
motion for this purpose Sir A. Mackenzie re-stated some of the
reasons for undertaking this legislation, inter alia, that the Corporation
had been constituted on a system * which it is almost impossible for
any one were he an angel from heaven to work satisfactorily ' — and
that the cardinal principle of the Bill was that the ordinary every
day work of the city must be left in one man's hands.

The outbreak of plague in Bombay towards the close of the
Precautions ^^^^ ^^^^ rendered it necessary to adopt precau-

ngaiiMt Pkguc tionary measures against its possible importation
into Bengal, and especially into Calcutta. It was decided accordingly
to open 3 inspecting stations, where travellers from the Bombay
Presidency could be intercepted and examined. The places selected
were Khana Junction on the East Indian Railway for passengers
coming direct from Bombay, Katihar on the Eastern Bengal State
Railway for passengers coming via the North- Western Provinces,
or by the alternative route from Mokameh Ghat, and Damukdia on
the railway ferry of the Eastern Bengal State Railway for persons
journeying by boat down the Ganges. At each place suitable
arrangements were made and a medical staff specially appointed.
No case of plague was detected at any of these stations, though it
was found necessary to detain for several days in the camps a large

SIR ALEXANDER MACKENZIE. 987

number of persons who showed Auspicious symptoms. In Calcutta
itself every precaution was taken to guard against the introduction
of the plague, and vessels arriving from Bombay were placed in
quarantine till thoroughly disinfected and declared by the Health
officer of the Port to be free from infection. In order to assist and
advise the Government in dealing with questions connected with
plague, a special Medical Board was formed. The Board met
frequently and drew up and circulated careful rules for the guidance
of Medical Officers, District and Local Boards, and Municipalities.
No case of plague occurred in Bengal throughout the year 1896-97.

Precautionary measures against the introduction of the bubonic
plague into the province were vigorously continued throughout the
year 1897-98. The inspecting stations, for the examination of railway
passengers coming from infected areas, at Khana Junction, at Katihar,
and at Damukdia, were kept in working order, but towards the end of
the year were replaced by new camps at Chausa on the East Indian
Railway, at Mairwa on the Bengal and North-Western Railway, and at
Chakradharpur on the Bengal-Nagpur Railway. In April 1897
another observation camp was established at Khurda Road station on
the East Coast Railway. The total number of passengers examined
was i}354,36i, of whom 21,468 were detained for observation. The
Special Medical Board, which had been constituted in the previous
year for the purpose of dealing with questions relating to plague,
was reformed under the name of the Plague Commission, a number
of Medical officers and further representatives of the non-official
public being appointed members. Under the authority conferred
by the Epidemic Diseases Act, III of 1897, a series of Regulations
was published, providing, among other matters, for the inspection of
persons travelling by rail or steamer, and for the inspection of ships
leaving the Port, so as to give effect to the requirements of the Venice
Convention, to prevent the advent of plague (i) in Calcutta, (2) in
towns and cantonments in the interior, and (3) in mu/assal areas, and
to stamp it out if it should make an appearance. These were modified
and amended from time to time, and in November 1897 one Regula-
tion was published which brought together all the rules of dealing
with plague in municipal towns, including Calcutta, and in mu/assal
villages. Provision was made for the appointment everywhere of
local plague authorities with plenary powers, and for the definition of

988 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

their duties ; and rules were laid down to provide for the prompt
detection of cases of plague as they occurred, their removal to hospi-
tal, for the segregation of persons who had been in contact with the
sick, for the provision of family and caste hospitals, for the evacua-
tion and disinfection of infected dwellings, and for the disposal of the
dead. No case of plague was detected in the province during the
year, but, shortly after the year 1897-98 closed, there was a sporadic
outbreak in Calcutta.

Like all previous famines in Bengal, the famine of 1896-97 was
The famine of causcd by the failure of the monsoon rains of
1896-97. 1896, and was the result of 2 successive bad

seasons. The season of 1895, although on the whole favour-
able to the bhadoi or autumn crops, was bad for the winter rice,
inasmuch as the rains were unevenly distributed at the time
of sowing, and ceased earlier than was necessary to ensure a full
outturn. Then followed a prolonged drought, which lasted through-
out the cold weather, and materially injured the rahi or spring
crops. For the province as a whole the outturn of the bhadoi
crops was estimated at 14 annas, of winter rice at 13 annas,
and of the rahi crops at 11 to 12 annas. The good crops
reaped in 1893-94 and 1894-95 enabled the people to tide over the
partial failure of 1895-96, but a greater disaster followed and caused
distress more or less acute throughout the province. The rainfall
of 1896 was very nearly as short as in 1873, and was worse dis-
tributed. The bhadoi crops suffered from short rainfall in all parts
of the province except in Orissa, where, on the other hand, there
was excessive rain in July and August, resulting in floods which
destroyed the standing crops over a large area. The average out-
turn of these crops for the whole province was estimated at loi
annas, but the outturn of bhadoi food-crops alone was believed to
have been not more than 9^ annas. The injury done to the great
winter rice crop by deficient rainfall during the sowing and trans-
planting season was aggravated by the entire cessation of the rains at
the most critical period ; no rain fell after the 19th September.
The effect of these abnormal meteorological conditions was that the
total area cultivated with winter rice was about a million acres less
than in the preceding year, and that the outturn of the crop was as
bad in Bihar and in part3 of Bengal as in 1873, the estimate for the

SIR ALEXANDER MACKENZIE. 989

whole province being only 7^ annas, or less than half the average
crop. The rabi crops of 1896-97 suffered considerably from the
want of moisture in the soil, but showers of rain fell at intervals
during the cold weather, which did much good in the Patna and
Chota Nagpur Divisions. The outturn of these crops throughout
the province was estimated at loi annas. The mahua and mango
crops, which in an ordinary year form a useful supplement to the
food-grains, were also poor. Not only was the failure of the crops
in the province of Bengal as great as in 1873-74, but it extended
throughout India, and caused an unprecedented rise in prices.

Prices in Bengal generally rose instead of falling, as in ordinary
years, as soon as the hhadoi crops had been harvested, and there
was a further sharp rise when the failure of the winter rice became
certain.

Winter rice is by far the most important crop in these provinces,
covering as it does an area nearly equal to that of

Importance of the

winter rice to all Other crops put together, and about \\ times the

Bengal.

area covered by other food-crops ; while the nor-
mal area covered by hhadoi or autumn rice is 7,600,000 acres, or
1 1 •3 per cent of the total cropped area. All known famines in
Bengal and Orissa have been rice famines. In Bihar and northern
Bengal the hhadoi and rahi crops may afford the turning point be-
tween famine and no famine, but even there the immediate cause of
scarcities and famines has always been the failure of the great
winter rice crop. The early cessation of the usual rains in
September and total wa.nt of rain in October has therefore, cosieris
parihuSf a more serious and lasting effect in areas where rice is the
sole or predominating crop than it can have in districts or parts of
districts in which 3 harvests of nearly equal relative importance
are annually reaped. In such districts it may take 2 or 3 years
of short rain to make a famine. If in such areas one harvest fails,
the loss is partially made good by another harvest in the same year,
but it is manifest that where rice is the only, or almost the only, crop
and the cultivators are poor, and therefore have no stocks of grain or
money tQ fall back upon, a total or very serious failure of the rice
crop even in one year must cause acute distress.

The effect of the early cessation of the monsoon rains was more
disastrous in Bihar than elsewhere, partly because the comparatively

990 BKNGAL CNDBR THB LIlUTBIiAKT-GOl^lBKOBS.

high lands of Bihar require more moisture for the growth of rice

and other crops than the low-lying lands of Lower Bengal. In

Bihar, too, the population is extremely dense and much poorer than

in most other parts of the Province. The ordinary wages of

agricultural labour are extremely low, and they have, owing partly to

the growth of population and partly to the influence of custom,

remained practically unaltered for the past 20 years or more, while

the prices of food-grains have largely increased during the same

period. Sir A' Mackenzie's attention ^^as therefore directed to this

part of the country as soon as the rains had ceased ; and relief

measures were commenced where necessary at the first indications

of distress.

Test-works were first opened in the Bhabhua subdivision of Shaha-

bad on the 2 1 st October 1 896, and by the latter end of December relief
operations were in progress in this as well as in the 4 districts of
the Patna Division north of the Ganges, the total number on relief
on the 26th December being 61,865 on relief works and 7,800 on
gratuitous relief. The largest number on Government relief at any
time during the famine was 845,485 on the 5th June. On that date,
so far as was known, 48,986 persons were in receipt of relief from
the Darbhanga and Hatwa Raj estates and from other pri\'ate indivi-
duals elsewhere. This total number included 859 persons in receipt
of relief in the districts of Patna, Rajshahi. and Pabna on the 5th
June. These districts, as well as Jessore and Dinajpur, were only
slightly affected by the scarcity, and no operations were found neces-
sary on the part of Government beyond the opening of test works
and the distribution of gratuitous relief on a small scale : in Lohar-
daga relief works were open in July and August, and gratuitous
relief was given in those months and in September. The pinch of
unusually high prices was felt, and isolated cases of distress occur-
red in every other district, but sufficient relief was given by Local
Committees from funds subscribed in the district or contributed hv
the Indian Famine Charitable Relief Fund.

As soon as the rains of 1897 had fairly set in and agricultural

operations demanded the services of cultivators and labourers, the

numbers on relief works began to diminish ; and by the end of

August, when the harvesting of the Ma^/(9f crops had commenced,

. the total number on Government relief throughout the province had

SIR ALBXANDKR MACKtNZIB. 991

dwindled to 335,776. The monsoon of 1897 very nearly approach-
ed the cultivator's ideal as regards both the bhadoi and winter rice
crops, and relief works were closed at the end of August in tracts
where the dhadoi crops are largely grown, and elsewhere by the 25th
of September, except in Manbhum, where the yield of the bhadoi
crops was not good and it was found necessary to keep the works
open until the 23rd October. Gratuitous relief was generally con-
tinued a little longer, than relief on works, and was finally closed on
30th October.

When it became certain that relief measures on a considerable
scale would have to be undertaken, all preliminary arrangements
were at once taken in hand. These were partly settled at a con-
ference which Sir A. Mackenzie held at Sonpur with the Commis-
sioner and other official and non-official gentlemen of the Patna
Division on the 20th November 1896. The Revenue Secretar>'
afterwards visited the worst tracts in the districts of MuzafEarpur,
Champaran and Darbhanga^ and attended an official conference at
Muzaffarpur, at which the details of famine relief organization were
worked out on the lines laid down by Sir A. Mackenzie. On the
28th February 1897, when the relief operations had been in progress
for some time, Sir A. Mackenzie went on a brief tour of inspection of
the Bihar districts. He examined relief works and the adminis-
tration of gratuitous relief, and consulted the principal officials
and non-officials of Bihar. The relief operations in north Bihar
were once more inspected at the end of June and beginning of July
by the Officiating Lieutenant-Governor, Mr. (Sir C. C.) Stevens, who
left Calcutta on the 28th June, and visited the districts of Darbhanga,
Saran, and Muzaffarpur. He was compelled to return to Calcutta
on the 4th July, but left the Revenue Secretary to visit the Cham-
paran district with the Commissioner. During the course of his
tour Sir C. Stevens had an interview at Darbhanga with Mr. Higham,
CLE., who had been deputed by the Government of India, and dis-
cussed with him the system of relief in Bihar. This interview and
Sir C. Stevens' personal inquiries and observations, and those made
by all responsible observers, official and non-official, left no room
for doubt that gratuitous relief was not being too freely given, and
that relief works had been conducted in an efficient and economical
manner and bad not competed or interfered with private works

992 BENGAL UNDER THB LIEUTENANT-GOT BRNORS.

The districts of Nadia, Khulna, and Murshidabad in the PresideDcy
Division were visited by the Revenue Secretary in April 1897, and
in June Sir C. Stevens visited Nadia and Khulna before proceeding
to Bihar.

Besides relief given on relief works, and gratuitous relief to
children and adults unfit for work, loans were given free of interest
to landholders and others who undertook to excavate tanks or execute
other works of improvement in their own villages. Many such works
were carried out in the Patna Division and elsewhere, and afforded
employment to labourers who would otherwise have come on to the
Government works. Loans were also given to cultivators under the
Agriculturists ' Loans Act, at the commencement of the monsoon,
since many had consumed their stock of seed-grain, and without
such aid would have been unable to purchase seed ; and in the rabi
cultivating season of 1896, in order to encourage irrigation,
bounties were given at the rate of Re. i for each kuicha well
sunk.

A sure proof of the adequacy of the relief measures undertaken
by Government was that there was, as far as Government was aware,
no mortality from starvation, and that the people were kept in such
good case that they were able to return, and did return, to their
normal pursuits of their own accord as soon as the hhadoi harvest
had been reaped and the prospects of the coming winter rice were
assured. Special care was taken by the Medical Department and
by the local civil officers to collect statistics of death-rates in the
aifected areas. These statistics showed that the death-rate in Bihar,
which was by far the worst part of the province, was even lower than
in the preceding year. Some few cases of death by starvation were
reported from time to time from Chota Nagpur and elsewhere, but
the special inquiries made showed that in no case did death result
from actual starvation. Although it could not be said that in no
case was death accelerated by want of proper nourishment, all that
was possible was done to prevent mortality from starvation, and the
efforts of Government in this direction were attended with as
complete success as it was possible to attain. On the other hand.
that due care w^as taken to prevent wasteful expenditure of State
funds was shown by the fact that the task of work demanded and
enforced in practice from those who were able to work, as a test of

SIR ALBXANDKR MACKBNZIE. 993

distress, was declared by Mr. Higham, c. i. k., to be adequate
though not excessive.

Before the famine had developed. to any great extent^ forecasts
were made of the areas likely to be affected, the probable extent
and intensity of distress, and of the expenditure likely to be
incurred, and subsequent events showed that these forecasts were
prepared with a very near approach to correctness. Excluding
loans given for village works, the actual expenditure incurred in the
financial year 1896-97 was, in round numbers, Rs 23,00,000, and
the actual expenditure in 1897-98 was expected to be Rs. 88,00,000,
giving a total expenditure of 1 1 1 lakhs (or very nearly one sixth part
of the amount spent in 1873-74) from the beginning to the close
Mi the operations, including expenditure from the funds of the
District Boards and District Road Committees. The estimate for
1897-98, excluding loans for village works, had been Rs. 89,55,000,
so that about one and a half /a;^^^ were saved. The estimates of
expenditure were based on estimates of the numbers likely to require
Government relief in each month of the period of distress, the cost
of each person being calculated at i-^- annas a day. The actual
number relieved month by month closely approximated to the
estimates, but the actual expenditure per head was less than i ^ annas.

The greatly reduced cost of famine relief operations of 1896-97,
compared with that of the operations of 1873-74, although due in
great measure to the improved methods and knowledge of famine
relief administration, both in the exaction of adequate tasks on relief
works and in the careful selection of fit objects of gratuitous relief,
was ascribed largely to the fact that the Government of Bengal, in
accord with the Government of India, set its face from the beginning
against any general importation of grain by Government to the
famine districts. The only action taken by Government in connec-
tion with food-supply was to stimulate private trade by (i) the grant
of bounties on grain imported to Palamau and Lohardaga, which
are far away from railway lines, and (2) by giving loans to traders in
these districts and in certain inaccessible tracts in the districts of
Nadia and Puri. Government also despatched 1 5,000 maunds of
Burma rice to Palamau in the beginning of June for the payment of
wages in kind on the Government relief works and for the distribu-
tion of doles of gratuitous reUef, owing to the fear that, communica-

994 BENGAL UNDER THE LIEUTENANT-OOVERNORS.

tions being bad, private trade might fail during the rains. The
experience of this famine showed beyond question that private trade
was quite capable of meeting any emergency that was ever likely to
arise, and thus set at rest for ever the question of Government
interference with it in times of famine.

Another fact which the famine of 1896-97 clearly brought out was
that, in consequence of the extension of railways and the general
advance in material prosperity during the past quarter of a century,
the power of the people, even in Bihar, to resist calamities of season
had greatly increased since 1873-74. Not only was the failure of
crops in Bihar as great as any on record, but the general distress
throughout India was unprecedented ly extensive, and prices were
higher than had ever previously been known, but yet the cost of
famine relief in these provinces was only about one-sixth of that
incurred in 1873-74. The power of resistance shown by the people
in these unfavourable conditions was surprising to those who knew
them best.

Sir A. Mackenzie, in his final Resolution of the nth March 1898,
thus compared the famines of 1873-74 and of

Comparison of the

Famines of 1878-74 1 806-07. " The famine of 1 806-07 in its main features,

and 1896.97. ^ ^' ^ ^'

in its causes, extent, extensity, development, and in the
rise and fall of numbers in receipt of State relief — resembles to a great
extent the famine of 1873-74, but here the analogy ceases: the methods
adopted for relieving distress, the cost, and in a large degree the moral
effects on the people of the operations of 1896-97 have been largely
different from those of tiie famine of 1873-74. In both Amines
alike the paramount object of all famine relief administration,
namely, the saving of human beings from death by starvation, has
been fully attained, but on the present occasion at a greatly reduced
cost, aggregating only a sixth part of that incurred by the State in

1873-74.

If in this narrative comparisons are instituted between the methods
and results of the administration of famine relief in 1873-74 and
those of 1896-97, and conclusions are drawn that may appear
favourable to the methods and results of the recent operations, it is
not because it is claimed that the administrators of to^lay are
superior to their predecessors, to whom belongs the credit of show-
ing for the first time how a widespread Indian famine could be

SIR ALEXANDER MACKENZIE. 995

saccessfully grappled with ; but because the inferences are suggested
that, as the results of the experience of 1873-74 and subsequent
famines, of the labours of the famine Commission, and of the more
minute knowledge of the agricultural economy of the country since
attained, greatly improved methods of famine administration have
been devised, and that, owing to the extension of railways, spread of
communications, and the general advance of these provinces in
material prosperity, the powers of the people to resist tl\e effects of
calamity of seasons have largely increased. It is with a view to call
attendon to and emphasise these inferences that comparisons will be
made on suitable occasions in the following narrative between the
famines of 1897 ^^^ i874* Though the administrators of famine
relief in 1874, in a great undertaking of unprecedented character,
with no previous experience to guide them, may have committed
mistakes and erred on the side of excessive liberality, they were at
all events conspicuously successful in saving life, and left behind
them traditions among the people of confidence in the will and
power of Government to rescue them from the horrors of starva-
tion. The administrators of to-day had the advantage of the ex-
perience of 1874 and of subsequent famines; and if it be true that
equal success has been attained in saving life at a smaller cost, it
should be always remembered, as Sir Richard Temple remarked at
the time, that many things had then to be accomplished, the like of
which had never been attempted before. Nothing can be more
pleasing to those who were responsible for the administration of
relief in 1874, than to find that a failure of crops equal to that of
1874, resulting from an equal deficiency and more unfavourable dis-
tribution of rainfall, and attended by higher prices of food grains,
was met in 1897 by an outlay of little more than one crore of rupees,
against one of six crores in 1874, as nothing would be more agree-
able to Sir Alexander Mackenzie and those who have shared with
him in the labours of the famine of 1897, than to learn 20 years
hence, in the event of the occurrence of a similar calamity of season,
that in the interval between the present and that time the material
prosperity of the people had so advanced that the calamity had been
met by an outlay of one-sixth of that incurred in the recent famine.
Indeed the Lieutenant-Governor sees in the events of the past year
reason to hope that Bengal, Bihar, and Orissa may have now seen

996 BENGAL UNBEK THE LIEUTENANT-GOVERNORS.

die last of the great famines. If with a failure of crops, which,
according to all authorities possessing personal knowledge of these
provinces (and who alone are in a position to form a judgment in
the matter) was as great as any of this century, and with unpreced-
entedly high prices, human life has been saved throughout the vast
territories subject to the Lieutenant-Governor of Bengal, at an outlay
of one crore of rupees to the State, the Lieutenant-Governor thinks
it is not too much to expect, as time goes on, and the condition of
the people of these provinces continues to improve, as it undoubted-
ly has improved in the past quarter of a century, that they will be
able to meet any calamity that is ever likely to occur in the future
with an increasingly diminished expenditure from State funds."

The more important statistics of the famine were subsequently
ascertained with greater accuracy than was possible

Famine statistics. , - « , t^ . « t> t . .

before final Reports were received. Reducing the
persons relieved to terms of one day, the net result of the operations
from first to last showed that in the 15 affected districts 61,018,611
individuals were relieved for one day on works, and 70,783,120
gratuitously, or a total of 131,801,731, while in districts in which
distress was apprehended and test works opened, although famine
was never officially declared to exist, relief on works was given to
277,289 souls and gratuitously to 284,963. For the province, there-
fore, as a whole, 61,295,850 persons attended the relief works and
71,068,083 the gratuitous relief distribution, or a total of 132,363,933
in terms of one day. The total expenditure on relief works, ex-
clusive of expenditure in the nature of bounties and advances,
amounted to Rs. 1,08,03,758, which was distributed under the fol-
lowing main heads as shown below : —

Rs.
Wages of workers and contingencies ... 62,99,245

Gratuitous relief ... ... ... 32,00,287

Establishment ... ... ... 8,85,446

Tools and plant ... ... ... 4,09,785

Compensation for land, trees, crops ... ^>995

Total ... 1,08,03,758

Excluding contingencies, the average daily cost per heaiA of

SIR ALEXANDER BIACKSNZIE. 997

expenditure on the wages of workers amounted to i anna 4* 9 pi^
per diem, and the average daily gratuitous dole to 8*6 pies per head.
Inclusive of the bounties paid on grain and the cost of grain import-
ed, bounties paid to encourage the excavation of kutcha wells and
advances to grain-importers, and under the modified rules of the
Land Improvement Loans Act, most of which would be recoverable,
the grand total of expenditure amounted to Rs. 1,1:^,52,005, or, in
other words, to one crore and twelve lakhs. Considerable sums were
also distributed as relief by private zamindars and others, notably by
the Maharaja Bahadur of Darbhanga and by the Court of Wards on
behalf of the Hatwa Raj, and a total expenditure of Rs. 19,341396
was also incurred by the Indian Famine Charitable Relief Fund.
A scheme for the Tribeni Canal from the river Gandak in the
Canal projects ^^rth of Champaran was discussed as long ago as
in north Bihar. 1874, but, on account of the great expense involved,
the proposal was rejected. During the year of scarcity 1896-97,
when it was found necessary to provide work for famine labour in
Champaran, the project was revived. The Irrigation Department
carried out the necessary surveys and levels, the line for the canal
was marked out, and some of the earth work was done by famine
labour. The scheme provided for a canal starting from Tribeni
Ghat, on the Gandak, and running eastward across the north of
Champaran, for about 58 miles, to the Oriah Nadi. It was to be a
high level canal, commanding the tract lying between itself and the
Sikrana river. The area commanded was to be about 400 square
miles, mainly suitable for rice, but previously on account of succes-
sive droughts mostly uncultivated; the canal, as projected, was to
suffice to irrigate between 80,000 and 90,000 acres of rice, and to
render the tract in question secure against famine. The line of the
canal crossed, unavoidably, a large number of hill streams and the
masonry works required for the passage of these streams were to
add considerably to the cost of the project. Detailed estimates were
prepared, but a rough approximation put the cost of ** works " alone,
including 200 miles of distributaries, at about 20 lakhs of rupees ;
the total cost was estimated at 30 J lakhs: nearly 2 lakh^ were spent
in the famine. As a famine protective work, the value of the Tribeni
canal wae unquestionable; but it could not be classed as a productive
work.

998 BBNGAL UNDKR THE LIEUTENANT-GOVERNORS.

Other schemes vrere also started as famine relief works — ^viz :
that of a canal for the irrigation of Dhaka in ihe Champaran district,
taking off from the Lai Buckeya naia near the Nepal frontier, and
bifurcating into 2 branches of 15 and 16 miles in length. It was to
command about 70 square miles and irrigate about 15,000 acres of
rice and 5,000 acres of raBi crops, and cost about 4 iakhs, but was
not expected to be remunerative for 13 years. Another canal was
proposed from the Bhagmati river on the Nepal border to the Saran
nala in the Muzaffarpur district. This was commenced as a relief
work, and to irrigate about 42,000 acres of kharif, 62,000 acres of
rahi and 7,600 acres of hot-weather crops, and cost about 9 lakhs.
Excavation was commenced in February 1897.

The scheme for the reorganisation of the Educational Department,
which had been under consideration for some time^

Baora&tiiBatioii

of the Bdaeation was finally Settled towards the end of 1806-07 and

Department. **

was introduced with retrospect effect from the 1st
August 1 896. Under the new scheme, the educational services were
divided into two classes — superior and subordinate. The superior
service was to consist of 2 branches— one including all posts filled
by persons appointed in England, to be called '* The Indian Educa-
tional Service," and the other including all posts filled by recruitment
in India, to be known as *' The Provincial Educational Service." In
the former service there were to be 27 posts (including the Superin-
tendentship of the School of Art), and in the Provincial Service there
were to be for the present 113 appointments, including 9 officers
admitted on personal grounds. The post of Director of Public
Instruction, Bengal, was excluded from the list of appointments in
the superior service, Government thus retaining a free hand in the
selection of an officer to fill it. The first 5 years' service of an
officer appointed to the Indian Educational Service was to be re*
garded as probationary, and, exceptional cases and special appoint-
ments apart, the general scale of pay for officers of that service was
fixed, as follows : —

(a) during the probationary period of 5 years, Rs. 500-50-700
a month ;

(b) on expiry of probation, Rs. 750-50-1,000, the maximum
being attained at the end of 10 years from first appointment. A
special allowance of Rs. too a month was to be given after 15 years'

SIR ALEXANDER MACEENZIB. 999

service to officers whose total salary did not exceed Rs. i,ooo, and
who were considered to merit this increase of pay, and 2 personal
allowances of Rs. 250 — 50 — 500 and 3 of Rs. 200 — 10 — 250 a
month were to be open to the 2 senior Professors of the Presi-
dency College, Calcutta, and to Principals of Colleges and Inspectors
of Schools generally, the rule being that they were to be given to
the senior or most deserving men, and were not to be attached to
particular offices.

The following principles were to govern the classification
in the Provincial or Subordinate Service of appointments recruited
for in India —

(i) the line between the two services was drawn rather according
to the nature of the office held than according to pay ;

(2) generally speaking Professors, Inspectors, and Joint and
Assistant Inspectors were to be included in the Provincial Service ;
and Deputy Inspectors, Head Masters of District Schools, and
officers of lower rank in the Subordinate Service ;

(3) as regards other offices, those carrying less pay than Rs. 200
a month were not, except for very special reasons, to be placed in
the Provincial Service ; while offices carrying higher pay than Rs. 200
(such as the senior Deputy Inspectorships) migfet at the discretion
of Government be classed in the Subordinate Service.

The minimum salary of the Provincial Service was fixed at
Rs. 150 a month, and the maximum salary at Rs. 700.

In February 1897 Sir Alfred Croft, k. c. i, e., who had been
connected with the Education Department of Bengal
Pubi£*in' ^^^ more than 31 years, and had been Director of

Btniction. Public Instruction for nearly 20 years, left India.

In a farewell notice. Sir A. Mackenzie acknowledged his services to
Bengal thus : — '' The advance of education in Bengal during bis
tenure of office has been great, and has been largely due to his foster-
ing care. His powers of organization have been continuously
brought to bear upon every branch of this great Department, which
will long bear the impress of his mind and will. By his retirement
the Government of Bengal loses a most accomplished, able and
devoted public servant, and the natives of Bengal a true and judicious
friend". He had also been Vice-Chancellor of the University and
Member of the Bengal Legislative Council, and been connected, as

1000 BENGAL UNDBR THB LIEUTENANT- GOVERNORS.

member or President, with numerous Committees on Educational
subjects. For years he held a distinguished and influential position
in Bengal.

During the year 1896-7 an important decision was arrived at in
Tho Kidderpore regard to the accommodation of the Port of Calcutta.

docka. 'pj^g Kidderpore docks had been opened for traffic

some years before, but failed to attract the traffic that was anticipated.
The Commissioners were then compelled to consider carefully the
best way of utilizing this large work and several proposals put for-
ward from time to time were opposed by the mercantile community.
The trade of the Port, meanwhile, increased rapidly, and caused a
serious block at the jetties, with the result that great delays occurred
in allotting berths to vessels. The following scheme was then
proposed, and placed before the mercantile community. Its
dominant feature was that the jetties should be used only for the
discharge of general import cargo, the vessels, after discharging,
either proceeding to the Kidderpore docks for their export cargo or
loading in the stream. Provision was made for the salt traffic, by
erecting golas with boat wharves, and also for the coal-exportmg
trade, which was growing in importance. Another item of the
scheme was the ^doubling of the railway line for the purpose of
railing the exports to the docks. At the jetties it was proposed to
reduce the number of berths from 7 to 6, the size of the jetties
being increased. This measure was necessary owing to the great
increase in the size of the vessels visiting the Port. These altera-
tions and additions were estimated to cost Rs. 17,70,000, and a
debenture loan of 15 lakhs was asked for to meet the expenditure.

The opinions of the mercantile community were divided, but as
no alternative scheme was put forward by the opponents, and as it
was not possible to meet the wishes of both parties, the scheme, as
prepared by the Commissioners, was strongly recommended by the
Bengal Government and received the sanction of the Government of
India in February 1897. It was introduced as soon as the works
necessary to ensure its success were ready.

During the year 1896-97 the quinquennial provincial contract

^ . . ^ with the Government of India, which commenced

Frorlnctal Con.

ti*ctofi897. in 1892, expired, and the terms of afresh contract

icommenciag from April 1897 were concluded. The chief alteration

SIR ALEXANDKR MACKENZIE. 1061

made was the imperialisation of the receipts and charges of the
Eastern Bengsil State Railway, i of the net revenue of which had
previously been assigned to Bengal ; by way of compensation for this
loss of growing revenue the provincial share of the receipts from
excise was raised from i to ^. The only additional charges provin-
cialised were the survey and settlement expenditure other than that in
Bihar, and the pensionary charges for the servants of the Imperial
Marine Department, and for Branch Pilots and other officers of the
Provincial Marine Department, together with the allowances for their
widows and orphans. The inter-provincial adjustments previously
allowed with Upper Burma were discontinued. On the other hand,
as important administrative changes in the Salt Department were
under consideration, the receipts and expenditure of that Depart-
ment were reserved for the time being as Imperial. The contract
provided for an annual contribution of Rs. 14,19,000 to the Imperial
Treasury from the assigned revenues of Bengal, against Rs. 14,39,000
paid during the currency of the previous contract.

At 5 o'clock P.M., of the 12th June 1897 an earthquake shock,
varying in severity, was felt throughout the province

The OAfthqiiake

of 12th June 1897 of Bengal, from the South Lushai Hills on the east

ill BeiigaL

to Shahabad on the west, and from Puri on the
south to Sikhim on the north. The shock was far more severe over
a larger area than that of any previous earthquake in Bengal of
which any authentic record exists. It was fortunate that it occurred
in the daytime, when people were able to rush out of their dwel-
lings. It was strongest in the districts of the Rajshahi Division,
the Kuch Bihar State, and the districts of Dacca and Mymensingh.
In Calcutta and in the towns of the Murshidabad district much
damage was done to buildings : but oa the whole the public build-
ings in the Presidency Circle escaped better than waslo be expected,
considering the severity of the shock and the fact that so many of
them were of several stories in height. The districts of Chittagong,
Noakhali, Tippera, Backergunge, and Faridpur in eastern bengal,
and those of central Bengal suffered less, while western Bengal
and Bihar escaped with comparatively slight damage to buildings
and little or no loss of life. The damage done to buildings, roads,
and bridges was greatest in Rangpur, which lies on the western side
of the Brahmaputra, opposite the Garo Hills, in Kuch Bihar, in

1002 BENGAL UNDER THE LIEUTENANt-GOVERNOK&.

Mymensingh, south of the Garo Htlis, in Bogra, in Dacca, and in
Dinajpur. Many houses were damaged, and some destroyed, in
Darjeeling. No storm-wave occurred on the coast or in the
Hooghly. A remarkable feature of the earthquake was the opening
of fissures in the ground through which water and sand were
ejected. Assuming the focus of the disturbance to have been near
Cherrapunji in Assam, the shock appeared to have travelled thence
to the western extremity of Bengal and Bihar in 6 minutes or less.
Its duration varied greatly, according to the Reports of the local
officers, the lowest being 6 seconds and the highest 5 minutes. In
the large towns of the eastern districts, most of the masonry build-
ings were severely damaged and many totally wrecked. In the
towns of Rangpur, Bogra, Pabna, Dinajpur, Murshidabad, Berham-
pore, Dacca, Mymensingh, and Kuch Bihar nearly all the masonr}*
houses suffered ; while in Hooghly, Krishnagar, Rampur Boalia,
and Malda a considerable proportion of the larger buildings were
damaged. In Calcutta half of the steeple of the Cathedral fell
in ; the High Court, the Board of Revenue, and many other public
offices were greatly shaken ; over 1300 houses were injured in the
town and suburbs ; only 4 deaths were reported. Heavy damage
was done to the permanent- way, bridges and buildings on the
Eastern Bengal State Railway, the Assam-Bengal Railway and the
Kuch Bihar State Railway. The head-quarters of Government,
which at the time were at Darjeeling, were for 3 days cut off
from postal communication, and regular passenger traffic was sus-
pended on the northern section of the Eastern Bengal State Railway
for a fortnight. The total number of deaths returned from all
parts of the province was 135. The total cost of repairs to, and
reconstruction of. Government buildings in the districts and Calcutta
was estimated at nearly 13 lakhs of rupees, while the losses to
private individuals may have amounted to over a crore of rupees.

The earthquake destroyed the Raja of Sikhim's palace, and a
new building had to be constructed. Several of the monasteries
were also destroyed or badly injured. In Kuch Bihar the earth-
quake was very severely felt, and caused most serious damage to the
Maharaja's palace, the State buildings generally, the State Railway
and roads and bridfjes, the total loss being estimated at over 15
lakhs.

SIR AL8XANDBR MACKIKZIE. 1008

The completion of the sixtieth year of the reign of Her Most
Gracious Majesty the Queen, Empress of India, was

Celobretion of .... i_ .1. ... j

the jiibiioe, iixkd celebrated with much public reioiciniF and many

June 1897. jo

exhibitions of loyalty. Displays of fireworks, public
distributions of alms, the release of prisoners, the grant of conces-
sions to the people, and the construction of permanent works of
public utility marked the celebration in [the Native States. In Kuch
Bihar, Hill Tippera, and Sikhim the ceremonies unfortunately
could not be carried out with the completeness originally intended,
owing to the earthquake of the 12th June. In the districts of the
province, notwithstanding the depression caused by the prevalence of
distress over large areas and the earthquake, which did so much
damage in the northern and eastern parts of the province, the desire
to celebrate the occasion in a fitting manner was general. Besides
local rejoicings, in which the poor were made to participate by the
distribution of alms in the shape of cloth, money, or food, funds
were collected in many places for the establishment of permanent
institutions of a charitable or educational nature, and numerous
addresses of congratulations were adopted for submission to Her
Majesty. As an act of clemency and grace on Her Majesty's
behalf, 3,796 prisoners were released from Bengal jails, out of
the 20,074 released in the whole of India.

When Sir A, Mackenzie took 6 months' leave on medical
Bircc. Stevens, Certificate in June 1897, Sir C. C. Stevens, then
'tag LiiuteSSt.*" Senior Member of the Board of Revenue, was

Governor. obviously the officer to fill the temporary vacancy.

He had already exceeded 35 years* service, having arrived in India
in February 1862. • He had held the apppointments of every grade
in the Executive line, and acted in 1890 as Chief Secretary for
6 months ; he was Chairman of the Port Commissioners and the
Bengal Member of the Governor- General's Legislative Council.
During his tenure of office as Lieutenant-Governor he made no
changes in the staff of Secretaries or in the Private Secretaryship : he
was much occupied with the famine relief operations in the
Patna and Presidency Divisions, which he personally inspected,
and with the Calcutta riots : he also visited Chittagong after
the cyclone of October 1897. When he left India in April 1898,
bis services were handsomely acknowledged in a Government

100*4 BENGAL UOT>ER THE LIEXTTEN ANT-GOVERNORS.

Notific alien, and he ^as made a K. C. S. I. soon after his retire-
ment.

Serious riots occurred at Chitpur and in the northern parts of
Calcutta on the 30th Tune and ist July 1807 in

Calcutta riots. . . , , r

connection with the delivery of possession, in execu-
tion of a decree, of a piece of land at Talla belonging to Maharaja
Sir Jotindra Mohun Tagore, k. c. s. i., containing a hut \^'hich iR'as
alleged by the Muhammadan tenant to be a mosque. The lower
class Muhammadans collected in great numbers to resist the demoli-
tion of the hut. They were dispersed by the police on the morning-
of the 30th June, a detachment of the Gloucester Regiment from
the Fort being present, but later on they reassembled in parties, one
of which attacked the Calcutta Water- Works pumping station at Talla
and did not disperse until the arrival of a body of police. During
the night there was some disorder in Harrison Road, and the rioters
had to be fired upon. On the morning of the ist July the Deputy
Commissioner of Police found it necessary to disperse a body of
rioters by the use of buck-shot, and several men were killed and
wounded. The riots then ceased, the casualties throughout the
disturbances having been 1 1 killed and about 20 wounded among
the rioters, according to the information obtained by the police.
Thirty-four police officers and men received injuries, necessitating
their admission into hospital. The Calcutta Volunteer Light Horse
patrolled some of the streets of the disturbed quarter on the night
of the 30th June, but neither they nor the military detachment,
which was also called out during that night, had occasion during the
disturbances to use their arms. Much excitement and alarm pre-
vailed in the town in consequence of the riots. After the suppression
[of the disturbances, leaflets were circulated by leading and influen-
tial Muhammadans, pointing out to their co-religionists that the
demolished hut having stood on rented land, and not on land
dedicated for a religious purpose, could never have become a
mosque. There was no excuse or justification whatever for those
who combined to disturb the public peace on the unwarrantable
plea that the proceedings under which the land at Talla was trans-
ferred to the possession of the Receiver of the Tagore Estate
constituted an interference with their religion. Eighty-seven of the
rioters were arrested, of whom 81 were convicted.

SIR ALEXANDER MACKENZIE. 1005

In view of these riots it was thought advisable, to pass an Act, I
(B. C.) of 1898, extending to Calcutta the provisions of the Police
Act, V of 1 86 1, which provide for the quartering of additional police
in disturbed areas at the cost of the inhabitants, the recovery of the
cost from the inhabitants, and the levying and award of compensation
for injury done to person and property in such areas in the course
of disturbances.

An Act was passed in 1897 to suppress '' rain-gambling in

summssion of ^0"^°'^*^^ gaming-houses," on the ground that it was
rain-gambiing. ^^ gyil which had attained considerable magnitude,
had already done much harm among certain classes of the com-
munity in Calcutta and tended to afFect larger and larger numbers.
The modus operandi of the gambling was thus described. Rain-
gambling was introduced into Calcutta many years since by the
Marwaris, who are much addicted to play and wagering of one kind
or another, and is practised in the Burra Bazar quarter, where they
chiefly reside. For some years it was confined to one house, con-
taining a large courtyard where the gamblers can assemble. Two
more houses were subsequently opened, and facilities for gambling
were offered at 3 establishments. The system of play followed
at these places was thus described. Attached to the houses were
a number of men who registered bets for the proprietors, charging
them or the successful wagerers a commission of one pice or one
anna, respectively, on each rupee won. The bets were made on the
occurrence of rain within a certain time, and they were registered 3
or 4 times daily. The proprietors of the premises offered odds
against rain, and these depended chiefly on the state of the weather,
ranging from level money to 2 to i , 3 to i , and so on, sometimes up
to 50 to I. Those who backed the rain did not win unless the fall
sufficed to cause an overflow from a small raised tank through a
spout, which was visible from the courtyard. A clock was kept on
the premises to regulate the time.

Sir A. Mackenzie expressed his personal views in regard to this
measure as follows : " I am afraid I do not rise to a very great height
of moral elevation in connection with this Bill. Personally I have
no sympathy whatever with gambling in any shape or form. I never
made a bet in my life ; I do not play cards for money ; and the only
gambling I ever indulged in, if it can be so called, was when I took

1006 BENGAL UNDKB THI LIBUTBNANT-QOYERNORS.

some tickets in Lady Mackenzie's lucky bag at the Fancy Fair at
Belvedere a few days ago. I am no believer in enforcing morality
by legislation. I look upon this Bill simply as a measure of
police. I have been convinced by the Reports of the Commissioner
of Police that the practice of rain-gambling has grown to the
dimensions of a large and growing public nuisance. It is solely in
that light that I approach the question. At home and in most civil-
ised countries common gambling houses are looked upon with
disfavour, and are suppressed by legislation. The mode in which
this form of gambling is conducted in Burra Bazar has become so
intolerable as to call for the intervention of the police. They are
common gambling-houses of a most notorious description, and ought,
as a matter of police pure and simple, to be suppressed. This is
simply the light in which I view the question."

For some years past disputes had existed between landlords and
tenants in Chota Nagpur, especially in the Lohar-

Tho Chota Na^f-

pur Commutation daga district, regarding the rights and conditions oC

Act.

tenancies. One of the chief causes of these dis-
putes was the peculiar system of bethbegari^ by which the tenant was
bound to perform a certain amount of unpaid labour for his land-
lord, such as tilling his lands, building his houses, and carrying his
luggage on a journey; anothei cause was the levy of numerous
rakumats or cesses, uncertain in their incidence, in addition to the
rent, sometimes in money and sometimes in kind. The last serious
agitation took place during the period from 1887-89, when the raiyats
complained that the zamindars exacted more than the customary
amount of labour rakumats; they began also to put forward un-
reasonable claims to hold their lands independently of the zamindar.
paying only a quit rent to Government. After that agitation had
been suppressed, the grievances which had given rise to it were dis-
cussed between the Commissioner of Chota Nagpur, the Govern-
ment of Bengal, and the Government of India, and as a result of
this discussion a Bill was introduced into the Bengal Legislative
Council on the loth January 1897, providing for the commutation of
predial conditions or services in parts of Chota Nagpur, into an
equivalent money rent. Provisions as to enhancement of rent and
the registration and resumption of intermediate tenures were also
included in the BilL These provisions^ however, depended to a

SIR ALEXANDER MACKENZIE. 1007

large ettent on the Bengal Tenancy Act, and, as proposals "were
under discussion for the amendment of that Act, it was decided to
postpone the enactment of those provisions until the Tenancy Act
Amendment Bill should have become law. The sections relating to
the commutation of predial services or conditions were, however,
passed by the Bengal Legislative Council on 28th August 1897, and
became Act IV (B.C.) of 1897. In this Act, while the provisions
of Act I (B.C.) of 1879 regarding voluntary commutation were
retained, power was taken by Government, whenever such a course
seemed expedient, to direct, on or without application from the
landlords and tenants concerned, that a record of the predial con-
ditions or services attached to the tenancy was to be prepared
by a revenue officer, and that they were to be commuted into money
rents.

In Sir Charles Elliott's time a Bill had been prepared to amend
the law relating to the partition of estates, Act VIII

Partition Act. -^ . ^ « ^ mt . -rk.n • «

(B. C.) of 1876. This Bill aimed at re-enactmg the
existing law with several important modifications and was pfiuch
altered by the Government of India and Sir A. Mackenzie's Govern-
ment. Its primary and chief object, as finally framed, was to
simplify, cheapen, and shorten the procedure for effecting partitions
of estates. The Bill aimed at applying a remedy to defects found
in the existing procedure (i) by defining and limiting the stages of
the proceedings at which objections and appeals might be made,
without taking away or curtailing the right itself to raise objections
or make appeals at the proper time ; and (2) by providing for the
making of a survey and the preparation and publication of a record
of existing rents and other assets (unless a previous survey or record
of rights had been officially made or the proprietors themselves
filed measurement papers which were admitted to be correct^,
so that there might be an authoritative ascertainment of the assets
on which partition was to be based, and that all parties concerned
(including the tenants, to whom extracts from the record relating to
their holdings were to be furnished) might have an opportunity of
knowing what was being recorded relating to them, and of urging
objections, if they had any. A secondary, but very important,
object of the Bill was to impose a limit on the practically endless
divisibility of responsibility for land revenue due to the State which

1008 BENGAL UNDER THE LIEUTENANT-GOVERNORS.

was allowed by the Act of 1876. The restriction embodied in the
Bill was that no partition should be made if the annual amount of
land revenue for which the separate estate of the applicant would,
after partition, be liable would not exceed 10 rupees, or if, after
separation of the applicant's interest, the annual amount of land
revenue for which the separate estate of the remaining proprietors
would be liable would not exceed 5 rupees. In other words, no
estate with a present revenue of 1 5 rupees or less could be subjected
to partition.

Various amendments of a minor character were made by the
Bill, which was passed by the Council in August 1897.

With the sanction of the Government of India and the Secretary
of State, a Bill to amend certain sections and

Ameudmoiit of

the Bengal Ten- Chapter X (relating to Records-of-rights and Setde-

ancy Act «%

ments of rents) of the Bengal Tenancy Act, VIII of
1885, was introduced in the Bengal Legislative Council on 3rd April
1897, the object of the changes proposed being to clear up doubts
and difficulties of procedure which had arisen in the course of ex-
perience in the working of Chapter X ; to facilitate the settlement
of rents when undertaken on a large scale, either for the purpose of
settling land revenue or on the application of private individuals ; to
amend the substantive law relating to the enhancement and reduc-
tion of rents, so as to make certain provisions ofs the law more
workable, and. to give effect to the intention of its authors regarding
certain points, on which, owing to want of sufficient clearness in the
wording of the law or to the interpretations put on it by the Civil
Courts, it had been found in practice to be inoperative. The Bill was
published and circulated for opinion among officers and the different
public bodies interested. In view, chiefly, of the opposition of the
landlord class to the proposed provision for the settlement of rents by
revenue officers without judicial procedure or an appeal to the
Civil Courts, it was decided to make no change in the procedure for
settling rents in the case of permanently-settled estates, but to res-
trict the amendment proposed in this respect to all Government
estates and to temporarily-settled areas under settlement. The Bill
as introduced was accordingly revised, and finally passed, as Aa III
(B.C.) of 1898.

On the night of the 24th October 1897 the Chittagong district

SIR ALEXANDER MACKENZIE. 10T)9

was visited by a cyclone of extraordinary violence, accompanied

by a series of storm waves more disastrous than the

The Chlttagong

cyclone of S4th hurricanc itself. The main force of the disturbance

October 1897.

was felt across the whole breadth of the district,
from about 14 miles north of Chittagong Town to about 4 miles
south of Cox's Bazar, a distance of some 70 miles. In the south-
em portion of this tract lies the delta of the Mahamuri river. The
low-lying lands of this delta which lie off it were completely swept
by the storm-^vaves. In many villages half the inhabitants were
drowned. The survivors found their houses levelled to the ground,
their crops entirely destroyed, a great part of their cattle drowned,
and themselves without any stores of food or clothing. The loss of
human lives was reported to be about 1 4,000, and the number of
cattle drowned about 15,000. A further large mortality, the extent
of which could not be ascertained, resulted from a severe outbreak
of cholera that followed in the train of the storm-wave. At Kutubdia
the lighthouse was somewhat damaged, while the flashing light was
irreparably destroyed. At Chittagong itself the shipping and the
Port buildings suffered severely from the cyclone, and heavy damage
was done to public buildings both there and throughout the district.
Vigorous steps were at once t^ken by the local officers to prevent
suffering or death from starvation in the devastated villages. Funds
were placed at their disposal by the Famine Relief Committee, and
arrangements were made for the immediate distribution of food,
clothing, and building material, or the means of buying these neces-
saries to those who had sufferred most severely. Sir C. C. Stevens,
the Officiating Lieutenant-Governor, visited the district, and consi-
dered, in consultation with the local officers, the further steps which
should be taken for the relief of the sufferers and the repair of the
damage caused. The Chittagong Hill Tracts and the South Lushiai
Hills beyond also sufferred, though in a somewhat less degree. In
the former the tract most 'severely affected was that lying between
and along the banks of the Mahamuri and Karnafuli rivers. At
Rangamati the native-quarters and bazar were swept clean away.
The loss of human life was reported to have been 55, and that of
cattle i,soo. The number of boats lost >vas 1,760, excluding those
carried away during the storm in the Chakma circle. Considerable
damage was done to crops in the Bohmong and Chakma circles,

1010 BENGAL UNDER THE LIITJTENANT-GOYERNORS.

while in Rangamati the Government buildings suffered greatly. In
the South Lushai Hills buildings and roads were damaged, as also
the standing crops. No lives were, however, lost.

Among the many matters which came before Sir A. Mackenzie
were the following : — The additional Commissioner

Mi8cellaneo\i8.

for the Patna Division was sanctioned for 3 years :
some Subordinate Judges were made also Assistant Judges : the
Chuadanga Subdivision, abolished in 1892, was reconstituted:
the system of Trial by Jury was extended to 4 more districts : a
system of identification by finger impressions was adopted, as possess-
ing distinct advantages of rapidity and effectiveness over anthropo-
metry ; the prevention of the pollution of rivers by throwing dead
bodies into them was attempted both in urban and rural areas : the
administration of the salt revenue in Orissa was retransferred from
Madras to Bengal : the Opium Department was reorganised in some
minor respects, -as also the Certificate Departments in Collectors"
offices and the Rural Police in Orissa : the rules for the grant of
waste lands for lea cultivation were revised, as also the rules under
> the Emigrants' Health Act of 1889 for the supervision of free emigra-

tion to Assam : the scheme for the reorganisation of the subordinate
educational service was advanced : agricultural classes were opened
at the Sibpur Engineering College : the completion at Govemmeni
cost of the hostel for the students at the Calcutta Madrasa was
sanctioned : the insanitary condition of the Tarai was dealt with ; a
stimulus was given to the improvement of existing sources of water-
supply and the provision of new sources : the Howrah water-works
were completed : a scheme was sanctioned for the extension of the
Bhagalpur water-supply : the Berhampore water-works were sanction-
ed, to be paid for by the Maharani Svarnamayi, c. i. of Kasimbazar :
a license was granted to a company for the supply of Electricity for
lighting and other purposes in Calcutta : a Commission was appoint-
ed to inquire into the building regulations in force in Calcutta : the
Lakhisarai-Gaya and the Mogulsarai-Gaya railways were under con-
struction, as also the Sini-Midnapore-Cuttack extensions of the
Bengal-Nagpur line, and the Mymensingh-Jamalpur, Rajbari-Farid-
pur, Sultanpur-Bogra extensions in Eastern Bengal, and others : a
number of surveys were undertaken for the extension of existing
lines and for new projects and for tramways : certain drainage schemes

SIR ALEXANDER MACKENZIE. 1011

were advanced : a scheme for substituting a permanent bridge for the
floating bridge over the Hooghly and for providing a central station
for Calcutta was put forward by a London Syndicate. Sir A. Mac-
kenzie obtained an increase in the Lieutenant-Governor's ' household
allowance' from ;f 500 to ;f 1000 a month.

Sir A. Mackenzie held the reins of office for a shorter period
than any of his predecessors. From beginning to
end his tenure only extended over 38 months, and
he was on leave for 6 of them. During much of the remainder his
movements were impeded by the ill-health which led to his early
retirement. The famine of 1896-97 was the principal event of the
time, and was well managed, by the light of experience, and with
the co-operation of all engaged. Sir A. Mackenzie deserves all credit
for the successful direction of the policy and the economical results
obtained. He did less personal supervision in the field than other
administrators of a famine campaign have done. The invasion of
plague was a greater difficulty to deal with, as there was no experience
to afford a guide either to the Government of India or to the Local
Governments. The changes of policy in the last 3 or 4 years, rang-
ing from a maximum to a minimum of active interference in plague
administration, are a proof of this difficulty. The arrangements to
keep plague out of Bengal were effective until cases occurred
in April 1898. Those arrangements necessarily included an
attempt to improve the insanitary condition of Calcutta, which
appeared to invite an* outbreak of the disease: and this led in
due course to the Calcutta Municipal Act of 1899. ^^^ his
share in initiating this legislation and his strictures on the
municipal administration of Calcutta Sir A Mackenzie incurred
the animosity of a portion of the native community : but his strength
and honesty of purpose in these matters were duly recognised in
other quarters. The ordinary routine work of the administration he
performed with eas^: his prolonged office training stood him in good
stead. Everything he put his hand to he did thoroughly and well.
A leading journal described him as a strong and able and honest
ruler, adding, " and we believe that this is felt in their inmost hearts
by all classes, even by thati small section of the native press which
are loudest in their denunciation of him, simply because he has had
the courage to speak some unpalatable truths/'

APPENDIX 1.

BELVEDERE.

1 have found nothing to show exactly when, or for what special
purpose, Belvedere was built, but there are allusions to it, as a resi-
dence, in writings of the eighteenth century, which have been
collected by the Revd. J. Long in his Article <^> on " Calcutta in the
Olden Time " and in Volume I of his Selections . from the un-
published records of Government (1869). Writing of the year 1762,
when Warren Hastings was Member of Council (176 1-4), Mr. Long
alludes to his Garden-house " in the then jungles of Alipur", and
again, '' his house at Belvedere was then in the rural solitude of
Alipur/' In the Proceedings of Council of June 20, 1763, there
is an entry that " Mr. Hastings requests permission of the Board to
build a bridge over the CoUighaut Nulla on the road to his Garden
house. Agreed,. his request be complied with." To this entry
-Mr, Long appended a note — " This was to the west of Belvedere
House, the residence of the Governor-General of Bengal.*' This note
appears to indicate that Belvedere House did not belong to Hastings
but no authority for the note is given. It was recorded in the Calcuiia
Gazeile for the 3rd. Sepember 1795 that 'Mast week the Alipur
bridge .which had been in a ruinous condition gave way and fell into
the Nullah : fortunately it happened in the night when no piEissengers
wiere going over." In March 1764, Hastings sold a house for Rs.
16,000/- " for the entertainment of the Nabob*', who was about to
visit Calcutta. Query, was this house Belvedere ? If so, to whom was
it sold ?

Stavorinus, a Dutch Admiral, visited India in 1768. In 1^69,
September 27, he writes that Mr. F.; — ^a newly arriving Director
of the Dutch E. I. Co. at Hooghly was invited,* on his way up the
river, to dine by Mr. Verelst (Governor of Bengal, January 1767 to
December 1 769) at " his country seat about 2 hours walk from
Calcutta, " Mr. Verelst had gone on purpose to nieet him there. Was
this the present Belvedere ? Mr. Beveridge wrote <2) that the influence

0) Galcvita Review^ December 1852.
(S) Gale. Rev, Vol. 82, page 128. Trial of Maharaja Nanda Knmar.

BKLYEDIM. 1013

of Nanda Kumar (the Maharaja, who had been Dewan of the Nawab
Nazira Mir Jafar^ was afterwards an employ^ of the £. I. Co., and
was executed for forgery on August 5th 1775), ** seems to have
continued throughout Verelst's Government, for he often went to
Belvedere*', and mentioned(8> certain persons going to Belvedere,
probably in December 1769, to get certain " Company's bonds."

Again, 1770, February 26th, Stavorinus went with the Dutch
Council to congratulate Mr, Cartier on his accession to the Governor-
ship (of Bengal, December 1769 to April 1772). *' At 6 o'clock in
the evening Mr. Cartier came to fetch the Director V, — and his
company to take a ride to his country seat Belvedere, about 2 Dutch
miles from Calcutta where we were entertained with an excellent
concert performed by amateurs, and an elegant supper."

Mr. Long surmises that it may then have probably served, as
Barrackpore does now, as the country residence of the Governors
for the time being.

Writing on the 29th April 1775 Warren Hastings then Governor-
General of Bengal, intimates<*> that he was at Belvedere on the 23rd
idem, where he saw Kamaluddin, who was afterwards one of the
principal witnesses in the forgery case against Maharaja Nanda
Kumar. Mr. Beveridge thinks<^> that W. Hastings in writing
" Bel videre " meant " Hastings House", and not the present resi-
dence of the Lieutenant-Governor, but he gives no reason for this
opinion.

Relations were much strained between Mr, Hastings and the
Chief Justice, Sir Elijah Impey, in 1779. But in November of that
year, when Impey had fallen ill, Hastings invited^^) him to stay at
" his country house", which indicates the temporary re-establish-
inent of friendly relations. Hastings wrote, " I have examined the
house, and I have provided such accommodations as will be accept-
able to you, and I venture to make it my request — a request in
which Mrs. Hastings joins me — that you will come, and make trial
of them."

In 1780 Mrs. Fay, the authoress of Orit[inalletUrs from India,

(8) Gale. Rev. Vol. 82, pages 137 and 139 ;

(4) Gleig's Memoirs, VoL I, page 523, edn, 1841.

(6) Caic, Rev. Vol. 82, page 354.

(6) Sir J. W. Kaye's Article on Sir £. Impey.

1014 BKLVKBERE.

arrived In Calcutta. She was one of the first who tried the Over-
land route : she was made prisoner at Calicut by Hyder Alt, and was
imprisoned there ; she mentions visiting Mrs. Hastings in May 1 780.
at Belvedere House " about, I believe, 5 miles from Calcutta, which
is a great distance at this season/' and describes it thus : — "the house
is a perfect hijou ; most superbly fitted up with all that unbounded
affluence can display ; but still deficient in that simple elegance which
the wealthy so seldom aUain, from the circumstance of not being
obliged to search for effect without much cost, which those but
moderately rich find to be indispensable. The grounds are said to
be very tastefully laid out." A writer" in 1844 refers to this
time : — * A few years afterwards ' t\ e, after Governor Cartier, * when
the elegant Marian' (Mrs. W. Hastings) * held her Court at
Belvedere, Calcutta seems to have rejoiced in a sprinkling of the
fair sex.' Mr. Long describes Belvedere " facing Alipur bridge " as
" once the favourite residence of Warren Hastings, but latterly he
erected another house further south " (presumably the Hastings
House, south of the Horticultural Gardens and of Belvedere Road),
and he is said to have hunted tigers in its neighbourhood. The
source of Mr. Long's information is not mentioned, (and Sir W. W.
Hunter has not been able to verify (^' it) ; his statements taken literally
indicate that Hastings' Garden-house at Alipore was not Belvedere.
Belvedere is shown in the map of Calcutta and its environs, made
from the survey taken in 1792-3 by A. Upjohn, "an ingenious
artist," as standing about 500 yards south of the Alipore-Belvedere
bridge, over Tolly's naJa, which is now called the Zeerut Bridge
(constructed 1856). The shape of the house, as given in the map,
corresponds to its shape at the present day.

Belvedere is prominently mentioned in the account of the famous
duel in the early morning of Thurscjay the 17th August 17^
between Warren Hastings and Philip Francis, recorded by Colonel
Pearse, Commandant of Arillery, who was Hastings' second in the
affair. The place of appointment was *' the road leading to Alipur.
at the crossing of it through a double row of trees that formerly
had been a walk of Belvedere Garden, on the western side of the
house." After some discussion as to the suitability of the place, it

(7) Calc, Rev, Vol. I. page 327.

(8) See the Statistical Account of Bengal, Vol I, p. 100

BKLVEBKRI. 1015

was agreed to walk towards Mr. Banvell's house (uow Kidderpore
house, the Military orphan school) on an old road that separated his
ground from Belvedere, and in a short distance a retired dry spot
was chosen as a proper place. When Francis was hit, his second
brought a cot or palanquin from Belvedere to carry him to town.
But as the cot could not be carried over a deep broad ditch he was
conveyed to Belvedere, induced to accept a room there, and there
attended to by the surgeons. Dr. H. E. Busteed quotes <^J an entry
in Francis' journal that " I was at last conveyed to Major Foley's
house on a bed." Major *' Foley " is an obvious error for Major
•"Tolly," the maker of Tolly's nala (1775), who had bought Belvedere
from W. Hastings in February 1870, as existing documents show.
Dr. Busteed conjectures^^®) that Tolly " must have been occupying it
(Belvedere) possibly as the tenant of Hastings, though it became later
part of Tolly's estate." He was apparently not aware of the sale
of Belvedere in February 1780, by Hastings to Tolly. As the duel
was in August 1780, Francis was apparently correct in writing of
Belvedere as Foley's (i.e. Tolly's) house. Hastings writingC^^^
to his wife on the day of the duel says of Francis that " he is at
Belvedere," but does not happen to mention to whom the house then
belonged. Dr. Busteed also gives his opinion that the place origin-
ally fixed for the meeting probably corresponds to the second gate
(from the western side) leading into Belvedere compound and that a
spot near the northern boundary of No. 5 Alipore Road was the site
of the duel. The Revd. Mr, Long, on the other hand, stated (1852)
that Hastings and Francis exchanged shots where '' nearly opposite
Alipur stood iwo frees, called * the trees of destruction/ notorious
for the duels fought under their shade." In the autograph manus-
cript room at the British JNIuseum may be seen one of the two letters
written on the day of the duel by Hastings to his wife, in his clear
steady hand-writing.

Mrs. Warren Hastings sailed for England in January 1784. In
some of the letters which Hastings wrote to his Nvife, (published by
Dr. Busteed in his book above mentioned) there are allusions to the
Alipore property, which must be referred to here. For instance, on
the 15th January Hastings wrote, " I have ordered an advertisement

(0) Echoes fnm old Calcutta, 3rd. Edn. 1897, p. 103.

(10) Not«, p. 103, 3rd. Edn. ODIdeni, p. 104.

lOlB BELTEDERK.

to be made for the sale 6i Allipoor and Rishera" (south of Serampore),
" and shall clear myself as speedily as I can of other incumbrances " :
and Ptgain on the aist idem, he alludes to the selling of his property,
thus, **I have actually advised the sale of it f Alipoor) in three lots, the
old house and garden forming one, the new house and out-house$i
the second, and the paddock the third. I have parted with all my
mares, except 4 which have colts." Dr. Busteed's note on this
passage shows the difficulty which so diligent and critical a writer
experienced in determining exactly what property Hastings possessed
at Alipore. He noted, (page 294), " The same property as part of
the estate of W. Hastings was again advertised for sale in April 1 785*.
The *'old house " was presumably Belvedere, though not named in
the advertisement. The "new house" — that still known as "Hastings*
house " — was built about 1776. Macrabie (brother-in-law and private
Secretary to Francis) writes in February of that year, " Colonel
Monson dined with us in the country : after dinner we walked over
to the Governor's new-built house. 'Tis a pretty toy but very small
tho ' airy and lofty. Those milk-white buildings with smooth shiny
surface utterly blind one." This description inclines me now to
think that the *' bijou " house where Mrs. Fay visited Mrs. Hastings
in May, 1780, and which she calls Belvedere, was really the smaller
and newer house further south. Mrs. Fay made her visit when only
just arrived in Calcutta and could easily have confused the names.
Hastings gave a concert party *' at Belvedere his Garden " in Feb-
ruary, 1776, to which Macrabie was invited. Possibly after his
marriage he may have retained Belvedere for his large social recep-
tions only, and lived in the smaller building as his country house, or
he may have sublet Belvedere. This question is one of local interest
only, being to this day ofteh discussed in Calcutta." Warren Hastings
was married to his wife Marian in August 1777.

In the Calcutta Gazette (Gladwin's) of Thursday October 28th
1784, there is to be found an advertisement — "To be let or sold.
Belvedere house, inquire at the Bengal Bank." It was evidently
not sold, as Hastings wrote to his wife on 20th November 1784 :
"I am how writing at Alipur : for it has been put up to sale and
bought in again.. I have sold Rishera for double the sum that was
paid for it " But it is not clear which Hastings was selling at Alipore
in 1784, as Belvedere was sold to Colonel Tolly in 1780 and was

BSLVKDKRI. 1017

advertised by the latter's widow for sale in i8o2, as an advertise*
ment in the Calcuttd Gaztite^^^^ of the 25th February 1802 shows : —
^^To be sold by public auction^ by Bring & Co,, al their auction-rooM:
"On Wednesday the 24th March next, by order of Richard Johnson
Esq., Attorney to the Administratrix of the late Colonel William
Tolly, the undermentioned house, premises and lands, belonging to
his Estate.

Lot /. — "That large, commodious and well-known house, called
Belvedere house with jz bighas, 8 cottahs, 4 chit tacks of land, more
or less, thereto belonging, at present occupied by, and "subject to, a
lease granted to William Augustus Brooke Esq., at the yearly rent
of ;C35o, payable at the house of Messrs. William Paxton & Co.
of London (the houses and premises to be kept in good repair at
Mr. Brooke's expense) determinable on the ist of August 1802.

Lot IL — "Apiece of ground, about 81 bighas and 14 chittacks,
more or less, situated to the westward of the road leading from
Belvedere bridge to Belvedere house.

Lot IIL-'^A piece of ground, about 39 bighas, 4 cottahs,
10 chittacks, more or less, to the eastward of the said road.

N. B. The premises are subject to a small yearly rent to Govern-
ment ; in the 2 last lots, there are a number of native tenants who
pay to the estate an annual rent of upwards of Rs. 600. The
first lot was sold to a Mr. Nicholas Nugent, of Calcutta, apparently
on behalf of a Mr. Thomas Scott. Belvedere subsequently passed
through the hands of John Brereton Birch, (18 10) ; Sambhu Chander
Mukerji, (1827); and James Mackillop, (1841).

Belvedere was occupied^^) by General the Hon'ble Sir Edward
Paget, K. c. B., Commander-in-Chief in India from December
1822 to 6th October 1825. On the 6th February 1823 ^^ sent home
his wife Lady Harriet Paget and their children, as the climate had
materially affected their health. He accompanied them as far as
Saugor, and on his return landed at Diamond Harbour and drove
up to Belvedere. He wrote thence on the 8th February to his wife
as follows : — **We reached Belvedere about two o'clock, and I pro-
nounce it to be a delightful residence. I know but one want it

(18) Selections, VoL HI, page 5o8.
(18) Letters and Memorials of General the Hon'ble Sir Edward Page t,
K. c. B. printed for private oiroulation, 1898.

1018 BBLVEDBRB.

has You know the house so well that I shall say no more about

it at present, than that it is most cheerful, clean, and gentlemanlike,
and I would not change it for the Government House." Again on
the 1 8th February — "I reviewed the Artillery (at Dum Dum) which
engaged me till 8 a. m.... after which I returned to Belvedere, and

for the first time made up my mosquito-room My mosquito room

answers admirably, and my housemaids understand their business
so well that I have only been disturbed by one villain of a mosquito
since I have slept at Belvedere...! had my first grand dSxiXitx ^t
Belvedere yesterday, and extremely good and well-served it was."

Mr. Charles Robert Prinsep (Advocate-General, Bengal 1846-49,
1852-55) repaired the house in September 1838; in June 1841 the
Prinsep family bought it and sold it to the East India Company in
1854. When the Lieutenant-Governorship was created, Lord Dal-
housie recorded the following Minute on the 17th Feburary 1854 : —

'' Among the various arrangements which are required in connection
with the appointment of a Lieutenant-Governor of Bengal, is the
provision of a fitting residence for him. At Agra a house is set apart
tor the Government House, but it is not the property of Government.
I consider this to be a costly and an inexpedient plan, and that the
purchase of a house would be in every respect preferable. The house
at AHpore which faces the bridge, and which is now the property of the
Advocate-General, J. S. Prinsep, C^*^) is in every way eligible both as a
private residence and as an official building, to be set apart for the
Lieutenant-Governor of Bengal. It may be obtained for Rs. 80,000 with
immediate possession. To make it a complete residence it will probably
cost Rs. 20,000 more, making the whole price a lakh of rupees.
Allowing 3>i per cent, for interest, and 2% per cent for repairs, the fair
rent to be paid by the Lieutenant-Governor would be Rs. 509 a month.
I think this bargain should be closed with, and that instructions should
be given to the Company's Solicitor to complete the purchase and titles
forthwith."

From a further Minute of 24th September 1854 it appears that
Lord Dalhousie had observed that ** the very larg^e society of Calcutta
must impose expenses upon the Lieutenant-Governor of Bengal
greatly beyond anything that can fall upon the Lieutenant-Governor
of the N. W. Provinces ; and that thus the Governor {sic) of Bengal
must be at once the most onerous and the worst paid."

' (14) Sic : really Mr. C. R. P.

BSLVBDBllB. 1019

He thereupon proposed to ask the Court of Directors to exempt
the Lieutenant-Governor " from any demand for house-rent, and further
to rule that 9Ljumished\iO}j^t should be found for the Lieutenant-Governor
of Bengal as is done for the Governor- General and for the Governors of
Presidencies. The effect of this rule would be to relieve the present
Lieutenant-Governor from the very heavy charge which the furnishing
of the bare walls provided by Government must have imposed upon his
private purse. I feel myself bound in justice to bring these details under
the notice of the Hon'ble Court. For I wish it to be clearly understood
that I do so wholly without the knowledge of the Lieutenant-Governor."
Sir G. Campbell, in his Memoirs, wrote of Belvedere as *' a
charming house in charming grounds,'' and Sir R. Temple thus
described it: — "The official mansion is named Belvedere, and well
it deserves the name, being situated in a richly-wooded suburb
where the bamboos in fine profusion throw up their tall stems
tapering to the most delicate sprigs, and pending so as to overarch
the loads and lanes. There too the plantain puts forth its great
leaves several feet long, in form like a scimitar, and with a sheen
on the surface resembling green satin.'' And again ^' In the middle
of the park, studded with groups of trees, stood Belvedere House.
Its terrace overlooked a rich expanse of verdure — its flights of steps
were environed by flowering creepers — its ponds were covered with
lotus and waterlilies— its gardens were encircled with various trees,
the banyan, the almond, the bamboo, the cotton-tree, and even by
some specimens of the peerless Amherstia." Government House
at Calcutta has been described by another writer as *' not to be
compared for comfort and beauty of situation with the Lieutenant-
Governor's house at Belvedere."

The house has been enlarged and improved from time to time by
successive Lieutenant-Governors. Its architecture is of a free Italian
renaissance style, developed on an ordinary ] Anglo-Indian building.
The construction of a veranda on the east side^ and the re-cons-
truction of a more commodious west wing, were carried out in
1868-70 by Sir W. Grey. Alterations and additions to other parts
of the building were effected, and boundary fences to the new
grounds and a guard-room were constructed. Sir A. Eden added
the whole of the centre main fo9ade, with the steps, on the north
side, Mr. £. J. Martin being the Government architect : he also
had the wooden floor put to the centre ball-room. In Sir S.

1020 BBLVfiDSRS.

Bayley's time the wooden glazed dining-room was made, on the
north-^ast side of the house. Sir C. Elliott had the rooms on the upper
story of the west wing constructed, and the arch-way leading into the
drawing ropm from the main staircase substituted for a door. Sir
A. Mackenzie introduced the electric lighting. Sir W. Grey had
the honour of receiving H. R. H. the Duke of Edinburgh at a Ball
and Reception at Belvedere, in December 1869 — January 1870. SirR.
Temple had the honor of entertaining the King — ^Emperor, then
H. R. H. the Prince of Wales at dinner and at a garden party in
December 1875, smd Sir S. Bayley of giving a Ball to H. R. H. the
late Duke of Clarence : Sir C. Elliott entertained the Czarewitch
of Russia at a dinner and evening party in January 189 1. (It was
on this occasion that the sudden explosion of a soda-water bottle
created some momentary alarm, which was promptly met by the
ready wit of the hostess. The Russian staff were much more
concerned at the incident than the Czarewitch himself.)

The history of some of the land attached to Belvedere can also be
traced, and shoNvn to be connected with names well-known in Bengal.
In April 1841 Sir Charles Imhoff (descended from the second
Mrs. Hastings by her first marriage) sold to the Nawab Nazim of
Murshidabad an upper-roomed house &c., *' situate behind that house
and mansion commonly known by the name of the Belvedere House,
including the garden and tank and all that piece or parcel of land or
ground thereunto belonging, containing by estimate 132 bighas at
Alipore in the i^-Parganas, formerly occupied by Sir Charles
Theophilus Metcalfe Baronet^ and paying an annual rent to Govern-
ment of Rs. 311 4a. ig, 2r., and bounded" &c — ^the boundaries here
given indicate the lands south of Belvedere now partly occupied by
the Agri-Horticultural Society and partly by the houses north of
the road leading from Alipore Road to Kalighat Bridge. This
allusion to Sir C. T. Metcalfe fixes approximately his residence at
Alipore which was not identified in Sir John W. Kaye's life of him
in writing ^^^'^ thus — "During the first years of his residence at the
Presidency, he occupied a house on the banks of the river at Garden
Reach. He subsequently removed to Alipore, a more inland suburb'*
'< Throughout all this period he enlivened Calcutta with magni-

(16) VoL 2, Chapter III, The J^taJL in Councii, 1827-34.

BELYEDKRK. 1021

ficent hospitality,,... '^ His house at Alipore was surrounded by spacious
park-like grounds, and at early morning he might sometimes be seen
riding in topboots, an aritcle of equipment in which he always rejoiced,
on a plump white horse, with a groom upon either side of him," &c.
It was within the memory of one lately deceased in India that this
house (in an extensive compound south of Belvedere) was called the
"Nabob Sahib ka kothi". In January 1864 the Nawab Nazim sold
these lands to Sir Cecil Beadon, who had the house dismantled^ and
in 1867 and 1868 sold certain areas to the Secretary of State. iThe
Bengal Administration Report for 1867-8 refers to this transaction.
" At Belvedere House, Alipore, improvements have been made in
repairing the damages caused by the last cyclone (of ist — 2nd
November 1 867) ; and an adjoining piece of land has been purchased
and added in part to the property. The remainder of this land has
been set aside for an extension to the Alipore Cantonment''. It is
apparently this ''remainder*' that has passed into the possession of
the Agri-Horticultural Society. The portion of Belvedere Road
south of the Agri-Horticultural Gardens was at one time called
" Love Lane/* at the special request (I was informed by the same
authority) of a Collector who had wooed and won his wife there.

APPENDIX II.

LIVES OF SOME OF THE LEADING MAHARAJAS.
NAWABS, &c„ IN BENGAL, IN THE PERIOD

1854-98.

RAJA SIR RADHAKANTA DEB BAHADUR, k. c. s. i.

When Raja Sir Radhakanta Deb Bahadur, k.c.s.i., died atBrinda-
ban on the 19th April 1867 a link with the last century was broken.
He was born in Calcutta, nth March 1784, the son of Raja Gopi
Mohun Deb and the great grandson of Munshi, afterwards Maharaja
Nobo Krishna Deb, the Persian Secretary to Lord Clive, He received
his English education at Mr. Cum'ming's Calcutta Academy and
learnt Sanskrit and Persian under Pandits and Maulvis. To benefit
his fellow beings he devoted his time and energies to the cultivation
of literature and to the work of disseminating knowledge. To revive
Sanskrit learning and to help to spread English education among his
countrymen were the great objects of his life.

He was the first modern Hindu who advocated female education.
He was, however, of opinion that women should be taught at home in
accordance with the Sastras, and not sent to school. He zealously
seconded the efforts of David Hare in establishing Pathsalas and
schools. But Raja Radhakanta Deb is best kno^sn for his excellent
and comprehensive Sanskrit Dictionary Sabdakalpadrum^ which will
ever remain a monument of his profound scholarship. The work
elicited the applause of learned Societies of Europe, which conferred
on him honorary titles and diplomas, and Her Majesty the Queen
presented to him a gold medal.

Though possessed of no strong political views, he was a zealous
advocate of the political as well as the mental elevation of his
countrymen and took an active part in the protest against the
Resumption of Lakhraj (revenue-free) lands.

In religion Radhakanta was a Hindu of Hindus. His rigid
conservatism assumed the form of aggressive superstition. His
attachment to the antiquated customs and usages of his country
was as devoted as his advocacy of educational measures was zealous.
Thus it was that he could not sympathise with the measures for the
abolition of Suttee, the suppression of polygamy, or with the law in

RAM GOPAL GHOBR. 102 A

favour of native Christian converts, giving them the right of inheri-
tance when their fathers died intestate. In all these movements he
sided with the orthodox classes of which he was the leader, and
protested actively, but in vain, against the measures in question.

He was a Director of the Hindu College— Secretary of the School
Society established in 1818 — an Honorary Magistrate and a Justice
of the Peace for Calcutta in 1855 — ^^^ President of the British
Indian Association in 1851 until his death.

"In consideration of the dignity of his ancestors, the high
character for probity and learning he bore among his countrymen,
and the laudable anxiety he had ever displayed to render his services
useful to the public," the Governor-General in Council was pleased
to confer on him the title of Raja, and Bahadur, and invest him with
a khtia/ on loth July 1837. On the extension of the order of the
Star of India, he was the only Bengali gentleman who was invested
with the title and decoration of the K. C. S. I.

His life may be summed up in these words — he went on
cultivating and disseminating knowledge. It was a life of un-
selfish devotion to literature and to what he considered to be the
best interests of his country. As a pioneer in the cause of native
education, as an active supporter of all public movements which he
considered to be for the general well-being of the people and as a
zealous worker for the promotion of Sanskrit literature, his name
will always be remembered by his countrymen, as well as for his
staunch orthodoxy throughout a long life in an age of progress.

BABU RAM GOPAL GHOSE.
In January 1868 Babu Ram Gopal Ghose died, a leading member
of the Native community, who had long been conspicuous in many
ways, especially in all movements calculated to promote the moral and
material welfare of his countrymen. He was one of the first to
take up the line of political agitation. A brief notice of his life
will give some idea of the forces that had begun to operate in Bengal.
He was born in Calcutta in October 18 15, the son of Gobind
Chunder Ghose of Baguti near Tribeni in the district of Hooghly, a
dealer in cloth in China Bazar. He received his English education

1024 RAM OOPAL GHOSK.

at the Hindu College. He was among the earliest to benefit by Mr.
Derozio's teaching, and to renounce openly the religion of his
fathers, manifesting his independence by separating from Hindu
society, denouncing idolatry both by profession and practice, and
adopting English food and mode of living.

About 1830 he was recommended by David Hare, who had
watched his college career, for an Assistantship in a mercantile firm.
While continuing his studies, in his spare time he specially directed
his attention to the study of the markets and the natural produce of
the country. Before he was 20 he wrote a series of articles on the
Inland Transit Duties. After gaining experience, first as banian and
later as partner in a European firm, he started business on his own
account, under the style of R. G. Ghose and Co., established a
branch firm at Akyab and another at Rangoon, and became a rich
and successful merchant.

While thus engaged in mercantile pursuits he found time to
conceive and carry out schemes for the improvement of his country-
men. He undertook for some time the joint editorship of the
Gyananeshan and, in 1839, established a Society for the Acquisition
of General Knowledge. He also founded an epistolary club, and
placed under the editorial charge of his friend, Babu Piari Chand
Mitra, a weekly publication called the Bengal Spectator, His deep
interest in the cause of education was evidenced by the support he
rendered to David Hare in various ways. Students of different schools
received aid and encouragement from him in the shape of prizes
and money. When the question of sending 4 students of the
Medical College to England to complete their education was raised
by Dr. Goodeve, Babu Ram Gopal warmly supported him and en-
couraged the students to adhere to their enterprise. The prejudice
against crossing the sea was very strong at the time ; and Babu Ram
Gopal was afraid that the courage of the students might fail at the last
moment. To prevent such a mishap, he stayed with them on board
the steamer the whole night before their departure, to cheer and
encourage them, and did not leave them until they had actually
started. The liberality of his views was also illustrated by his setting
the example of sending his daughter to the Female Schopl established
by Mr. Drinkwater Bethune. In public matters he showed his zeal
for all progress. Thus, when the East Indian Railway was projected,

RAM GOPAL QHOSE. 1025

be was one of the first to recognize its feasibility and to support it
strongly.

In politics, Babu Ram Gopal Ghose was a zealous and indefati-
gable reformer. He was a leading member of the British Indian
Association, which was established in 1851, and took the most pro-
minent part in every political movement of the day : such subjects
as the admission of Natives into the Legislative Council of India
and the Civil Service, the extension of reproductive public works,
were agitated, largely at his instigation. It was he who first matured
a plan and established a Society for political agitation in England,
with the assistance of Mr. Adams, for the purpose of drawing the
attention of the British public to Indian questions.

But, above all, Babu Ram Gopal was distinguished for his great
oratorical powers. When the Government of Bengal, on 26th Feb-
ruary 1864, desired to remove the burning ghai from NimtoUa,
though he felt personally no religious scruples against the proposal,
he identified himself with his orthodox countrymen and made an
eloquent speech setting forth their grievances. His speeches on the
renewal of the Charter Act of 1853, ^^ ^^^ memorial of Sir Henry
Hardinge, and on the administration of Lord Canning are also
famous, the former being praised by the Times as '' a master-piece
of oratory."

The success which Ram Gopal achieved in his commercial career
soon brought him prominently to the notice of Government. The
Government of Bengal offered him the 2nd Judgeship of the Small
Cause Court, but he respectfully declined the offer.

He was a member of the Calcutta Police Committee of 1845^ ^^
the Smallpox Committee of 1850, of the Central Committees for the
collection of works of Industry and Arts for the London Exhibition
of 185 1, and the Paris Exhibitions of 1855 and 1867, and of the
Bengal Agricultural Exhibitions of 1855 and 1864, — a member
of the Council of Education from September 1848 to its dissolution
in January 1855,— a very active member of the Bengal Chamber of
Commerce, — a Fellow of the Calcutta University, the Agri-Horticul-
tural Society, and the District Charitable Society, — an Honorary
Magistrate and a Justice of the Peace for Calcutta,— and a Member
of the Bengal Legislative Council from 1862 to 1864.

As a promoter of education, a patriot, a politician, a speaker, a

1026 RAltTANU LAHIRI.

social reformer, as a successful merchant, and in force of character,
Babu Ram Gopal Ghose was one of the foremost men of his time :
and did much for the advancement and enlightenment of Hindu

society.

BABU RAMTANU LAHIRI.

The name of Babu Ramtanu Lahiri will always occupy a promi-
nent and honourable place in any history of social reform in Bengal.
Born in 1 813 at Krishnagar, he was, at the age of 12, admitted as a
free student into the Society's School established by Mr. Hare, now
known as the Hare School. When, five years later, he entered the
Hindu College, the School Society undertook, at ihe request of Mr.
Hare, to pay his College fees. He was one of the first to receive
instruction from, and to feel the influence of, the eminent Eurasian
teacher Derozio. Of his schoolfellows, who subsequently distin-
guished themselves in different paths of life, the names of Babu
Ram Gopal Ghose, the Rev. K. M. Banerji, Babu Rasik Krishna
Mullick, Raja Dakshinaranjan Mukerji, and Raja Digambar Mitra
are well known in Bengal ; all of them were his very intimate
friends. In 1834 Babu Ramtanu, after passing the final examination
of the Hindu College, began life as a teacher of that institution and
subsequently continued his professional work in different institutions
at Burdwan. Barasat, Uttarpara, Barisal, Krishnagar and elsewhere,
earning always for himself a reputation for kindliness, piety, sincerity,
and goodness. He retired from work in 1865, and lived for some
years at Krishnagar; in 1880 he removed to Calcutta, where be
passed away in August 1898. His decease was felt as a national
loss in Bengal and mourned by many of his European friends out
of India. Babu Ramtanu was famous for the courage of his opinions,
his truthfulness, and the sincerity of his feelings. '' He was a
reformer in days," wrote Sir C. C. Stevens when he received the
news of Babu Ramtanu's decease, '' when reform was novel and
unfashionable and to preach it and still more to practise it involved
serious sacrifices." His renouncement of the Brahminical thread
was followed by a series of persecutions by his Hindu relatives, but
he bore them all cheerfully. His calmness of mind never failed
him during his many family bereavements. When his grown op
son died at Krishnagar, and before the removal oi the dead body
some friends came, by a previous engagement, to see him, he received

PRASANKA KUMAR TA0ORS. 1027

them warmly and said, " The dead body of my son is in that room,
so let us walk to the shade of the tree there and talk." On the
death of another child he consoled 1 is wife, with the words,
" Mourn not, our child is in heaven." " He led a blameless life,"
a high authority has written, '' and his exemplary character remains
as a guide and beacon to his countrymen at the present time."

BABU PRASANNA KUMAR TAGORE, c. s. i.

In the early part of the latter half of the nineteenth century Babu
Prasanna Kumar Tagore, c. s. i. was one of the leaders of the Native
community. He was born in 1803, and educated partly by private
teachers under direct home influences, and partly in Mr. Sherbourne's
school, where he acquired the rudiments of English. He was for some
time at the old Hindu College, during the first days of its establish-
ment. He had at one time aspirations after reformed social condi-
tions ; which, however, at a later period, after the conversion of his
only son Gayendra Mohan Tagore (the first Native Indian Barrister)
to Christianity, gave place to ordinary Hinduism.

Though his annual income as a zamindar exceeded a lakh of
rupees, he was anxious to improve it by adopting a profession and
accordingly joined the bar of the Sadar Diwani Adalat in Calcutta
as a pleader. He had incurred some heavy losses in conducting
business as an indigo-planter and oil-mill proprietor; but his success
at the bar was so rapid as to enable him not only to meet all liabi-
lities, but also to lay by very large sums of money, his annual
professional income for a series of years ranging between a lakh and
a lakh and a half of rupees.

As one of the hereditary Governors of the Hindu College, (to
which his father Gopi Mohan had made a large contribution), as a
member of the Council of Education, and as a Fellow of the newly
created University of Calcutta, he won considerable reputation.
The present Mayo Hospital had in him a Governor and Patron, and
several charitable dispensaries in his large estates owed their
existence to his liberality and public spirit. His library was one of
the best and contained many rare works.

Lord Dalhousie appointed him Clerk Assistant to the Legislative
Council of the Governor-General — ^a post in which he showed
conspicuous ability. Subsequently he was made a Member of the

1028 NAWAB SIK KHWAJA ABDUL GHANIMIA.

same Council. Among his best acts ivas the creation of the Tagore
Law Professorship in the Calcutta University at a cost of 3 lakhs of
rupees. He was made a C.S.I. and died in 1868. His marble
statue adorns the vestibule of the Senate House, at Calcutta.

As a founder of the British Indian Association, and as a represen-
tative man, he was constantly taking a part in Indian politics. In
1832, he was one of those who voted an address to the King of
England for the dismissal by His Majesty in Council of the appeal
of certain Hindus against the abolition of Suttee,

NAWAB SIR KHWAJA ABDUL GHANI MIA, k.c.s.i.

and

NAWAB SIR KHWAJA AHSANULLA BAHADUR, kx.ue.

The "Dacca Nawabs'' have long held the leading position in

Eastern Bengal. In wealth, in liberality, in founding works of public

utility, and in loyalty to the British Government, the family has stood

and stands pre-eminent. Khwaja Abdul Hakim, its founder, some

generations ago, came to India from the Bonda family in Kashmir

and held a lucrative appointment at the Mogul Court of Delhi. On

the overthrow of the Moguls, he had to seek his fortune elsewhere,

and somehow found his way to Sylhet ; there he embarked on business,

built houses on the present site of the Collector's office, took up his

residence, sent for his father and brothers from Kashmir^ and died.

The family has since remained in Bengal and dissolved all connec*

tion with Kashmir. Its next head removed to Dacca and settled in

Begam's Bazar. One of his successors, Maulvi HafizuUa, abandoned

trade, acquired landed property in the districts of Dacca, Barisal,

Tippera and Mymensingh, and thus established the family as wealthy

zamindars. Another head of the house made the arrangements

which have united all the members in a joint estate, inseparable and

indivisible.

But it was on the accession of Nawab Abdul Ghani to the manage-
ment that the prosperity of the house reached its zenith. With no
previous experience of landed property, he quickly, with character-
istic energy, mastered all the details and proved an ideal zamindar.
He possessed also great influence over his co-religionists, and was,
in 1869, the means of preventing a serious disturbance between the
Skias and Sunnis at Dacca. A Sunni himself, be was desired by

NAWAB: SIR KHWAJA ABDUL QHANIMIA. 1029

the authorities to use his influence to compose the feud, and was
successful in restoring fMsace between the sects, at no small expense
to himself. Many family and other disputes were referred to his
arbitration, which he decided to the satisfaction of all parties, thus
affording proof of his good sense, probity, wisdom, and the regard in
which he was held by the people.

His loyalty to the Crown was promptly shown, whenever oppor-
tunity offered. During the mutiny of 1857, Dacca was left almost
unprotected and the detachment of the 73rd Native Infantry, station-
ed there, was known to be disaffected. In spite of threats of plunder
and personal violence, and in the face of advice to leave Dacca, the
Nawab remained firm. '' My presence/' he said, ** in the station at
this critical moment inspires my countrymen with hope and confi-
dence in the British Government and prevents the evil-doers from
carrying out their wicked designs. My absence, on the other hand,
will cause a general panic and precipitate matters which we are so
anxious to prevent'' He fortified his house, and armed his family
and retainers ; at the same time, to show his confidence in the British
power, he subscribed largely to the Government loan then opened,
gave much valuable information to the authorities of the actual state
of the country, and placed all his elephants, boats, horses, carriages,
&c., at their disposal. He similarly made his steamers, elephants,
&c., available for the Lushai and Naga expeditions, for famine relief,
cyclones, and other Government work.

His acts of public and private charity were very numerous and
magnificent. In aid of schools and Colleges, hospitals and dispen-
saries, clubs and societies, mosques and tombs, the sick and the
poor, he spent very large sums. His charity was not confined to his
country or nationality. Thus he would subscribe as largely to the
relief of the sick and wounded in European wars as to some public
movements in India. His donations fill a large catalogue and amount
to lakhs of rupees.

His most conspicuous public act was the bestowal of a supply of
pure water to Dacca, which, with subsequent extensions and an
endowment, cost him and his son, Nawab Sir Khwaja Ahsanulla, 2^
lakhs. The first instalment was intended to be a thanksgiving for the
recovery of H. R. H. the (then) Prince of Wales from his dangerous
illness in December 1871. The foundation-stone of the water- works

1030 MAHARAJA HAHTAB CHAND BAI.

was laid by Lord Northbrook on 6th August 1874 and the opening
ceremony was performed by the CommisBioner of the Division in
1878.

The services of Nawab Sir Khwaja Abdul Ghani Mia were duly
appreciated by Government. He was appointed an Honorary Magis-
trate,— a Member of the Bengal Legislative Council in 1866 — ^an
Additional Member of the Governor-General's Legislative Council
in 1867, was created a C.S.L in 1871 and a K.C.S.L in 1886 ; and was
vested with the personal title of Nawab in 1875, which was made
hereditary on ist January 1877. He was specially introduced by
Lord Northbrook to the Prince of Wales in Calcutta and was pre-
sented with a medal by His Royal Highness. He died in 1896,
full of years and highly esteemed by all classes, as the wealthiest
and most influential native gentleman in Eastern Bengal. But he
had retired from the practical management of his estates in 1868
and was succeeded therein by his eldest son the Nawab Sir Khwaja
Ahsanulla (bom in 1846), who has worthily upheld all the best tradi-
tions of his house, as a zamindar, a dispenser of charity and
hospitality, and a staunch supporter of the authorities. The present
Nawab has been for many years a Municipal Commissioner and an
Honorary Magistrate of Dacca, he was made a Khan Bahadur
in 1871, a Nawab in 1875, C.LE. in 1891, a Nawab Bahadur in 1893,
K.C.LE. in 1897, and a Member of the Governor-General's Legis-
lative Council in 1890 and again in 1899. Loyalty to the British
Government and their officers has long been the traditional motto of
this Muhammadan family.

MAHARAJA ADHIRAJ BAHADUR MAHTAB CHAND RAI

OF BURDWAN.
The Kapur Kshatriya family of Kotli in Lahore came to Burd*
wan about the middle of the 17th century. Mahtab Chand was
born on the 17th November 1820 and adopted as the son of
Maharaja Tez Chand Rai, who in 1771 had received a Sanad
from the Emperor Shah Alam, conferring on him the title of
Maharaja Adhiraj, and making him commander of 5000 infantry and
3000 cavalry, with authority for guns, bands, nakara, &c. Maharaja
Mahtab Chand succeeded to the Raj on i6th August 1832 and
received on the 30th August 1833 a farman from the Governor*^

HAHARAJA MAHTAB GHAND RAI. 1031

General, Lord William Bentinck, confirming him in the title of
Maharaja Adhiraj Bahadur. In 1868 he obtained for himself and
his descendants the license of Her Majesty the Queen to bear the
present family arms and supporters ; and, at the Imperial Assem-
blage at Delhi on the ist January 1877, he was granted, as a personal
distinction, the right to receive a salute of 1 3 guns. He managed
his great estates with so much success that they became some of the
most prosperous in Bengal. At the time of the Sonthal Rebellion
in 1855, and again in the mutiny, the Maharaja did everything
in his power to help the Government by placing elephants and
bullock carts at the disposal of the authorities, and by keeping
open the communications throughout his property. As further
evidence of his loyalty to the Queen it may be mentioned that
he presented a marble statue of Her Majesty to the Indian
Museum at Calcutta.

The Maharaja Mahtab Chand was not in touch with the British
Indian Association, and at times joined antipopular movements,
so that he came to be nicknamed in one of the national songs
'' the Burdwan bear without tail.'' It was understood that, in his
position as the leading landed proprietor of Bengal, he felt the neces-
sity of exercising great caution in respect of taking a part in political
movements. His ambition to obtain the title of ** His Highness *'
was not realised, but the personal salute of 13 guns granted to him
for life soothed him in a large measure for his disappointment. Though
not always strict in all the observances of Hinduism, he maintained in
their entirety the religious endowments of his ancestors at Kalna and
temples at other places. He established at Burdwan an Anglo-
Vemaculu School, open to boys of all classes. This institution,
which has since been raised to the status of a College, gives free
education in English, Bengali, Sanskrit, and Persian, and has a
separate department for girls. He also set up hospitals and dispen-
saries for the sick poor of Burdwan and Kalna. Besides his cus-
tomary charities, lavishly bestowed upon his tenantry and dependants,
he gave munificent contributions for the relief of sufferers from the
Burdwan epidemic fever and the famines that desolated Orissa and
affected parts of Bihar : to the Madras famine fund he gave 1,50,000
rupees. He possessed a Zoological Institution at Burdwan for many
years and was one of the earliest and most liberal supporters of the

1032 PUNDIT ISVAR CHANDRA VIDYASAGAR.

Zoological Garden at Alipore. Moreover, an educated man himself,
he encouraged literature and scholarship at considerable cost, by
publishing the original Sanskrit Mahabharat, Ramayan, and other
religious books, with their translations in Bengali, made by renowned
Pandits engaged for the purpose for over 30 years.

The Governor-General of India, in recognition of his high posi-
tion and public services, selected him in 1864 to be an Additional
Member of his Legislative Council. He was one of the first Natives
of India who sat in that Council, and his speeches were characterised
by strong common sense, though he made no attempt at oratorical
display. For the proper management of his vast estates, he had a
Council of responsible advisers, each in charge of a department, in
imitation of the Viceroy's Executive Council. In this Council, of
which he was the head, some of the ablest men of Bengal rendered
him good service. He died on the 26th October 1879 ^^ Bhagalpur.
Retiring and unobtrusive in disposition, he did not seek popularity,
but was free and genial in intercourse with those whom he knew
intimately : and he possessed much discernment of character. For
many years he was held in high respect by both Europeans and his
countrymen as one of the foremost and wealthiest members of the
community. The Burdwan Raj pays over 40 lakhs annually of
Government revenue, much of the property having been more highly
assessed, at the time of the Permanent Settlement in 1793, owing to
the development of cultivation, than other less advanced parts of
Bengal.

PUNDIT ISVAR CHANDRA VIDYASAGAR, c. i. e.
The name of Pandit Isvar Chandra Vidyasagar, c. i. e. will never
be forgotten in Bengal. Few men have left such a mark as he did
on his generation. Born in 1820 of a poor Brahmin family at
Birsingha, on the confines of the Hooghly and Midnapore districts,
and educated in the Calcutta Sanskrit College from 1829 to 1841,
at the age of 21 he entered Government service, being appoint-
ed Head Pandit of the College of Fort William. In 1846 he
published a Bengali version of the Betal Panchahinsati (/. e.
the 25 stories related by the demon Betal to Raja Vikramaditya),
a work which is still regarded as a model of excellence of style
— the book, indeed, which first gave an impetus towards an improved

PUKPIT ISVAR CHANDRA VIDTASAGAR. 1083

Style of prose writing in Bengali literature. In the same year he
was appointed Assistant Secretary of the Sanskrit College, but he
resigned his post in a year, as some of his proposals were not
accepted by the Council of Education. In 1849 he was appointed
Head Assistant to the Fort William College, and in December 1850
he was made a Professor in the Sanskrit College. In January 1851
he was appointed Principal of that College and introduced various
reforms in the educational course and management of that Institution.
In 1855 he was appointed special Inspector of Schools for the Dis-
tricts of Hooghly, Burdwan, Midnapore and Nadia in addition to his
duties as Principal, on a consolidated salary of Rs. 500/- a month,
and helped in establishing a number of model vernacular schools at
a cost of Rs. 50/- a month each, and also a number of girls' schools.
It was in connexion with these latter that he came into conflict with
the Director of Public Instruction and threw up his appointments
under Government in 1858. But for some years after he continued
to be an unofficial adviser of Government, being consulted by suc-
cessive Lieutenant-Governors.

In the Act of Incorporation of the Calcutta University, established
in 1857, he was named one of its first Fellows. He received a cer-
tificate of Honor at the Imperial Assemblage in January 1877, and in
January 1880 was made a C.I.E. He was a member of the Board of
Examiners in Calcutta. While driving the late Miss Mary Carpenter
from the Bali Station to the Uttarpara Girls' school he had in 1866 a
bad fall from his carriage, from the effects of which he suffered, up
to the day of his death on 29th. July 1891.

The life of this eminent Bengali was remarkable on several
grounds, and may be studied from different aspects; (i) as an edu-
cational officer, (2) as author and editor of various publications in
Bengali, Sanskrit and English, chiefly of an educational character,
(3) as a social reformer, and lastly (4) as a philanthropist.

He combined a fearless independence of character with great
gentleness and the simplicity of a child in his dealings with people
of all classes. A stern disciplinarian, he could yet forgive the short-
comings of others less gifted and less exact than himself. He was a
model of patience and perseverance in literary work.

As a Government officer he toiled with remarkable zeal and intel-
ligence, and the Sanskrit College was, under his guidance, made an

1034 PUNDIT ISYAR CHANDRA V1DYA8AGAR.

Anglo-Sanskrit institution, English studies being introduced with a
view to modernize the ideas of the students and render them fit for
the public service. His Sanskrit Grammar in Bengali and his easv
Sanskrit Readers, as well as the various Bengali works of a higher type
that he published, were of immense educational value, and after the
lapse of 40 years some of them still hold their position in literature
as the best works of the kind. He supported his advocacy of female
education by quotations from the ancient Sastras, while he co-operated
bravely with Mr. Drinkwater Bethune in the establishment of a girls'
school and secured pupils for it from influential families.

Bengali school literature was deeply indebted to his scholarship,
as he published a series of books for the young, from the first primer
. to the highest standard. His discourse on Sanskrit Literature was the
earliest critical work in Bengali. He also invited competent scholars
to complete the series of text books on such subjects as Physics, Arith-
metic, Algebra, Geography and History. He also edited English
readers, both prose and poetry. His labours in the field of Sanskrit
literature were of a colossal character. In Bengali his '* History of
Bengal," Bodhodaya^ Sakuniala, Vidhava- Vtvaha (widow remarriage)
. may be mentioned as specimens of his work which are still remem-
bered.

Vidyasagar was a Hindu of the orthodox type, but he felt the
position of inferiority assigned to the women of India, and on their
behalf he started the widow-marriage movement and the antipolygamy
movement. When the Indian Legislature passed an Act in 1856 legal*
ising'the marriage of Hindu widows, the first widow-marriage under
the Act took place in Calcutta in December 1856. It was followed
by others, both in the Presidency town and in the districts of Hooghly
and Midnapore. The other movement was destined to end in failure.
The several pamphlets issued in justification of his views show
unrivalled powers of reasoning as well as deep knowledge of the
Hindu scriptures and legal books. To help the movement he ran
heavily into debt, which he lived long enough to clear. The estab-
lishment of the Metropolitan Institution in Calcutta in 1864, and its
successful working under his management as a first grade College,
are well known to the educational history of Bengal : it was the
prototype and pattern of many similar Institutions. The Metropolitan
Institution had an attached school of 800 boys, besides 4 or 5 branches

MAHAR8HT DKBINDRA NATH TAOORK. 1085

in different quarters of the town of Calcutta. The Birsingba Higher
English school in his native village was supported by him as a free
school with a free boarding house and is still in existence, though it
is no longer a free school. Vidyasagar's monthly benefactions
amounted to about Rs. i»5oo and his income from his publications
for several years ranged from Rs. 3,000 to Rs. 4,500 a month. The
magnificent building of the Metropolitan Institution was erected by
him at a cost of a lakh and a half of rupees ; the expenditure was
primarily incurred at his own cost, though it was afteiA^-ards recouped
in a large measure from the surplus income of the College and its
branch schools. He always fed a large number of poor people,
especially in times of distress. His death was largely mourned
throughout Bengal and various memorials of a more or less imposing
character have been inaugurated in many important educational
centres, including the metropolis. His fame has established itself
throughout the country. Though persecuted for his reform move-
ments he never lost heart but maintained his faith in the ultimate
triumph of Truth and Justice.

MAHARSHI DEBENDRA NATH TAGORE.

Maharshi Debendra Nath Tagore has long outlived the gener-
ation in which his influence and example were most conspicu-
ous. He was born in 1818 and educated at the Hindu College.
In his early life, as the eldest son of Dwarka Nath Tagore,
he had unbounded wealth at his disposal and no special re-
gard for spiritual interests : it was not till the close of his early
manhood that he became suddenly conscious of the value of
religion. Thencefordi, the world lost its attractions and God
became his only comfort.

In 1839, he founded the Tativa Bodhini Sabha, or Society for
the knowledge of Truth. Its journal (the Taitva Bodhini Pairika)
still exists, through it is no longer the chief medium for the diffu-
sion of scientific as well as antiquarian and religious knowledge.
In its days it worked a great revolution in the advanced thought of
Bengal ; some of the articles were collected in book form and are
still read by students.

The Brahmo Soma], which had been founded by Raja Ram
Mohun Rai, Dwarka Nath Tagore and others, had in the absence of

1036 MAHARSHI DEBENDRA NATH TAGORE.

proper guidance lapsed into a purely Hinduised Society. Debendra
Nath formally joined it in 1842, and in 1843 introduced the Brahmic
Covenant^ an instrument of catholic principles as applied to theism.
The number of members gradually rose from 83 in 1843 to 573
in 1847. ^^ so large a body differences of opinion were unavoid-
able. In 1845 ^our young Brahmins were sent to Benares, each of
whom was to copy out and study one of the Vtdas. After two
years they returned to Calcutta, when, after much discussion, the
majority of the body decided that neither the Vedas nor the Upa-
nishads were to be accepted as infallible guides. This departure
from orthodoxy marked a crisis in the career of the Brahmo Somaj.
In 1850 appeared the now wellknown treatise called Brahmo
Dharma, a book which mainly accepted the highest ideals reached
by the Hindu Rishis, with inspirations from western philosophy and
religion.

As the teacher and spiritual father of Keshab Chandra Sen,
Babu Debendra Nath's influence has had enduring effects. As an
orator, he is said to have been quite unrivalled. His stirring
appeals to the human heart served to reclaim many a wanderer
from the path of duty. His impassioned eloquence conduced
greatly to the success of his high mission as a reviver of religion.
When calamity befell the family, after the failure of the Union
Bank, Debendra Nath showed a conspicuous example of pecuniary
integrity by taking on his own shoulders debts which he could have
repudiated as not personal. The consequence was that he was
obliged to part with much valuable property, including Lord
Auckland's favourite villa at Belgachia, as well as the splendid
equipages, plate and jewellery to which he had been accustomed all
his life. Such a sacrifice, unparalleled in the annals of Calcutta
society, at once raised Debendra Nath's reputation for honesty and
upright conduct.

By a gradual process of good management and economy he
managed to redeem the principal landed estates of the family,
which now yield more than two lakhs of rupees per annum. The
Somaj calls him Maharsht (grand rishi) Debendra Nath, and no one
has ever better deserved the title from his countrymen. He has
returned to the family house at Jorasanko, and, though his health
at his advanced age is impaired, he maintains his interest in the

HON'bLE justice DWARKA NATH MITRA. 1037

subjects which have occupied his life, while he affords an example
and encouragement to younger men. Some of his sons have made
names and reputations for themselves : Dvijendra Nath as a
philosopher and thinker : Satyendra Nath as the first Indian member
of the Covenanted Civil Service : Robindra Nath as one of the
most popular Bengali poets and essayists.

THE HON'BLE JUSTICE DWARKA NATH MITRA.

The Hon'ble Justice Dwarka Nath Mitra owed his success
in life to no extraneous advantages of wealth or family connections :
by ability and perseverance he made his way through all obstacles.
Born in 1833 in an obscure village in the Hooghly district, he received
the highest kind of education offered by Government in the Hooghly
College, and enjoyed Government junior and senior scholarships for
eight years. He made good use of his time : not only standing always
at the head of his College contemporaries in Bengal, but also in
. acquiring those vast stores of knowledge which in a wider arena aston-
ished all who came in contact with him. Equally well versed as he was
in mathematics and English literature, he left a lasting reputation
behind him as a student. The Englishman newspaper of 3rd.
March 1874, in its obituary notice of the deceased Judge, wrote of
him. : '' Amongst his more brilliant qualities was his surprising
command of the English language ; the readiness, precision and
force with which he used that language are not common even among
those who speak it as their mother tongue, and were the theme of
constant admiration." For a time his religious convictions were by
no means strong; but, having come across Comte's system of
positive philosophy, he rapidly taught himself French with a view to
read the works of the Master in the original, and thus acquired a
breadth of culture which influenced his whole life. Shortly before
his death he had reconciled the doctrines of Comte with the Hindu
social and religious systems, and his death was widely mourned
by the Positivists of England. As a proof of his taste for mathe-
matics and knowledge of French may be named his translation of
Comte's Analytical Geometry into English, a work which received
due praise from competent critics.

After the usual course in the Hooghly and Presidency Colleges,
he passed in 1856 the necessary legal examination and joined the bar
66

1038 hon'ble justice dwarka nath mitra.

of the Sadar Dewani Adalat, His reputation was so good, and his
promise so brilliant, that in a short time he attracted the notice of
two leaders of the bar, Babus Rama Prasad Rai and Sambhu Nath
Pandit. The former of these gentlemen was the first Native Judge,
designate, of the High Court, but did not live to take his seat on the
Bench. Sambhu Nath was a Judge of the High Court from 1863
to 1868. It was fortunate that, as junior to Rama Prasad, Dwarka
Nath pleaded his first important case before the Judges in the
absence of his leader and at once acquired a position among native
lawyers. He was a friend to the poor and on many occasions took
up their cases without any fee or reward.

In the great Rent case under Act X of 1859, tried in 1865 by
the Full Bench of 15 Judges of the High Court, he was engaged
as pleader on behalf of the tenant, and addressed the Court for
seven days, which gave him the opportunity of showing his know-
ledge of law, history and political economy. His speech was hailed
by his countrymen as well as many competent Europeans as a
grand display of forensic eloquence. His fame at once reached
its zenith.

In 1867 Dwarka Nath, then in his 34th year, was raised to a
Judgeship of the High Court. His merits were highly appreciated
by Sir Barnes Peacock, Chief Justice, as well as the other Judges
and both branches of the Bar. He was deeply read in both Hindu
and Muhammadan law, and was several times complimented by
the Chief Justice for his accuracy ; in one instance he anticipated
the judgment of the Privy Council in regard to certain important
points of law. {Giridhari Lai Rai vs. tht Government of Bengal^
Sir Barnes Peacock is reported to have said, " the judgment of
Mr. Justice Dwarka Nath Mitra, which he had just read, and in
which he has displayed great learning, abih'ty and research, was
written before the decision of the Priv}' Council Ac. was published
here." The Hindu widow's unchastity case, in which it was con-
tended that property once vested in a widow can never be divested
on the ground of subsequent immorality, had a vtxy strong oppo-
nent in Mr. Justice Dwarka Nath, with whom Mr. Justice Phear
concurred. But the opinion of the majority prevailed and the
widows were left undisturbed in their course of life.

A$ a Comtist, D^^'arka Nath had strong family affections. His

• tt.

BABU KESHAB CHANDRA 8IBN. 1089

large earnings were always at his mother's disposal, hut were even-
tually squandered by an unworthy relative. He died in his 41st.
year on the 25th, February 1874. The Chief Justice and Judges
of the High Court expressed to the Government of India their
unanimous opinion that by the death of their colleague the country
had been deprived of a most learned, upright, able and independent
Judge, and the Governor-General in Council officially notified his
great regret at the occurrence.

BABU KKSHAB CHANDRA SEN.

The name and life-work of Babu Keshab Chandra Sen, the
religious reformer, are known beyond the limits of India. He has
undoubtedly left his mark on his time. He was born in 1838 and
joined the Hindu College in 1845. ^ diligent learner and winner
of school prizes, he amused himself, while still young, with jugglery
and the organization of jatras, the popular semi -theatrical perform-
ances of Bengal. Though fond of play and amusements, he was
reserved in his conduct towards his fellows. In 1852 he joined the
newly opened Metropolitan College, and, when that College failed,
returned two years later to his old alma mater. In 1856, while
engaged in the senior scholarship examination, he was detected
communicating with another candidate, which practically terminated
his ambition as a student, though he was permitted to continue his
attendance at the College.

This was the turning point of his life. He betook himself to
religion and prayers and attended the teaching of certain Christian
missionaries, notably the late Revd. James Long. At the same
time jatras and theatres still largely occupied his thoughts. He
would sit up the whole night with his companions to witness these
performances.

In 1857, Keshab became a member of the Adi Brahma Samaj
under Babu Debendra Nath Tagore, and continued to be a prominent
member of that society till 1865 when he retired from it, owing to
differences of opinion on points of ceremony. Debendra Nath was a
conservative and adhered to the Hindu form of marriage and disliked
widow-marriage and intermarriage among persons of different castes,
whereas Keshab and his party were for breaking away from the past,
lf need be, in these and other matters. During his close connection

1040 BABU KE8HAB CHVKDRA SEN.

with the Adi Samaj, Keshab acquired a|knowledge of the philosophy
ot Sir Wm. Hamilton, Victor Cousin, |J.J D. Morell, Mc. Cosh,
Theodore Parker, Miss Cobb, R. W. Emerson and F. W. Newman.
Debendra Nath gave him the title of Brahmanand (rejoicer in God)
and, although he was of the Baidya caste, made him Acharja or
priest, an office hitherto always in the Adi Samaj filled by a Brahmin.

He contrived somehow to gain possession of the Indian Mirror
press and newspaper which had been established by the venerable
Debendra Nath Tagore. He also conducted a Bengali religious
paper. In 1866, Keshab started the Brahmo Samaj of India and
became its Secretary. Seven or eight missionaries were appointed
to preach the novel doctrines compiled from the Bible, the Koran,
the Zend Avesta and the Hindu Sastras. The Sanskrit motto of the
new Society may thus be expressed : — " The wide universe is the
Temple of God ; Wisdom is the pure land of pilgrimage ; Tipth is
the everlasting Scripture ; Faith is the root of all Religion ; Love is
the true spiritual Culture ; the destruction of selfishness is the true
asceticism."

In 1 868, the foundation stone of the Brahma Mandir or church
was laid. Keshab's family having been of the Vaishnab sect, his
predilections were always of that type, including his abstinence from
animal food and his love of Hari Sankirian. The Brahma Aiandir
was formally opened in August 1 869 and in February 1 870 be went
to England to study '' Christian life as displayed and illustrated in
England.'' He had an audience of the Queen, who presented him
with copies of her two books, with the following autograph : — " To
Keshab Chander Sen from Victoria R., September 1870.''

On his return home, he started a pice newspaper, which was a
great success. The Indian Mirror was made a daily paper, and the
Sunday Mirror was begun. A training School for Indian women,
and an Industrial School for young men, were established. Atten-
tion was also paid to the Temperance movement. These projects
were worked with great energy for a time, but, as Keshab became
more and more of a mystic, they waned in efficiency ; from time to
time there was a kind of spasmodic revival.

It was chiefiy through the exertions of Keshab Chandra Sen that
the Civil Marriage Act became- law in 1871. It legalised inter-
marriage, prohibited bigamy and permitted remarriage of widows.

BABtr KESHAB CHANDRA SEN. 1041

the parties having made a declaration before the Registrar that they
'were not Hindus, Muhammadans, Christians, Buddhists, Jains, or
Parsis. The early Vaishnab influence of the family gradually
absorbed his being, and in 1876 he initiated the fourfold classifica-
tion of devotees into the followers of Yoga^ Bhakiiy ynan, and
Se^a ; Voga being union with God by intense meditation ; Bkakti
being union by intense love ; J nan, union by deep knowledge ; and
Seba, union by services rendered to fellowmen. Asceticism was his
leading principle at this point of his career.

Keshab had separated from the Adi Samaj because it had a
visible head or pope ; but he assumed a similar status himself in
managing the affairs of his own church. The marriage of his
daughter with the Maharaja of Kuch Bihar according to Hindu
rites completed the rupture with a section of his followers, who
seceded on May 15th 1878, and formed the Sadkaran or common
Brahmo Samaj.

It has been said of him that at this time " he was still in the
zenith of his usefulness, with hardly any symptom of decline, though
some of his views were regarded as extravagant and rhapsodical.
He was much esteemed by all classes ; his English oratory was
listened to with rapt attention by Bengalis and thought excellent even
by English audiences. He and his immediate followers maintained
a gentle and conciliatory manner, carefully avoiding the display of
anything like aggressiveness towards their Hindu fellowcountrymen/'

In 188 1, Keshab proclaimed his New Dispensation, combining
Hinduism and Christianity, of Yoga and Bhaktu Referring to this
time. Professor Max Muller said, '* he sometimes seems to me on
the verge of the very madness of faith." Pouring ghi over a blazing
fire, Keshab thus addressed Agni; *^ Thou art not God ; we do not
adore thee. But in thee dwells the Lord, the eternal inextinguish-
able flame O thou brilliant Agni, in thee we behold our res-
plendent Lord."

Keshab's addresses, whether delivered in Bengali or English,
were remarkably impressive ; and the appreciation of Christianity
which they occasionally displayed attracted the attentions of earnest
Christians. His neo-Hinduism was never fully developed ; but,
had he lived a few years longer, it is more than probable that he
would have fearlessly discarded his earlier conceptions and risen to

1042 . RAJA DIGAMBAR MITRA.

the rank of a powerful Hindu reformer like Chaitanya. But, as it
aas happened, Chaitanya s followers count by naillions ; those of
Keshab Chandra by scarcely as many hundreds. His impressive-
ness and the affection in which he was held magnetically swayed
his audience ; but the effect of his oratory was temporary. The
secessionists from his church were among his earnest worshippers ;
but a spirit of rationalism gradually undermined their faith in the
Master, whom they began to judge according to human standards,
and in whom they necessarily discovered some human imperfectioDs.
Once, disillusionised, they broke away from his control.

After a lingering illness, he passed away on 8th. January 1884.
His remains were cremated and the ashes deposited in an um in
front of the Sanctuary which he had built in the courtyard of his own
residence.

RAJA DIGAMBAR MITRA, c. s. 1.

Raja Digambar Mitra, c. s. i. was born at Konnagar in the

Hooghly district in 181 7, educated at the Hare School and

Hindu ColTege, and began life as a teacher in the Murshi-

dabad Nizamat school. He was subsequently Head clerk to

the Collector of Rajshahi, Khas makal tahsildar in Murshi-

dabad, a clerk in the Native Infaiitry lines at Berhampore, and

in 1838 became manager to the Kasimbazar Raj under Kumar

Krishna Naih Rai, husband of the late Maharani Svarnamayi, c. 1..

acquiring in this capacity a Tast store of knowledge of zammdaxi

affairs, which was of considerable use to him in later years as a

landlord and prominent member of the British Indian Association.

The Kumar was sj pleased with his work as to make him a present

of a lakh of rupees as a reward, and, with this sum in hand.

Digambar Mitra embarked in indigo and silk manufacture ; he was

doing well when the failure of the Union B.ink in 18.47 completely

crushed him. In 1851, however, he sold off his garden house at

Bagmari and purchased the Sunderbans Lot Dabipur in the

z^-Parganas and became a zamindar^ and Assistant Secretary to the

newly established British Indian Associadon, with Raja Radha Kanta

Deb as its first President. From 1851 Digambar Mitra continued

to take an active and intelligent interest in polidcal questions as well

as legislative and administrative m;^asures of paramount importaace \

BAJA DIQAMBAR MlTRA. 104B

and from 1861 to the year of his death was in the front rank of
public men. In January 1864, he was nominated by the British
Indian Association to a seat on the Epidemic Fever Commission
appointed by Government and later in the same year joined with
Mr. H. Fraser to conduct the investigation of claims to waste lands
in the z^-Parganas. The Epidemic Fever Commission visited many
of the afflicted localities and submitted their report on 31st. March
1864 in which they recommended, among other things, the improve-
ment of the drainage of the country obstructed by the silting up of
rivers and khals and the general disturbance of levels, owing to
extended cultivation and otiier causes. Babu Digambar Mitra added
two separate notes of his own to the report, in which he worked out
in greater detail his favourite theory of obstructed drainage as the
chief cause of fever. Appointed at the end of 1864 to the Bengal
Legislative Council, he distinguished himself by his abilities and
intimate knowledge of the requirements of the country. After a
short visit to his newly-acquired Orissa zamindari in 1866, be
pressed upon Government the need of organising measures of Relief
in the Famine in that year. As a member of the Executive relief
Committee he rendered valuable service. In 1869, he became
Vice-President of the British Indian Association and, in 1870, a
Member for the second time of the Bengal Legislative Council,
where he pressed his theory that the obstruction to drainage caused
by railways and the roads connected with them was chiefly respon-
sible for the causation of malarial fever 'in different parts of central
Bengal. He took an active part in the discussions on the Road
Cess Bill which he looked upon as an infringement of the Permanent
Settlement of the land revenue in Bengal. In ^k)vembe^ 1872
he was reappointed to the Bengal Council for the third time and
gave the benefit of his wide knowledge and experience in the
discussions on the Embankment and Abkari Bills and other matters
of importance. About the same time he was temporarily made
acting President of the B. I. Association. In 1874 he laboured to
supply Government with accurate information as to the magnitude
of the famine, and his own health suffered. In December 1874, he
was appointed Sheriff of Calcutta. On 4th. January 1876, he was
made a Companion of the Order of the Star of India. After
considerable opposition^ he succeeded Maharaja Rama Nath Tagore

1044 BAB0 BHTTDElB MUKERJI.

in the office of President of the B. I. Association. He had been
made a Raja on the ist. January 1877 on the occasion of the
assumption of the Imperial title by the Queen. In the begfnniDg
ot 1S79, he became seriously ill and passed away on the 30th. April
1879.

He was thus connected with the B. I. Association from its
foundation and for 27 years rendered valuable services to it, succes-
sively as Honorary Assistant Secretary, Member of Committee,
Vice-President and President.

He was truly the architect of his own fortune and gave
proofs of his capacity to manage his self-acquired zamindaris and
to discuss public questions ; his memory will continue to be
cherished by those who knew him. Self-reliant to a degree, and
expressing his views fearlessly, he was prudent and deferential in
his relations with the Local Government and its high officers. As a
speaker and writer there were few among his countrymen to surpass
him. Among other private charities he fed 80 poor students every
day. He suffered a great bereavement in the death of his only son
by a fall from a horse, a calamity which unsettled his wife's reason.

BABU BHUDEB MUKERJI, c.i.e.
Babu Bhudeb Mukerji, c. i. e. was eminent in his generation
by his literary ability, his position in the Education Department,
arid his character. He was born on 25th. March 1825 at
Naptipara, Thana Khanakul, of the Hooghly District, in a family
which for generations had been distinguished for its Sanskrit
culture and strict regard for pure Brahminical life. His father.
Pandit Bisva Nath Tarkabhusan, was not only a scholar but a
man of great strength of mind. At the age of eight he entered
the Sanskrit College and 3 years later joined the Hindu College,
where he soon distinguished himself by carrying off all the prizes
and scholarships open to him. The acquisition of western lore had
no disturbing effect on his Hindu faith, as his father was at hand to
counteract its influence and to teach him to think for himself. After
leaving College in February 1846 he spent about three years in
opening schools with the aid of some personal friends, without any
prospect of pecuniary profit. On ist. January 1849, ^^ entered
Government service as second master of the Calcutta Madrasa^ and

BABU BHUDBB tfUKERJI. 1045

later in the same year became Head Master of the Howrah Zilla
School. Mr. Hodgson Pratt, c. s. who was Magistrate of Howrah
about 1850, said on hearing of his death, '' I see as clearly as if it
were yesterday that tall and dignified figure, in his pure white robe
and those handsome features of fair complexion. He spoke with
that thoughtfulness and gravity which mark the Hindu of high
caste.'*

In 1856, Babu Bhudeb was appointed Head Master of the Hooghly
Normal school, and in July 1862 Assistant Inspector of schools, to
carry out Sir J. P. Grant's scheme of primary education in some of
the metropolitan districts. In January 1863, ^^ ^^^ placed in inde-
pendent charge as additional Inspector. The scheme succeeded and
in 1867 he was promoted to the higher educational service in recogni-
tion of the value of his work. In 1 869 he was deputed by Govern-
ment ta report on the working of the Halkabandi system of primary
education in the N. W. Provinces and the Panjab, and his Report
was accepted by the Government of Bengal, the Government of
India and the Secretary of State. He became a Circle Inspector
and rose to the highest grade on Rs. 1 500 a month. He received
the distinction of the C. I. E. in 1877, while holding educational
charge of the Patna, Bhagalpur, Burdwan and Orissa Divisions. The
substitution of the Nagri for the Persian character in the Courts
of Bihar was undertaken by Government at his instance, and national
songs attest the popularity of the measure to this day. In 1882 he
was appointed to the Bengal Legislative Council, and as a member
of the Education Commission of that year he was charged with the
preparation of the provincial Report for Bengal, which left nothing
to be desired.

On retiring from service in July 1883, he studied the Vedanta
philosophy for some years at Benares. Returning to Chinsura, which
had been his home since 1863, he established there, on 17th. April
1889, a Chatuspathi for Sanskrit learning and with the object of
reviving the study of Vedanta philosophy. On 6th. January 1864, he
made an endowment (called the Bisva Nath Trust, after his father) of
Rs. 1,60,000 for the promotion of Sanskrit learning, which included
two Charitable Dispensaries — one Kabiraji and one Homoeopathic.
He died on the i6th. May 1894, in his 70th. year. His influence on
his countrymen was largely exercised by his writings. The variety of

1046 BABU BHUBKB MUKBRJI.

his Hterary works shows the manysidedness of his mind. Among
them the following may be mentioned : —

(i) Shiksha Bishayak Praslab, or Art of Teaching, the first work
of the kind in Bengali.

(2) Aitihasik Upanyas, the first Bengali novel, in which Siva)i
figures as the hero of the story.

(3) Prakrita Bigyan (Physics, Statics and Dynamics).

(4) Ancient History in Bengali.

(5) Histories of Greece and Rome in Bengali.

(6) The first three Books of Euclid in Bengali.

(7) Puspanjaliy or floral offerings dedicated to his father, in old
ornate style.

(8) Paribarik Prabandha, or essays on domestic life.

(9) Samajik Prabandha, or essays on social life.

(10) Achar PrabandhUy or rules of life based on the. Hindu
Sastras.

(11) Miscellaneous and critical essays.

(12) History of India — a dream of the 3rd battle of Panipat.

(13) History of England — a text-book.

After he had for some time edited an educational magazine
named Shiksha Darpan, or Mirror of Teaching, the Government of
Bengal in 1868 transferred to him the proprietorship of the Educa-
tion GazeiUy with a grant-in-aid of Rs. 300 a month. In his hands
the Gazette became popular and was after his death made over to
the Bisva Nath Trust.

Sir Alfred Croft, as Vice-Chancel lor of the Calcutta University,
said of him — '^ A man of wide culture, familiar with all the main
developments of European thought and holding liberal views on
many social subjects, he was a Hindu of Hindus in all that concern-
ed the regulation of his own life and the doctrines of his religion.
In the efficacy of the doctrines of the Vedantic philosophy he had a
profound belief — ^both as a system of philosophy and as a rule of
faith. In it he claimed to find full satisfaction for all his spiritual
needs."

His Samajik Prabandha was noticed in the address delivered
in 1893 by Sir Charles Elliott as President of the Asiatic Society.
He said that '' no single volume in India contains so much wisdom,
and none shows such extensive reading. It is the result of the life*

BABU HARI8 CHANDRA MUKBRJI* 1047

long study of a Brahmin of the old class in the formation of whose
mind eastern and western philosophy has had an equal share."

A combination of firmness with gentleness was the main feature
of his character and was largely displayed in his relations with
Government officers in educational matters. His conversation was
grave but cheerful, instructive and suggestive, never frivolous : his
personal influence was -magnetic and elevating. Sir Roper Leth-
bridge wrote of him : — " Vidyasagar was the very ideal of a high-
minded, benevolent and intellectual Brahmin of the old school —
Kristo Das was the model of the kindly, clever, versatile man of the
world — ^but Babu Bhudeb in his later years seemed to me to combine
some of the best qualities of both these great men."

BABU HARIS CHANDRA MUKERJI
Haris Chandra Mukerji in his short life (1824-1861) made a name
for himself as a journalist which will endure. He was born at
Bhowantpur near Calcutta, the son of a poor Kulin Brahmin by the
youngest of his 7 wives. He was a free student at the Union School
for some years and at an early age was compelled by poverty to take
employment in Messrs. Tulloh & Co.'s auction room on a salary of
Rs 10. By competitive examination he gained admission as a clerk
on Rs 25 a month to the office of the Military Auditor-General in
Calcutta, under Colonel Charapneys, where he gradually rose to
higher pay and was drawing a salary of Rs. 400 a month before his
death.

His clerical duties left him ample leisure to pursue the historical,
legal, philosophical and political studies in which he delighted, and
then he took to literature. It Is said that he could recite from
memory many passages from Gibbon's Decline and Fall of the
Roman Empire and from Kant's Philosophical works.

His first literary contributions were to the Hindu Intelligencer ;
when the Bengal Recorder was brought out in 1849, ^^ contributed
several articles to it. It was in 1855 that ih& Hindu Patriot yrzs
issued under his sole editorial charge. The number of its subscribers
in those days never exceeded 15c : it was in fact a losing concern
during the editorship of Haris Chandra, and cost him more than
Rs. 100 a month out of his official income. The proprietorship was
eventually vested in his elder brother, Haran Chandra. His journal

J A - -

BJ^Btr iTAnl^

^jfPB^ iniKBRJI.

1^4$ ^ ability and learning that it attracted the

^ucfeif ^'^^ ^^ gijjbers of the Civil Service and the Govem-

"^tfof ^^"^ ^^^t^^^oined in 1852 the British Indian Association,

efit ^^ ^ blished the year before, and at once took a hearty

irA'C^ ^^ - ^j-«?anisation and advancement. It is said that, when

interest ^^ ^^^/j,iig house in Bhowanipur was attached by indigo

his ^'" ^^^^ j|je decree of the Civil Court for defamation, the

P^^'^^^. ,;^n naid off the amount of the decree and saved the

property-

Hsivis Chandra Mukerji was pre-eminently a self-taught and self-
made man. There were few stirring incidents in his life. In the
Mutiny his paper displayed an amount of accurate knowledge and
statesmanship that was valued by Lord Canning ; his policy was to
vindicate the Bengali character from any imputation of disloyalty :
when the quarrel between the raiyats of the indigo districts and the
planters was running high, he espoused the cause of the former,
depicting in vivid colours their grievances and sufferings. He thus
braved the wrath of the whole planting interest, who had their ad-
vocates in the Press and in the non-official European community of
Calcutta. He helped all who came to him for help, by writing
out petitions to the authorities, and by obtaining legal advice for
them. When many of the poor indigo raiyats who came down to
Calcutta had nothing to eat, Babu Haris Chandra gave them food.
His sympathies were always with the poor, and before his death the
indigo question was in the way to be placed on a sounder basis. In
addition to his journalistic work it may be mentioned that the f>etition
to Parliament, on the occasion of the renewal of the East India
Company's Charter in 1853, ^^^ itoxxv his pen. His interest in
spiritual matters was shown by the active help he gave in establishing
the Bhowanipur Brahmo Samaj. He moved in the most intellectual
circles of Calcutta. Among those who prized his company were
Ram Gopal Ghose, Rama Prasad Roy and Justice Sambhu Nath
Pandit. He died on the 14th June 1861, broken down by over-work,
a victim to consumption. Much loved in life, his loss was deeply
mourned. A subscription of Rs. 10,500 for a memorial to him was
raised, which was expended in building the Haris Chandra Library
in the premises of the British Indian Association. The Associ ation
paid an annuity to his widow till her death.

MAHARAJA RAMA NATH TAGORE. 1049

MAHARAJA RAMA NATH TAGORE, c.s.i.

Rama Nath Tagore was six years junior to his brother Dwarka
Nath Tagore — the rich, advanced and enterprising gentleman who
made a name not only in India but also in England and France, which
he visited in 1842 and 1845-6, dying in London on ist August 1846.
Rama Nath, after acquiring the elements of English at Mr.
Sherboume*s school in the company of his cousin, Prasanna Kumar
Tagore, learnt Sanskrit, Persian and Bengali at home. After leav-
ing school, he worked in the firm of Alexander & Co., and, when
the Union Bank was started in 1829, he was appointed its Treasurer
through the influence of his brother. When it failed he acted as
one of its liquidators.

He joined Prasanna Kumar in tounding an English weekly
newspaper called The Reformer, At the great Free Press Dinner
of 1835, he responded to the toast of the "People of India.*' He
worked hard as a member of the Landholders' Society, and on its
abolition took a leading part in the foundation of the British Indian
Association, of which he was first a Vice President and subsequently
President for about 10 years. He was often invited to address or
preside over public meetings.

In 1866, he became a Member of the Bengal Legislative Council,
and by his advocacy of the cause of the raiyats gained the title of
the raiya// friend. In 1873, he was appointed a Member of the
Legislative Council of the Governor-General and made a Raja.
In recognition of his services in connection with the famine of 1874
he was made a C.S.I, on Lord Northbrook's recommendation.

His Royal Highness the Prince of Wales gave him as a souvenir
a handsome ring, on the occasion of the Prince's reception by the
native community at the Belgachia villa, as he was President of the
reception Committee. At the Imperial Assemblage at Delhi on the
ist January 1877 he was given the title of Maharaja.

As a Municipal Commissioner for Calcutta, his services to the
cause of reform and economy were recognised by his countrymen,
and, when the question of providing decent burning-^/;a/j for Hindus
was under discussion, he fought the people's battle and helped in
raising funds to improve the ghais and save them from abolition. He
was a Governor of the Hindu College, a Governor of the native
Hospital, an active member of the General Committee of Public

1050 BABV JOT KISHKN MUKBRJI.

Instructi on and a Fellow of the Calcutta Universily. Though not so
rich as the elder branch of the Tagore family, he contributed accord-
ing to his ability to every good cause. He died on ist June 1877,
at the age of 'j'jy after a protracted illness. Lord Lytton, on hearing
of his death, wrote regarding him : — " By the Maharaja's death both
the Government and the whole Native community have lost a wise,
an honest, and a trusted adviser, and by none who knew him is his
loss deplored on public grounds more truly than by" Lord Lytton
himself.

BABU JOY KISHEN MUKKRJL
RAJA PL\RI MOHAN MUKKRJI, c. s. i.
The founder of the Mukerji family of Uttarpara, Hooghly, was
Babu Joy Kishen, who was born in 1808. His father was banian
(an office of considerable profit) to Her Majesty's 14th Regiment of
Foot. It was in the Regimental school thsit Babu Joy Kishen received
his English education, and his precocious ability soon attracted atten-
tion. When only 16 years old, he was found qualified for the
appointment of Chief Clerk in the Brigade-Major's office. Both
father and son accompanied the Regiment to the siege of Bhartpur
at the end of 1824, witnessed the capture of the fortress, and obtained
their share in the prize-money from the East India Company. When
the Regiment left for England Babu Joy Kishen entered the Collec-
tor's office at Hooghly in 1830, as Record-keeper. The Bhartpur
prize-money being successfully invested in land, it became unnecessary
for him to remain in Government service. He and his father
gradually acquired large and valuable properties, and thus ranked
among the greatest landowners in the district of Hooghly. After
his father's death Babu Joy Kishen greatly improved his estates by
his personal management, and raised the rental generally. He
introduced a large number of immigrants to clear jungle and to
cultivate lands which had before been neglected or inundated. The
Brahmins were angry with him for compelling them to pay proper
rent for the lands which they had usurped and held rentfree without
a proper title : but, being a Kulin Brahmin himself, he disregarded
their displeasure. He converted his native village of Uttarpara into
a flourishing town, established in it a High Class English College, a
Charitable Dispensary, and a Public Library, and founded several

RAJA PIARY MOHAN MUKERJI. 1051

English and Vernacular schools throughout his estates. The peasantry
prospered and paid their rents punctually. He encouraged them to
grow sugarcane and potatoes instead of trusting solely to the rice
crop. New tanks were dug to supply pure drinking water ; facilities
were afiEorded for irrigation : roads were constructed and embank-
ments raised. In limes of scarcity, he rendered signal service and
received the thanks of Government repeatedly for his charity and
liberality.

Babu Joy Kishen^s labours were not confined to the management
of his estates. He took a leading part in the early political move-
ments of his countrymen. It was mainly under his guidance that
the British Indian Association was founded and managed : though
titled personages appeared as the office-bearers, he was one of its
main supporters amd directors.

In the course of his career Babu Joy Kishen was a great litigant.
Unlike many zamtndarsy he never took the law into his own hands,
but always endeavoured to enforce his rights through the Civil and
Criminal Courts. He himself nearly fell a victim to the law. In
consequence of certain family dissensions, a charge of forgery was
brought against him and, though the Sessions Judge was for acquit-
ting him, he was convicted and sentenced by the Sadar Nizamat
Court on 31st March 1862 to 5 years* imprisonment with a fine of
Rs. 10,000 in lieu of hard labour. He appealed to the Privy
C3uncil in England, and, although that tribunal cannot interfere
with a sentence passed in a Criminal Court in India, the Judges
expressed such a strong opinion of his innocence that he was at
once released by order of Government. His social status was not
affected by this incident, and he did not relax his patriotic exertions.
At the age of 70, he lost his sight from cataract. Even .this natural
calamity did not prevent him from attending to his duties ; according
to custom he had the principal local newspapers and leading articles
of the London Press read out to him ; and he kept himself acquaint-
ed with the most important Parliamentary debates. He died at the
age of 80 ; to the last his intellect and memory were wonderful :
and he has left a name which will not easily be forgotten as one of
the leading zamindars of Bengal.

His son, Piary Mohan Mukerji was born on 17th September
1840, and educated in the Calcutta University, where he took his

1052 SIR JOTINDRA MOHAN TAQORK.

degree of M. A., and B. L. in 1864 and 1865. He was appointed a
Member of the Bengal Legislative Council in 1879, a Member of the
Viceroy's Legislative Council in 1884 and 1886, and took a prominent
part in the discussions of the Bengal Tenancy Bill in which he showed
such ability that the Member in charge of the Bill, Sir Steuart
Bayley, remarked, '* Though the death of our lamented colleague,
Rai Kristo Dass Pal Bahadur, in the middle of our discussions was a
grievous loss to them (the zamindars of Bengal), and indeed to all of
us, yet their interests could hardly have found a better representative
than in his successor, who, with inflexible constancy and even a more
perfect knowledge of detail than his predecessor, contested every
inch of ground and displayed a temper and ability which showed
how wisely the British Indian Association had made their selection":
he had for some time been Secretary of that Society. He was created
a Companion of the Order of the Star of India on i6th Febniar}'
1887, and at the same time the title of Raja was conferred on him
in recognition of his own, and his father's, distinguished public
services.

MAHARAJA SIR JOTINDRA MOHAN TAGORE

BAHADUR, K. 0. 8. 1.,
The Maharaja Sir Jotindra Mohan Tagore Bahadur, k. c. s. i.,
has long held a position of great influence in Bengal and Calcutta
As a distinguished member of Native society, a gentleman of high
culture, and a wealthy landowner, he has had the confidence of Goyem-
ment and the respect of all classes. Born in 1831, he was educated at
the Hindu College, Calcutta, and also at home under the guidance of
the celebrated Capt. D. L. Richardson and others. He gave early
proof of his literary culture and taste by composing several Bengali
dramas and farces, and by associating with men of learning and ability.
He was a member and, for several years, Honorary Secretary of
the British Indian Association, its President in 1879, and again
in 1 89 1. He began early to attend public meetings and take
a share in public affairs. Thus in the Orissa famine of 1866 he
co-operated with Government in devising measures of relief in the
Midnapore District. In 1870 he was nominated to be a Member of
the Bengal Legislative Council and reappointed in 1873. In
February 1877 he was appointed an Additional Member of the

MAHARAJA SIR JOTINDRA MOHAN TAGORE. 1053

Legislative Council of the Governor-General, and, in recognition of
the valuable assistance rendered by him in the discussion of the
provisions of the Civil Procedure Code, was reappointed in 1879 ^^^
again in 1881. In 187 1 he received the tittle of Raja Bahadur and
in January 1 877 was made a Maharaja, on the occasion of the Imperial
Assemblage. He was created a C. S. I. in 1879, and K. C. S. I. in
May 1882 ; received the title of Maharaja Bahadur in January 1890,
and in January 1891 the title of Maharaja was made hereditary
in the family. His donations of money and land to charitable
institutions and in aid of every national and public movement have
been munificent : for instance an endowment of a lakA of rupees in
his mother's name for the benefit of Hindu widows : a settlement of
estates worth Rs. 80,000 to endow the Moolajori temple, at Sham-
nagar, the feeding of paupers at the Prasad, donations to the District
Charitable Society, the Mayo Hospital &c. He founded some scholar-
ships in the name of his father Babu Hara Kumar Tagore, who died
in 1858, and his uncle, Babu Prosanna Kumar Tagore, c. s. i., on
whose death in 1866 he became the head of the family. He has
annually given a gold armlet for proficiency in Sanskrit literature, and
a gold medal for the best examination in the Tagore Law Lectures,
and another gold medal for proficiency in Physical Science.
He has filled the following offices usefully and honourably : viz.,
those of a Justice of the Peace for the town of Calcutta, Presidency
Magistrate, Fellow of the University of Calcutta, President of the
Faculty of Arts and Member of the Syndicate, 1881-82, Trustee of
the Indian Museum (President in 1882), Governor of the Mayo
Hospital, and a member of the Asiatic Society of Bengal. He
presented to the Calcutta University the marble statue of his uncle,
which has been placed in the portico of the Senate House. Jointly
with his brother, the Raja Sir Sourindra Mohan Tagore, c. i. e., he
presented to the Municipality of Calcutta a piece of land for a
square (to be named after his father) in which he placed a marble
bust of his father ; they gave another piece of land for the Mayo
Hospital. His adopted son (Raja Sourindra Mohan's son), Maharaj
Kumar Prodyot Kumar .Tagore, is his heir. His large estates are
situated in several districts of Bengal, chiefly in Rangpur, Faridpur,
Purnea, Murshidabad, the z^-Parganas : in Calcutta he has two fine
houses " The Prasad " and ** Tagore Castle", adorned with costly
67

1054 NAWAB SIR SAIYAD HASBAN ALI KOA^.

specimens of art, where he has entertained with princely hospitalitjr.
He has received for life the income of the vast estates left by his ancle,
Prosanna Kumar Tagore, and has been able to make large additions
to his share of his paternal property. The Tagores of Calcutta have
always held a leading position in Bengal but the Maharaja Sir
Jotindra has, more than any other member of the family, combined
public offices with his personal status. Strictly orthodox and devoted
to religious observances, he has never disregarded the clums of
society, civilization, and culture, and has gained the goodwill and
esteem of Europeans and his own countrymen alike. It has been
well said of him that he combines the polished politeness of the old
school with the educational accomplishments of the new, more
completely than any other man of his time. By selecting him as a
member of various special Committees, such as the Education Com-
mission of 1882, the Jury Commission of 1893,^0., besides the other
appointments above mentioned, Government has shown its appre-
ciation of his ability and character. Costly litigation took place
in connection with the interpretation of the will of his uncle Babu
Prosanna Kumar Tagore. The Privy Council finally decided that
the Maharaja had only a life-estate under the will, and that after
his demise the estate would go to his cousin, Babu Gayendra Mohan
Tagore, or his representatives.

NAWAB SIR SAIYAD HASSAN ALI KHAN BAHADUR,

OF MURSHIDABAD, g. c. i. e.

The history of the Nawab Nazims of Bengal is bound up with the
early history of the English in Bengal. Their descendant is the
present Nawab Sir Saiyad Hassan Ali Khan Bahadur^ the eldest son
of the late Muntazim-ui-mulk, Mohsin-ud-daula, Faridun Jah, Nawab
Saiyad Mansur Ali Khan Bahadur, the last titular Nawab Nazim,
Subadar of Bengal, Bihar and Orissa. He was born on the 25th
August 1846 and succeeded to the masnad on 27th March 1883 : he
traces his descent from the Prophet, and also from Ali, the Prophet's
son-in-law.

In 1865, he was sent to England under Col. Herbert, remaining
there for some years for his education, and was introduced to the
Queen by the Secretary of State. He has given two of his sobs an
English education.

RAI KRISTO DAS PAL. 1055

The last Nawab Nazim having resigned his position and titles on
I St. November 1880, the hereditary title of Nawab Bahadur was
conferred on the eldest son Saiyad Hassan Ali Khan by a Sanad
dated 17th February 1882. He was made a Knight Commander of
the Order of the Indian Empire on i6th February 1887, Intisham-ul-
mulk, Rais-ud-daula, Amir-ul-umra, Mahabat Jung, on soth May
1887 and a Krtight Grand Commander of the above Order on aoth
May 1890.

By an agreement entered into with the Secretary of State on i ath
March 1891, which was subsequently incorporated in Act XV of 1891,
he confirmed the act of his father of ist. November 1880. In return
for this the Nawab Bahadur received a fixed herediury position with
a settled income^ certain landed estates in several districts of Bengal :
and the rank and dignity of Premier Noble in Bengal with the
hereditary title of Amir-ul-umra.

The Nawab Bahadur maintains the dignity of his position and
family to the best of his power. His estates are well administered :
his charities have always been extensive, his sympathies are not limited
by religion or nationality, his liberality has been displayed in every
public cause, and he is given to hospitality. Before his health broke
down some years ago, he was as active in body as in mind, and never
spared himself, on the occasion 'of floods or any general calamity, in
his exertions to relieve the sufferings of the people. On the occasion
of the earthquake of June 12th 1897, ^^ ^^^X n^&r^y lost his life and
was extricated only just in time from the failing palace in which he
was living. The Nizamat buildings were severely injured, the repairs
entailing considerable expenditure on the Nawab Bahadur. The
main palace building, constructed in 1837 at a cost of sixteen lakhs
of rupees, is one of the largest buildings in Bengal, and contains
many pictures and objects of interest and value, among them a
picture of William IV, presented by the King lumself to the Nawab
Nazim of the day. The Nawab Bahadur has always exhibited the
greatest loyalty to Government.

RAI KRISTO DAS PAL BAHADUR, c. 1. e.
The death of Rai Kristo Das Pal Bahadur, c. i. e. on the 24th
July 1884 was *a loss to his country, to journalism and politics.
Bora in April 1838, be joined the Oriental Seminary at the age of

1056 RAl KRISTO DAS PAL.

six, and subsequently became the pupil of Captain D. L. Richardson
in the new Metropolitan College (1854) : in 1857, he began to
attend the Calcutta Public Library as a reader, and to contribute
about this time to some of the local periodicals. He was also a
leading member of a Debating Club. When translator to the Judge
of the 24-Parganas, he was appointed Assistant Secretary to the
British Indian Association in December 1858. The work of his
life, for which he was best known, was performed in connection
with (i) the Hindu Patriot^ (2) the British Indian Association,
(3) the Calcutta Municipality and (4) the Bengal Legislative Council.
When Haris Chandra Mukerji, the founder of the Hindu Pairioty
died on the 14th June 1861, its new proprietor Babu Kali Prosanna
Sinha, after managing it at a loss for sometime, made it over to
Pandit Isvar Chandra Vidyasagar, who invited Kristo Das Pal to take
the editorial charge in November 1861, and subsequently transferred
the proprietorship in July 1862 to a body of Trustees. They made
over the management to Kristo Das, so that, from 1861 to the time
of his death, he was in charge, and raised the paper to a position of
influence and pecuniary prosperity. He was a man of moderate
views and knew how to avoid personal attacks on character and
motives, while exercising a keen but fair criticism of official acts.
The innovations of Sir George Campbell as Lieutenant-Governor of
Bengal afforded many matters for comment, and Kristo Das was so
trenchant in his views that their relations were greatly strained. The
deposition of Mulhar Rao, the Gaekwar of Baroda, in 1874 gave
his pen an opportunity of exposing the vulnerable points of the
Government prosecution. His general attitude as a writer was as an
advocate of the admission of Natives of India to a greater share of
political power and of Government appointments, and his success
was largely due to the moderation of his views. He was above all
a supporter of the zamindari interest and the landlords of Bengal
ought to be grateful to his memory. In 1877 Kristo Das Pal
received the title of Rai Bahadur and in 1878 the decoration of a
C. I. £. In him the Indian Association for the Cultivation of Science
found a steady journalistic adherent, and the Vernacular Press Act
of 1878 a strenuous opponent. When the Act was repealed in 1882,
he wrote a humorous article on the vicissitudes through which the
measure had passed. Appointed Assistant Secretary to the B. I.

RAI KRISTO DAS PAL. 1057

Association in 1858, he worked so well under the guidance of
Maharaja Romanath Tagore that his pay was gradually raised from
Rs. 100 to Rs. 350 a month. In June 1879 ^^ ^^^ appointed paid
Secretary. His ability, industry and patience were conspicuously
shown in the various memorials drawn up by him and submitted by
the Association to Government.

In 1863, Kristo Das Pal was appointed a Justice of the Peace for
the town of Calcutta and soon took a prominent position at the
Municipal board. His services to the Municipal Corporation were
of great value, and, though he was seldom found voting with the
non-official minority, he never lost his position as a representative
of the rate-payers. He opposed the scheme of self-government
embodied in the Calcutta Municipal Bill of 1876, — but in detail, not
in principle. His opposition was directed against specific points,
such as the appointment of an official Chairman, the union of the
offices of Chairman and Commissioner of Police, the multiplication
of expenditure on objects of secondary importance, the restriction of
the hours of water-supply at high pressure from 17 to 3 hours
during the day, coupled with a higher water-rate. Thus, while he
eulogized Sir Richard Temple for the gift of self-government to
Calcutta and joined the Corporation as an elected member, he com-
plained of the checks and limitations attached to the measure. He
was appointed a Member of the Bengal Legislative Council in 1872
and every Lieutenant-Governor acknowledged the value of his services
in that capacity. On the 9th February 1883 ^^ ^^^^ ^i^ ^^^^ ^^ ^^^
Governor-General's Legislative Council, as an Additional Member,
as the representative of the Bengal zamindars in the discussions on
the Rent Bill, which became the Bengal Tenancy Act. When the
Ilbert Bill took its final shape, he said, '' I love peace, but honour
more and justice above all... I say — let bygones be bygones."

Kristo Das Pal was a man of the people and his aspirations were
centred on obtaining increased influence as a public man. His
natural gift of eloquence was highly developed by practice and culti-
vation : as an orator he had few rivals : his delivery was clear and
dignified, his language well-chosen : he held his audience at once
and was quick in debate. His statue at the corner of Cornwallis
Street and Harrison Road gives a very inadequate impression of his
appearance as a speaker. He was always ready to imbibe ideas from

1058 RAJA RAJBHDRA LALA MITRA.

persons for whom he had respect, and his profession as a journalist
necessitated his keeping in touch with every movement and phase of
public opinion. Industry and independence were ruling principles
of his life and conduct. Sir Richard Temple has described him as
on the whole, next after Sir Madhava Rao, the best informed Indian
he had ever known : '' his assistance in legislation was really valuable ;
and in public affairs he had more force of character than any Native
of Bengal. He belonged to a caste below that of Brahmin, and was
the editor of the Hindu Patriot newspaper, published in English.
This paper was the organ of the Bengal zamindars and was in the
main sustained by them, but it had a large circulation otherwise, both
among Europeans and Natives, being conducted with independence,
loyalty, and learning.*'

RAJA RAJENDRA LALA MITRA, c. i. e.

Literature has had no more distinguished representative in
Bengal in recent times than Raja Rajendra Lala Mitra, c.i.r..
Doctor of Laws. He was born on 15th February 18J4, at
Sura in the suburbs of Calcutta, the 3rd son of Janamejaya Mitra,
a good Sanskrit and Persian scholar, who was the grandson of
Raja Pitambar Mitra. The latter so pleased the Mogul Emperor
at Delhi that he was made a commander of 300 horse and
offered the rich jagir of Kora in the Doab, with the hereditary
title of Raja. After attending English schools in Calcutta, Rajendra
Lala in 1840 entered the Calcutta Medical College. In 1841 the late
Babu Dwarka Nath Tagore offered to take him to England to com-
plete his medical education, but his father disapproved of the idea
and withdrew him from the Medical College. He next prepared
himself for the profession of law : but the examination papers of
his year having been stolen the examination was null and void. In
disgust he gave up the pursuit of law. This knowledge of law and
medicine afterwards enabled him to elucidate many doubtful points
in the course of his subsequent literary and antiquarian researches.

At the age of 22 he was appointed Assistant Secretary to the
Asiatic Society of Bengal and held the appointment for 10 years,
during which he diligently studied Sanskrit and the allied languages.
As the Hindu Patriot wrote " nobody was better equipped than he
was to enter into the arena of literarv labour." .... Hia

RAJA RAJINBRA LALA KITRA. 1059

" Buddha Gaya/' " History of the Antiquities of Orissa/' and
'* Indo- Aryans " are monuments of extensive and patient research,
deep and varied erudition, and sound reasoning from accidental or
obvious analogies. The list of his works includes the names of
50 learned treatises, divided into 1 38 volumes and comprising no
less than 33,089 pages." Sir Richard Temple described him as the
most effectively learned Hindu of his day, both as regards English
and Oriental classics.

In 1 85 1 he started the Vividhartha Sangraka Bengali Magazine,
and followed it up with the Rahasya Sundarbha, which existed for
5 years. In 1855-56 he was appointed Director of the Wards'
Institute in Calcutta; and some of the zamindars who were his
pupils acknowledge with gratitude the debt they owed to his careful
training. When the Calcutta Corporation was established he was
appointed to be a Municipal Commissioner by the Government, and
rendered valuable services to the Corporation as well as the rate-
payers by his industry, ability and sense of justice. In February
1885 the Asiatic Society of Bengal elected him its President. He
was connected with the British Indian Association from its founda-
tion in 1 85 1 to his death, and, besides holding office as Vice-President
and President, rendered conspicuous service in important discussions
and correspondence.

His literary achievements were recognised by many learned
Societies in Europe : his correspondence with eminent European
savants showed the high estimation in which he was held. In 1875,
the Senate of the Calcutta University conferred on him the honorary
d^H'^^ o^ Doctor of Laws in recognition of his scholarship. In
1877, he was made a Rai Bahadur and in 1878 Companion of the
Indian Empire, and was subsequently granted the title of Raja. He
was identified with the Hindu Patriot^ which often received its best
inspiration from his pen. As a linguist, he was acquainted with
Greek, Latin, French and German, while his knowledge of Sanskrit,
Bengali, Persian, Hindi, Urdu, and Ooriya was more profound. There
is no other known instance of a Bengali gentleman having possessed
such varied acquirements. A special pension of Rs. 500 a month
was grantecf to him in recognition of his services to Literature and
Archaeology. A native journal concluded its obituary notice of
Rajendra Lala in the following words :—

1060 NAWAB ABDUL LATIP.

*' What constituted his special distinction ivas his power of
observation and research. His genius was not linguistic but logical
and scientific. His work was not literary like that of Addison or
Lamb, but historical like that of Niebuhr or SchIiemann...His dis-
tinctive faculty was that of reasoning and, what is important for
purposes of discovery, of analysis. To this were joined powers of
accurate observation and or the imagination so essential to the
scientific inquirer.'*

As President of the Central Text-Book Committee for several
years, he rendered services of no mean order to the cause of educa-
tion for which the cordial acknowledgments of Government were
conveyed to him. His death on the 26th July 1891 was widely
mourned by the Press of India, and some of the highest scholars of
Europe wrote letters of condolence to his family.

NAWAB ABDUL LATIF, BAHADUR, c.r.E.

Nawab Abdul Latif Bahadur, c.i.e., belonged to a family which
had long been settled in Faridpur in Bengal. His father was a
leading pleader in the Sadur Dewani Adalat at Calcutta, respected
for his high attainments as a Persian scholar. He was bom in March
1828 and educated at the Calcutta Madrasa, where he gained a
Government Senior Scholarship for his proficiency in English as
well as in Oriental subjects. He entered Government service in 1846
as a teacher and was appointed to be a Deputy Magistrate in 1849.
He rose in due course to the highest grade of Deputy Magistrates
and acted as a Presidency Magistrate on different occasions. His
tact, judgment, freedom from prejudices, courteous manners and
general desire to act as peace-maker in various capacities earned for
him the sincere respect of all classes of people. He was a useful
Member of the Bengal Legislative Council for several years, a
Justice of the Peace for Bengal, Bihar and Orissa, a member of the
Central Board of Examiners, a Fellow of the Calcutta University,
and member of the Income Tax Commission for Calcutta from 1861
to 1865.

In 1867, he received from Government a gold medal and a set
of the Encyclopaedia Britannica, with an autograph inscription by
the Viceroy, " in recognition of his services in promoting native
education, especially the education of those, who like himself,

THE REVI). DR. K. M. BANERJEE. 1061

belong to the Muhammadan religion.'' In 1869 he was nominated
to be a member of the Commission to inquire into the state of the
Calcutta and Hooghly Madrasas, and received the thanks of Govern-
ment for his work. He was a Municipal Commissioner for Calcutta
and the suburbs ; a member of the Board of management of the
Alipore Reformatory, and of the District Education Committee,
2^'Paganas\ founder, and Secretary since 1863, of the Muham-
madan Literary and Scientific Society, and promoter of its annual
conversazione in the Town Hall : member of the Philosophical Com-
mittee of the Asiatic Society, Bengal ; a member and Trustee of
the Indian Association for the Cultivation of Science, and of the
District Charitable Society. He was made a CLE. on ist January
1883, a Nawab in May 1880, Nawab Bahadur on the occasion of the
Jubilee of Her Majesty the Queen in 1887. He was altogether a
very remarkable man in many ways. Since his death, in 1893, ^'s
place in his community can hardly be said to have been exactly
filled. He has been described as ** the most progressive and
enlightened among the Muhammadans of Bengal. He believed that,
unless the rising generation among his co-religionists exerted them-
selves intellectually with more effect, they would be utterly out-
stripped by their Hindu fellow-subjects in the race of life."

THE REVD. DR. K. M. BANERJEE.
The Revd. Krishna Mohan Banerjee, d. l., c. i. e., was a conspi-
cuous man, as a convert and Christian minister, and for his literary
acquirements. He was bom in Calcutta in 181 3. His father,
Jiban Krishna Banerjee, sent him at the age of 1 1 to the Hindu
College, where he gained a scholarship and distinction as a student.
Under the influence of Mr. Derozio, the 4th master, Krishna Mohan
and others adopted heterodox ideas and habits, deriding the usages
of Hindu society. In 1829 he became a master in the Hare School
and aimed at the overthrow of idolatry and caste, but his services
were dispensed with on the representations of the Hindu guardians
of the pupils. He became acquainted with the Revd. Dr. Duff and
accepted Christianity, announcing the fact in the newspaper, The
Inquirer, which he had started. In 1837 he was ordained Deacon,
and became pastor of Christ Church in Cornwallis Square : he
continued to preach from 1837 101852. His literary work at this

1062 VAHARANI SVABNAMATI.

time and afterwards was considerable. He published 1 3 volumes
of the Encyclopedia BengalenHs in English and Bengali, with the
assistance of Government. He wrote an Essay on Female Education
and contributed to the Calcutta Review and other journals. From

1852 to 1868 he was a professor in Bishop's College, but resigned,
on some difference with the authorities, and became a pensioner of
the Society for the Propagation of the Gospel. He was subsequently
an Honorary Chaplain to the Lord Bishop of Calcutta. About 1861
he published his work on the six Darsans, or philpsophical systems
of the Hindus, which gave him a place among the learned scholars
of the day. In 1875, ^i^ work, The Aryan Witness, appeared. From
time to time he published with annotations several Sanskrit text-books
and pamphlets, and his English ^iTitings anid lectures were numerous
and of a high class. He was a member of the British Indian
Association from 185I1 a Vice-President of the Bethune Society :
and a leading member of the Hare memorial Committee. A Felloe-
of the Calcutta University in 1858, he ^^as in 1867 and 1868 Pre^-
dent of the Faculty of Arts : and received in 1876 the Hononuy*
degree of Doctor in Law, in recognition of his varied acquirements
and services to the cause of Indian literature. He resigned his
position as an elected member of the Calcutta Municipal Corporation
in 1885, when the Local Government interfered with regard to the
sanitation of the town. As a linguist he had few equals, knowing
eleven languages well : in Bengali and Ooriya he was considered
an authority : was a member of the Asiatic Society of Bengal and of
the Board of Examiners : and was made a C. I. £. He also managed
the Sundarban property of his son-in-law Ganendra Mohan Tagore.
By careful and economical management of his various sources of
income from his literary and landed properties he gained a posiiion
of comparative affluence, which enabled him to indulge his love of
charity to the poor, whether Hindus or Christians. As an indefali^
gable reader and writer he will be best remembered by his literary
work, in which he was engaged up co the time of his death on the
nth May 1885, at the age of 72.

THE MAHARANI SVARNAMAYI, c. i.
The name of the Maharani Svarnamayi has long been widely
known for her munificent generosity, continued throu^ a number of

MAHAXAKI SYARNAllATf. 1063

yeftr$r. She was bom in 1827 at the village of Bhattakol in the
Burdwan district, and at the age of eleven married to Kumar Krishna
Nath of Kasimbazar. She received some education in Bengali and
arithmetic under the supervision of her husband, and was thus able
to understand zamindari and other business in her later years.
She also read much Bengali periodical literature, including news-
papers.

Her husband Kumar Krishna Nath received the title of Raja
Bahadur in 1841 from Lord Auckland. He supported education
and every good movement, and bore a large share of the expense
of erecting David Hare's marble statue, now in the Hare School
compound. He was so alarmed at the news of a murder in
which some of his people were involved that, to avoid the share
of publicity, he died by his own hand in 1845 ^^ ^^^ house in
Chitpur Road Calcutta. Svarnamayi's two daughters both died
at an early age.

The East India Company, under a will of Raja Krishna
Nath, took possession of the whole estate with the exception of
Svarnamayi's stridhan property, which she managed well. It was
then that she engaged, as her adviser, the late Rajib Lochan Rai,
Rai Bahadur, who for many years managed the vast estates of the
Kasimbazar Raj with great efficiency.

Svarnamayi brought a suit in the late Supreme Court against the
East India Company to contest the validity of her husband's will.
After nearly 3 years the suit was decided on 15th November 1847
in her favour ; the will was declared null and void, as the testator
was proved to have been of unsound mind at the time of its execution.

Under the management of Rajib Lochan Rai, not only were the
debts that had accumulated during the years of litigation paid off,
but order was restored in the zamindaris which had deteriorated from
want of proper attention.

As a Hindu widow Svarnamayi considered it a part of her religion
to spend little on herself and to use her large means in benefiting
others. Government at first gave her the title of Rani in recognition
of her liberality and public spirit. She was promoted to the rank of
Maharant in 1871 and in 1878 was made a C. I., t. e. a Member of
the Imperial Order of the Crown of India, by the Queen Empress.
Her Dewan Rajib Lochan had been made a Rai Bahadur in 1875 ^^d

1064 MAHARANl SVARNABCAYI.

Government further gratified the Maharani by promising the title of
Maharaja to her heir. Manindra Chandra Nandi was duly invested
soon after his succession to the estates : the net income of which
was, at the time of the Maharani's death, in August 1897, between
6 and 8 lakhs.

It would be impossible to recount all the Maharani's benefac-
tions for public purposes. Her purse was always open to applicants
in any good cause. She continued her husband's policy of assisting
literary efforts and Education. The principal objects of her muni-
ficence were — The Berhampore water- works, Rs. 1,50,000; the North
Bengal Famine, Rs. 1,25,000 ; the Hostel for female medical students,
Rs. 1,00,000; the Campbell Medical school Hostel for female
students, Rs. 10,000 ; a number of other institutions and charities
received handsome donations from her hands. She supported the
Berhampore College at a cost of Rs. 16,000 to Rs. 20,000 a year, and
set apart Rs. 11,000 for giving winter clothes to the poor. Her
smaller gifts were innumerable.

On the occasion of the Pons Sankran/i, which falls in January,
the Maharani used to prepare rice and other food materials amounting
to several thousand maunds and distribute the same freely to all
comers. At the same time, she used to give away shawls and broad-
cloth to Pandits and Brahmins assembled and blankets to Nagas
and fakirs. At the Chaii Sankranii, she distributed brass g haras ^
clothes and money to Brahmins, and fed a large number of paupers.
During the Durga puja she used to give large annual gifts to Pandits
and feed several thousand people. Her presents to her ser\'ants
also were large. She also helped with money poor Brahmins and
others to give their daughters in marriage or to celebrate the sradh
ceremony of their deceased parents or to invest Brahmin lads with
the sacred thread. She at times paid the debts of many persons.
She excavated numerous tanks and wells and helped in the con-
struction of dispensaries. Several Sanskrit Tols and high and
middle schools owed their existence to her liberality, chiefly, in her
own zamindaris.

Her estates lay in the districts of Murshidabad, Rajshahi, Pabna,
Dinajpur, Malda, Rangpur, Bogra, Faridpur, Jessore, Nadia, Burdwan,
Howra, and the 2^-Parganas in Bengal, and in Ghazipur and Aztm-
garh in the N. W. Provinces.

DR. MAHIBNDRA LAL SIRCAR. 1065

Dr. MAHENDRA LAL SIRCAR, c. i. k., m.d., d. l.
No one in Bengal has held a higher position in Science than Dr.
Mahendra Lai Sircar, a position which he has fairly won for himself
by ability and labour. He was bom on the 2nd of November 1833
at the obscure village of Paikpara in the district of Howrah, and has
often referred to his descent from the actual tillers of the soil ; his
immediate ancestors were of the hhadro lok class. Having in his
early youth, lost* both his parents, he was brought up by his mater-
nal uncles : was taught for a time in the school of the cele-
brated lame teacher, Thakur Das De, and placed in the Hare
School at the age of seven. In 1849 he joined the Hindu Col-
lege with a Junior scholarship, and soon distinguished' himself
at the Presidency College, which succeeded the Hindu College.
Even at school he gave evidence of his love of Science. After
5 years at the Presidency College, he joined the Calcutta Medi-
cal College in 1854 ; while yet in the second year of his medical
studies, he attracted the notice of Dr. Archer, at whose request he
delivered a series of lectures on Optics to his fellow students ; the
other professors also greatly esteemed his merits. He passed the
final examination in iSOo with the highest honours in Medicine,
Surgery, and Midwifery, and won several scholarships. In 1863 he
took the degree of M. D. with special success. In the same year he
joined the Bengal Branch of the British Medical Association, instituted
by the late Dr. S. G. Chakrabarti, and at the opening meeting delivered
a long and fervent speech, denouncing Homoeopathy as a system of
quackery. He was for 3 years Secretary of the Association and
was then elected one of its Vice-Presidents. It was at this time that
his views regarding Homoeopathy underwent a remarkable change.
From being a persecutor he became a warm advocate. When review-
ing a work on Homoeopathy, he found in its pages facts that induced
him to put the new system to practical test. By watching some of
the test cases of a Homoeopathic practitioner, he began to believe
that the sorcalled infinitesimal doses do act and act beneficially in
removing disease. He accordingly read an address at an annual
meedng of the Medical Association in February 1867 "on the
supposed uncertainty in Medical Science and on the relation between
diseases and their remedial agents. " This declaration of faith in
Homoeopathy was a great turning point in his career. In January

1066 DR. MAHE^DRA LAL 61R0AR.

1868 he started the Calcutta Journal 0/ Medkme tor the public
dissemination of his advanced views.

In August 1869, he advocated in his journal the estabHshment of
a National Institution for the Cultivation of Science. His hopes were
fulfilled in 1876, when, with the support of Sir R. Temple^ he was
enabled to found '' the Indian Association for the Cultivation of
Science '\ which has since acquired a recognised position. At the
Convocation of the Calcutta University held in February 1900, Lord
Curzon thus referred to the Association, — '* You have, I believe, in
your midst a Society which, on a humble scale, because it is pos-
sessed of humble means, attempts to diffuse scientific knowledge
among the educated population of Bengal. I allude to the Indian
Association for the Cultivation of Science, to which Dr. Sircar has,
I believe, devoted nearly a quarter of a century of unremitting and
only partially recognised labour. ** On the same occasion the Vice*
Chancellor, Sir F. Maclean, spoke of him as follows : — '< An Indian
votary of Science, ( Dr. Sircar ), upon whom we conferred the
honorary degree of Doctor of Law the year before last, has been
devoting a lifelong service in preparing the ground for the cultivation
of Science by his countrymen *'.

Dr. Mahendra Lai Sircar was appointed a Fellow of the Calcutta
University in 1870, and in 1898 received the degree of Doctor in
Law. The Vice-Chancellor, Mr. Justice Trevelyan, then said, " in
conferring this degree upon him we are not merely honouring his
labours in the cause of Science. For many years, in spite of the
many calls of his professional work, he devoted much of his time to
our service. For 10 successive years he was a member of our
Syndicate and frequently acted as its President during the absence
of the Vice-Chancellor. He was also for 4 successive years President
of the Faculty of Arts.*'

He was appointed Sheriff of Calcutta in 1887, and was a Member
of the Bengal Legislative Council from 1887 to 1893. In 1883, he
was made a C. I. £. in recognition of his services to the cause of
Science. He is one of the oldest members of the Asiatic Society
of Bengal, has been frequently elected a member of its Council and
is its representative in the Board of Trustees of the Indian Museum.
He was an elected Commissioner of the Calcutta Corporation for
several years and made his mark on the Municipal Board, especially

RAJA KALI KRISfiNA DKB. 106f

in the department of sanitation. His eloquence has often been
conspicuous in his public speeches.

As a patriot, Dr. Sircar has always been on the liberal side.
Though yielding to none in enthusiasm, he has never virulently
attacked Government measures. On the contrary, whenever oppor-
tunity presents itself, he never fails to remind his countrymen that
they enjoy more freedom under the British Government than they
ever did under their own. His views in regard to the emancipation
of women are of an advanced type. Though he abstains from
obtruding his religious sentiments, he has a firm belief in the Divine
Government of the world. Hahnemann has been his guide in the
region of medicine. His life has been one of consistent toil for
Science and his fellow countrymen.

RAJA KALI KRISHNA DEB BAHADUR,
Kali Krishna was the second son (born in 1808) of Raja Raj
Krishna of Savabazar, and grandson of Raja Naba Krishna, the well-
known DcTxmn of Lord Clive. In 1833 he received from Lord
William Bentinck the title of Raja Bahadur as a personal distinction,
together with a gold medal. He enjoyed the esteem of all the
subsequent Governors-General and was favourably known to all high
officials in Calcutta. After the death of Raja Sir Radha Kanta Deb
Bahadur, Kali Krishna assumed the position of leader of Hindu
Society and became President of the Sana/an Dharmarakshini
Sabha, the object of which was the preservation of the ancient Hindu
religion.

He knew four languages, — English, Persian, Sanskrit and
Bengali, — and his translation of Johnson's Rasselas from English,
and of the Afahana/ak from Sanskrit into Bengali, furnished proof of
his varied scholarship. The Mahanaiak was dedicated to Her
Majesty the Queen and was so favourably received that the
Governments of Germany, Austria, France and Belgium sent him
gold medals. He was a member of the Royal Asiatic Society of
England, a Fellow of the Calcutta University, Justice of the Peace
for the town of Calcutta, member of the Bethune School Committee,
and for many years Vice-President of the British Indian Association.
He took a leading part in all movements on behalf of the native
community and was a friend of education and educated natives.

1068 MA.HARAJA SIR LACHMESVAR SINGH OF DARBHANGA.

He gave the best evidence of his sincere advocacy of female educa-
tion by putting his granddaughters into the Bethune School. He
was honoured with gracious communications from the Queen, the
Prince Consort, the (then) Prince of Wales, and successive Secretaries
of State for India. " Thus", wrote the Hindu Patriot, " Raja Kali
Krishna lived in a world of his own, enjoying the sympathy and good
will of the highest in rank. He was a most amiable man." On i ith
April 1874, at the age of 66, Kali Krishna died at Benares. His
eldest son Harendra Krishna was a Deputy Magistrate and received
the tittle of Raja on his father's death.

MAHARAJA SIR LACHMESVAR SINGH BAHADUR, OF

DARBHANGA, k.c.i.e.
The Maharaja Sir Lachmesvar Singh Bahadur, of Darbhanga,
K. c. I. E., as the representative of a noble Bihar house, and the posses-
sor of large estates and wealth, had great opportunities of distinguish-
ing himself in his generation, of which he took full advantage during
his comparatively short life. The Maharaja Rudra Singh died la
1850 and was succeeded by his son Mahesvar Singh. The latter
died in October i860 leaving two minor sons, lachmesvar (born in
1856) and Ramesvar. The Maharaja's estates were thus, during a
long minority, carefully managed under the Court of Wards by Gov-
ernment officers, and the two brothers were well educated by their
English tutor, Mr. C. Macnaghten. In the Bengal famine of 1874
large sums were spent on relief works for keeping their peasantry
alive. As head of the Maithili Brahmins, and a Hindu of Hindus,
the Maharaja occupied a very high position in Behar and Bengal, and
was sincerely devoted to the exercises of his religion. On attaining
his majority, though he always retained the services of European
officers, he largely directed the management of his property. It is
said that, during his life, upwards of two crores of rupees were
expended on various public objects, such as famine relief, the con-
struction of roads, contributions for the support of schools and dis-
pensaries. He constructed iron bridges over all the navigable rivers
of his zamindari and completed an elaborate system of irrigation
works for the prevention of famine. He devoted special attention to
agricultural improvements and to the breeding of catde and horses.
As a sportsman he had a considerable reputation. The new palace at

MICHAEL MADHU SUDAN DUTT. 1069

Darbhanga, with its immense stables, its botanical and zoological
gardens and library, testified to the wealth and good taste of the owner.

As a Member of both the Bengal Legislative Council, and the
Legislative Council of the Governor- General, Maharaja Sir Lachmeswar
rendered valuable service to Government. During the lengthened
discussions on the Bengal Tenancy Bill he acted as one of the
representatives of the land-holders of Bengal and Bihar ; the ability
and moderation he displayed in this and other important questions
were fully recognised by successive Viceroys and Lieutenant-Governors.

Although the Maharaja's Brahminical training made him prefer
objects of charity such as famine relief, medical aid and educational
endowments, he contributed also very largely to objects of general
public utility, such as the gift of Rs. 50,000 to the funds of the
Imperial Institute in England. He was a wide reader and could afford
to indulge his taste for new and handsome books. Besides the
political questions of the day in which he took a marked interest,
either on his own initiative or at the request of his countrymen, he
was constantly concerned with matters affecting the welfare of the
people and the citizens of Calcutta, who cordially supported him as
their chairman and spokesman on important occasions. Though his
vast estates were situated in Bihar in the districts of Muzaifarpur,
Darbhanga, Monghyr, Bhagalpur and Purnea, his influence was felt
throughout Bengal, at Calcutta, in all lando^^ners' Associations, and in
official circles. On his death on the 17th. December 1898 he was
succeeded as Maharaja of Darbhanga (by a new appointment) by his
brother Ramesvar Singh, who had at one time been a member of the
Statutory Civil Service and had been created Raja Bahadur in May
1886.

MICHAEL MADHU SUDAN DUTT.
The memory of Michael Madhu Sudan Dutt, whose genius
not only created the Bengali blank verse, but also gave the first
impetus to the creation of a national drama and a national
theatre, is fondly treasured in literary circles in Bengal. That
genius fortunately found munificent patrons in the Maharaja Sir
Jotindra Mohan Tagore and the Paikpara Rajas, Pratap Chandra
and Isvar Chandra Singh. But the history of the poet's life shows
that he was not free from the characteristics which often accompany
68

1070 MIOHA«L MADHI7 SUDAN BUTT.

a poetical temperament. Born in the lap of luxury, with the example
of his father's love of pleasure before his eyes, be betrayed at an
early age a desire for personal comfort and his own Inclinations,
to the disregard of the wishes of his parents and of family tiea and
associations.

Madhu Sudan Dutt was born at Sagardari in the Jessore district
on 35th January 1834 ^nd was brought, when in his 12th year, by his
father Babu Raj Narayan Dutt, Vakil of the Sadar Dewani Adalai
to Calcutta and placed for education in the Hindu College. That
has been described as the day of Young Bengal, when Hindu students
thought it glorious to eat beef and drink brandy in the most public
and ostentatious way. The most esteemed professocs were Derozio
and Captain Richardson. As a student Madhu Sudan soon made
himself famous as a writer of English prose and verse. He despised
Mathematics. After passing the Junior Scholarship examination he
left the Hindu College in 1842, in consequence of having become a
Christian.

He was at Bishop's College from 1843 to 1847, ^^ published
a short hymn in English on the occasion of his baptism on 9th
February 1843. He then acquired a knowledge of Greek, and the
influence of Homer and other Greek poets is said to be traceable in
his Bengali poems. Latin, French. German and ItaKaii he acquired
later and could use with fluency.

From 1846 to 1856 he lived in Madras in very straitened circum-
stances. Both his parents died during his voluntary exile, and he return-
ed to Calcutta to claim his share of the paternal property, including a
zamindari and a house in Kidderpore, and succeeded in proving his
claim. " The Captive Ladie " was produced during his sojourn in
Madras and attracted much aUention. In Calcutta he secured a
clerkship in the Court of the Presidency Magistrate, soon rose to the
post of Interpreter, and earned something by his pen.

When the Belgachia theatre was started by Rajas Pratap Chandra
and Isvar Chandra Singh, the drama of Rainabali was rendered
into English by Madhu Sudan and was acted with success on 31st
July 1858, the Lieutenant-Governor and the Judges being present.
It was an amateur performance but elicited high praise. At this dme,
Madhu Sudan produced his dramas Sarmtshia and PadmiUfa/i in
Bengali. His next literary experiment was a poem in blank verse —

HARA CHANDRA 0H08R. 1071

Tiiottama Sambhava, Its high merits were at once acknowledged
and led to the production of the longer and fuller poem — ^the
Mefhnadahadh, He next wrote two farces for the stage {Akeyi ke
bale SahhycUa^ and Buro Saliktr Gharer Rona) which afforded
infinite amusement to the auditors, as exposing the vices of *' Young
Bengal."

Brajangana Kavya and Krishna Kumari were his later produc-
tions. Birangana was also the production of this period.

He arrived in England in July 1862 and became a member of
Grey's Inn : owing to the irregularity of his Calcutta agents he
became involved in debts and went to Paris, which he regarded as
the most splendid place in the world. That was the most trying
period of his^ life, and he had to rely on help to finish his ' law
studies ; he returned to Calcutta as a Barrister in 1867.

Improvidence and neglect of his professional work soon rendered
his position as a barrister insecure. His debts accumulated and his
old friends were alienated. After a period of untold miser)*, he
died on the aQth June 1873 in a Charitable Hospital, his friends
providing for his grave and taking care of his family. Some of his
literary remains are still unpublished. Though improvident, he was
ever kind and charitable.

RAI HARA CHANDRA GHOSE BAHADUR.

Hara Chandra Ghose (1808- 1868) belonged to a respectable
family, the Ghoses of Behala near Calcutta. As the youngest son of
his father, he had to rely on his ov^-n eflForts for future advancement.
At the Hindu College he was soon a favourite of David Hare and
H. H. Wilson, and of his teacher Mr. Derozio, who imparted a new
life to the students of that day. The famous Academy of Derozio
claimed Hara Chandra among its leading spirits. The reforming zeal
of some of its members gave a shock to orthodoxy; but Hara
Chandra maintained his Hinduism.

Soon after leaving College, he was offered the post of Dewan to
the Governor-General, Lord William Bentinck — a post which is now
designated Superintendent of the Toshakhana of the Foreign office —
but he was dissuaded from accepting it. Lord William next offered
him the newly created post of Munsif on Rs. 100 a month, and this
he accepted as it offered prospects of promotion. Accordingly he

1072 HARA CHANDRA GHOSV.

was appointed Munsif at Bankura on 25th April 1832 and won sudi
golden opinions by his ability, industry and uprightness that within a
year he was promoted to the post of Sadar Amin ; and after nearly
6 years at Bankura he was transferred in 1838 to Hooghly. In
November 1841, he was appointed Additional Principal Sadar Amin
of the 2^'Parganas, in 1844 was confirmed in that rank, and in 1847
was promoted to the i st grade. At the same time he was vested with
magisterial powers. His capacity for work was such that he con-
ducted the duties of both Magistrate and Civil Judge without arrears.
Lord W. Bentinck and Lord Auckland, as Governors of Bengal, gave
him their support. The District Judges as well as the Judges of the
Sadar Dewani Adalat recorded highly flattering opinions on his work
as a Judge. Hara Chandra helped the Sadar Court on several occa-
sions in revising its circular orders and bringing them more into
accord with the advancing times. When Lord Dalhousie proposed
the appointment of a Native to the Police Bench of Calcutta, the
Judges of the Sadar Court unanimously recommended Hara Chandra
Ghose for the post. When Lord Dalhousie asked him at a private
interview what his own feelings were in respect of the Police Magis-
tracy, he, referring to attacks in the Press, expressed some hesitation
as to accepting it. Lord Dalhousie is .said to have remarked : " Don't
mind newspapers. They abuse me every day ; am I therefore to be
deterred from doing my duty ? The cause of native progress is on
trial. You should show by your own example that your countrymen
were fit to hold high posts under Government side by side wth
Europeans."

On the 23rd February 1852, Hara Chandra Ghose was gazetted
Junior Magistrate of Calcutta, and in 1854 was appointed a Judge of
the Calcutta Small Cause Court. For 16 years he held these
important posts, ^ath credit to himself and benefit to the public, so
as to justify fully the choice of Lord Dalhousie. He was a man of
high principles. While at College, he avoided the follies of his
companions who came under the influence of the new civilisation.
" In after years," it is said of him, '' his character was distinguished by
the same austere virtues, the same simplicity and innate modesty.
Utterly guileless and truthful, honest and conscientious to a degree,
he was indeed a model man." He established a school at Bankura,
and another at his native village of Behala. He was a member of

PIARI CHAND MITRA. 1073

the Bethune School Committee, and took an active part in the move-
ment to commemorate the services of David Hare to the cause of
English education in Bengal. After the death of Hara Chandra
Ghose, a memorial meeting was held in the Town Hall on the 4th
January 1869, at which several of the High Court Judges and
members of the Services were present as well as the leaders of Native
Society. Mr. Justice Norman, as Chairman, in the course of his
address, said of Hara Chandra : '* He always appeared to me the very
model of what a native gentleman should be, courteous and gentle in
manner, simple, modest and unassuming, without a particle of conceit
or affectation about him." Again, '* there may be more brilliant
men, but it would be difficult to find a better man."

A marble bust of him was placed in the main entrance of the
Calcutta Small Cause Court, where he had worked for 14 years.
When it was unveiled by Mr. Justice A. G. Macpherson on 6th March
1876, it was hailed as an excellent likeness of one who for 36 years
was an ornament of the Native Judicial Service.

BABU PIARI CHAND MITRA.

When Piari Chand Mitra died in November 1883 at the age of
69, the Hindu Patriot wrote : — " In him the country loses a literary
veteran, a devoted worker, a distinguished author, a clever wit,
an earnest patrot, and an enthusiastic spiritual enquirer." He
belonged to the band of zealous social reformers who derived their
inspiration from Derozio, of the old Hindu College. He preferred
commerce to Government service, but he was for a long time Secre*
tary to the Public Library, which gave him ample opportunities for
the cultivation of literature. From his early youth he had a taste
for Bengali and for letters, and was connected with the Press, con-
tributing to the Gnananesan, the Bengal Spectator, the Bengal
Harkaru, the Englishman, the Indian Field, the Patriot and the
Calcutta Review.

He was the first Secretary to the British Indian Society, the first
Secretary to the Bethune Society, and the founder of the Hare
Anniversary, which was held every year on the ist June for the space
of forty years. He was one of the foundation members of the
British Indian Association and used to take an active part in its
affairs. He was also a member of the Agri-Horticultural Society,

1074 PIARI GHAND MITRA.

worked hard in its interests and issued some useful publicalions.
He was a member of the School Book Society and Vernacular Litera-
ture Committee, a Fellow of the Calcutta University, a Justice of the
Peace, and Honorary Magistrate for Calcutta. In 1868, he was
appointed a Member of the Bengal Legislative Council and helped
in passing the Act for the prevention of cruelty to animals. On the
establishment of the Society for this purpose he was its first Secre-
tary and then one of its Vice-Presidents. He was a member of the
Calcutta Corporation under the Act of 1 863, and also for many yeass
an active member of the District Charitable Society. Though not
a registered Brahmo, he fraternised with the leaders of the Brahmo
Samaj. In advanced years he became first a spiritualist and later a
Theosophist. He wrote both in English and in Bengali on the
subject of spiritualism. He was one of the founders of the Theoso-
phic Society of Calcutta. These facts testify to the wide range of
his powers.

When Miss Mary Carpenter visited Calcutta in the sixties, Piari
Chand had a prominent place in her Committee for the improvement
of Female Education. He had already made a name by publishing,
for the benefit of Bengali ladies, the Ramaranjika^ which gives
examples drawn from the lives of eminent English women as well as
biographical sketches of distinguished Hindu women, derived from
history and tradition. Another work, the Abhediy is a spiritual novel
in which the hero and the heroine seek after the knowledge of the
soul and obtain " spiritual light by the education of pain." The
Adhyattika^ another Bengali work, deals with the conversation of
different classes of the people ; he pointed out in a humorous way
the evils of drinking. His life of David Hare in English and Bengali
was much praised at the time, but his *' Alaltr Gharer Dulal'' or
'* the spoiled child,'' surpassed all his other works in literary power
and sense of humour. A good judge called it " the best novel in
the language." A Calcuiia Reviewer said that he wrote the work
'* in a spirit at which the Sanskritists stood aghast and shook their
heads. Going to the opposite extreme in point of style, he vigorously
excluded from his works, except on very rare occasions, every word
and phrase that had a learned appearance/* The result is that the
book is now rarely read, except by the curious. It has been translated
into English and also dramatised. His life was one of continued

ItlSORI GttAlfl) MITRA. 1075

literary activity and public usefulness. In manners a gentleman, in
spirit truly cosmopolitan, his death in 1883 was mourned by a large
circle of friends and admirers. He contributed to spiritualist jour-
nals in England and America and his '' Spiritual Stray Leaves '*
shows large research and profundity of thought.

BABU KISORI CHAND MITRA.

KisoRi Chand Mitra was born in May iSaa, attended his brother
Piari Chand Mitra's English School, the Hare School and the Hindu
College : in the last he was a favourite of Captain D. L. Richardson
for his literary aptitude. He was for a time an honorary teacher in
Dr. Duff's School and studied English classics under his direction.
Subsequently he served in the office of the Legal Remembrancer and
in 1844 was appointed Assistant Secretary to the Asiatic Society.
He contributed largely to the Bengal Spectator, the Bengal Harkaru
and the Calcutta Review^ and gained thereby considerable reputation.
His article on Raja Ram Mohan Ray in the Calcutta Review
attracted the favourable notice of Sir F. Halliday, then Secretary to
the Government of Bengal, who called upon Kisori Chand and
conferred upon him in 1846 a Deputy Magistracy at Rajshahi.
There he acquired a reputation by inducing the zamindars and other
wealthy people to found schools and dispensaries and to construct
roads and dig tanks.

When Babu Hara Chandra Ghose was promoted from the Calcutta
Police Bench to the Court of Small Causes, his patron, Sir F.
Halliday, then Lieutenant-Governor of Bengal, conferred upon Kisori
Chand the post of Junior Magistrate. For some years he occupied the
Bench with credit to himself ; but he lost his appointment in conse-
quence of circumstances brought to light by Mr. S. Wauchope, b. c. s.
then head of the Calcutta Police. Many men would have succumbed
to the blow but Kisori Chand was not a man to sit idle and do
nothing. He soon devoted his versatile talents to literature and
politics. He assumed charge of the Indian Field newspaper
(which had been founded by Mr. James Hume, Senior Police Magis-
trate of Calcutta), and conducted it for several years with considerable
ability, when his failing health led him to*give it up and incorporate
it with the Hindu Patriot, In 1859 he joined the British Indian
-Association and soon became one of its leading members. After his

10^6 KISORI GRAND MITRA.

death the Association recorded a Resolution in recognition of his
services to that body and the country.

Possessed of rich stores of knowledge of western literature and
master of a good English style^ he was reckoned as one of the best
English writers among his countrymen. He tried different classes
of subjects, — Biography, Theology, Law, Politics, Sociology, Agricul-
ture. The pages of the CalcuUa Review contained his essays
on Hindu women, phases of Hinduism, Orissa, past and present.
Agriculture and agricultural exhibitions in Bengal, Ram Mohan Ray,
Radha Kanta Deb, the Burdwan Raj, the Nadia Raj, Rajas of
Rajshahi, the Kasimbazar Raj. He lectured on Mati Lai Seal, on
Dwarka Nath Tagore, on the Hindu College and its founder, on
Chaitanya, on the lessons of the famine of 1866, on the progress of
education in Bengal and other subjects of interest. His addresses
at various public meetings were noted for their ability and fearless
independence of spirit.

Though not a registered Brahmo he supported the teachings of
Raja Ram Mohan Ray in his reviews and lectures. While he was a
Police Magistrate he initiated a Social Reform Association, through
which he advocated the remarriage of Hindu widows, the education of
females and the abolition of Kulin polygamy among the Brahmins and
Kayasthas of Bengal. In his youth he had established at his own home
a society called the theo-philanthropic society wliich was attended by
those among his contemporaries who were advocates of reform. He
took a lively interest in agriculture and horticulture and delighted in
flowers. He was an agreeable companion, but in the matter of living
he failed to follow in the footsteps of his elder brother or Bibu
Hara Chandra Ghose. The Hindu Patriot of the nth August
1873, said, ''one thing, however, must be said of him — ^that what-
ever his faults he injured only himself and nobody else. As an
accomplished writer, a fearless advocate of his country's interests,
and a zealous worker, he has left a void, which, we fear, cannot be
easily filled up.''

He died on the 6th August 1873. A biographer thus contrasts
the two brothers : — " Both were reformers. But while the elder
brother inculcated enlightened precepts by gentle means, the younger
shocked the feelings of the majority of the people by doing violence
to their time-honoured customs. While the one reads and respects

J J

RAI BANKIM CHANDRA CHATTBRJI. 1077

•

our Sasiras and takes pleasure in making allusions to them in his
writings and his conversation, the other did not think it worth his while

to go through them^ simply from a feeling of supreme contempt

The one is a thorough spiritualist, the other was to all intents and
purposes a sturdy materialist, probably an honest Epicurean."

RAI BANKIM CHANDRA CHATTERJI BAHADUR, b.a., b.l.

C. I. E.

Among Bengali authors no one held a higher place in his own
line than the late Bankim Chandra Chatterji. He was bom on
27th June 1838 at Kantalpara in the t^-Parganas. His father, Jadab
Chandra, was a Deputy Magistrate who enjoyed his pension for
33 years. His abilities were noticed at his first village school, and at
the Midnapore English school which he attended from 1846 to 185 1.
He then studied at the Hooghly College till 1856, when he joined the
Presidency College with a senior scholarship and became a member,
of the most intellectual coterie. In 1858, he was the first Indian to
take the degree of B. A. and the Government of Sir F. Halliday at
once appointed him to be a Deputy Magistrate in recognition of his
talents. By 1885 he had risen to the first grade in the Subordinate
Executive (now the Provincial) Service, and for some time acted as an
Assistant Secretary to the Government of Bengal. He rendered good
service in a number of districts and also acted as Personal Assistant
to the Commissioners of the Rajshahi and Burdwan Divisions. In June
1867, he was Secretary to a Commission appointed by Government
for the revision of the salaries of ministerial officers. While in charge
of the Khulna sub-division (now a district) he helped very largely in
suppressing river dacoUies and establishing peace and order in the
eastern canals.

But it was not for his services as a prominent member of the
Provincial* Service that Bankim Chandra is to be remembered. The
titles conferred upon him were gained rather by his reputation
in the world of letters than in the public service. While still at
College he competed for a prize poem and though unsuccessful was
honourably mentioned : at the same time he took a prominent part
in the Students' Debating Club. When about 1 5 years of age he
began to study Sanskrit Literature and rapidly learnt enough to be
able to criticise the works of Sanskrit authors.

1078 RA^A SATTA CHARAK 6H0SAL.

While at Khulna, Bankim Chandra began a serial stocy
named '' Rajmohan*s wife *' in the Indian Field newspaper, then
edited by Kisori Chand Mitra. This was his first public literary
effort. Durgesnandini was his first attempt at Bengali novel-
writing ; its heroine was modelled upon one gf Sir Walter Scott's,
and the work was highly appreciated by the Hindu community.
Kapalkundala, MrinalinU Biihabfiksha and other novels followed ia
rapid succession. About 1873 he started the Bangadarsan^ a monthly
periodical devoted to criticism and original stories or essays. The
journal gave a fresh start to higher criticism, but he discontinued it
in 1878, owing to pressure of official duties.

A list of his other principal works is as follows— «i. Krishna
Kania^s will : 2. Krishna Charita : 3. Chandrasekhar : 4. Debt
Chaudhurani: 5. Ananda Math : 6. Sita Ram: 7. Raj Sinhm:
8. Raj ant.

The vividness and reality of his characters has been specially
noticed. A critic writes that '* the realism of his Raj Sinha stands
quite unrivalled." Several of the novels have been dramatised and
placed upon the stage : their popularity is said to continue undimi-
nished.

Bankim Chandra retired from Government service in 1891 and
died on 8th April 1894.

RAJA SATYA CHARAN GHOSAL BAHADUR, OF

BHUKAILAS.

Satya Charan Ghosal was the fifth in descent from Kandarpa
Ghosal, who removed to Kidderpore when the village of Gar
Govindapur, in which he had resided, was taken up as a ske for the
construction of Fort William. Kandarpa had two scms^ Krishna
Chandra and Gokul Chandra. The latter was Dewan to Mr. Verelst,
Governor of Bengal, and made a large fortune. On ther death of
Gokul his nephew Jay Narayan, the only son of Krishna Chandra,
inherited his property.

Jay Narayan was a Kanungo in Sandip. He settled in Bhukailas
near Kidderpore and founded temples there. He received the
title of Maharaja Bahadur from the Emperor of Delhi, with the
privilege to maintain 3,500 sawars. He founded the Jay Narayan
College at Benares at a heavy cost and handed it over to the naia-

RAJA PRATAP CHANDRA SINGH. 1079

sionaries with an endowment for its support. He was a Bengali
poet of no mean calibre. Jay Narayan's only son. Kali Sankar,
received the title of Raja Bahadur from the Government. of India,
in recognition of his valuable services, public charities, and general
benevolence. Kali Sankar established the Benares Asylum for the
blind, where they receive food and raiment free.

Satya Charan was the fourth among the seven sons of Kali
Sankar. He received from the Governor-General the title of Raja
Bahadur after the death of his elder brothers, and maintained the dig-
nity of the family by contributing libera) donations towards the con-
struction of public works and to public and private charities. He was
a foundation member and Secretary of the British Indian Association.
He died in 1856. His eldest son, Kumar Satya Nanda Ghosal,
was made a Raja Bahadur on the 30th September 1869 and became
a Member of the Bengal Legislative Council. The Bhukailas family
own large zamindaris in Tippera, Noakhali, Backergunge, Dacca and
the 24'PargaHaSj and pay about i^ lakhs of rupees to Government
as land revenue.

RAJA PRATAP CHANDRA SINGH BAHADUR.
The brothers. Raja Pratap Chandra Singh and Raja Isvar Chandra
Singh, of Paikpara near Calcutta, occupied a conspicuous position in
Calcutta in the fifties and sixties : there was no public movement in
which they did not actively participate. The original seat of the
family was at Kandi in the Murshidabad district. Its founder was
Hara Krishna Singh, who acquired considerable wealth under the
Muhammadan rule. His great grandson was Ganga Gobind Singh,
who was Dewan to the East India Company in the time of Warren
Hastings. His celebration of his mother's sradk at an unprecedented
cost of several lakhs of rupees is remembered to this day. His des-
cendants, down to Dewan Sri Narayan Singh, were all men noted for
their liberality and piety. Sri Narayan, not having any male issue,
adopted the brothers Pratap Chandra and Isvar Chandra. Of these,
the former was a foundation member and a Vice-President of the
British Indian Association. They both received the title of Raja
Bahadur from the Governor-General for their handsome donations to
the Medical College Hospital and other charitable institutions, and
for taking an active part in the improvement of their countrymen.

1080 REVD. LAL BVHARI :DB.

Pratap Chandra was also made a C. S. I. They contributed about
Rs., 25, 000 to the fund for promoting the re-marriage of Hindu
widows under the permissive Act of 1856, and established the High
English School at Kandi on a liberal scale. This institution still
exists and has proved most beneficial to the neighbourhood.

Raja Isvar Chandra Singh had a marked taste for music. The
brothers, with the co-operation of Maharaja Sir Jotindra Mohan
Tagore and other men of culture, established the Belgachia theatre
for native theatrical performances : and there were performed the
dramas of Michael Madhu Sudan Dutt, as is narrated in the notice of
his life. The two Rajas also performed many acts of public bene-
ficence, of which no list is forthcoming.

Raja Pratap Chandra Singh Bahadur died in 1868 ; his eldest son
Giris Chandra died in 1877, and left by his will the sum of Rs., 1,15,000
for the endowment of a hospital at Kandi. Raja Isvar Chandra
Singh Bahadur died six years before his elder brother. His only son
was the late Kumar Indra Chandra Singh. The later generations
have not made the same good use of their wealth as the brother
Rajas.

THE REVD. LAL BEHARI DE.

Lal Behari De was bom at the village of Patasi near Burdwan in
1826. He received his education at the General Assembly's Institu-
tion in Calcutta, under the guidance of the Revd. Dr. Alexander
Duff and for three years stood at the head of his class, winning a gold
medal each year. In 1843 ^^ ^'^s converted to Christianity and for
six years studied theological subjects. In 185 1, he was authorised to
preach and in 1855 took holy orders. He worked at Kalna in the
Burdwan district until, in i860, he received the charge of a Church
in Calcutta. At this time he carried on a discussion against the
preaching of Keshab Chandra Sen under the name of ** Antidote to
Brahmoism." Before this he had written a Bengali pamphlet against
Vedantism. For two years he conducted a Bengali journal named
Arunoday, with the view of diffusing Christianity. In i860 he started
the Indian Reformer and later the Friday Review, which he con-
ducted with much ability. His English style was praised as almost
fauldess.

In 1867, he gave up preaching and entered the Bengal Education

RAJA SIR SOURINDRO MOHAN TAGORE. 1081

Department; his salary at the time of his retirement had risen
to Rs. I, GOG a month. He retired from the service of Govern-
ment in his 63rd year and died in the course of three or four
years.

His novel Gohinda Samanta furnishes pictures of peasant life in
Bengal, which have been favourably noticed by critics both in India
and in England for their accuracy and power. His book on Primary
Education strongly advocated its extension and improvement, and
his " Literary beauties of the Bible " was considered very creditable
to the author.

RAJA SIR SOURINDRO MOHAN TAGORE, Kt., c. i. k.

(Mus. Doc. Oxon).

SouRiNDRo Mohan is the youngest and only brother of Maharaja
Sir Jotindro Mohan Tagore and inherited half the property of his
father Hara Kumar Tagore. He has acquired a world-wide reputa-
tion as the reviver, interpreter and improver of ancient Indian Music,
and has received from numerous Governments and learned Societies
in civilised countries various marks of appreciation. Born in 1840,
he entered the Hindu College at the age of 9 years and left it
when 18 on the score of ill-health. When 14 years old he wrote
a small work on history and geography and published it in 1857,
and a year later he brought out a small drama called Muktdbalu
As a student he was fond of Bengali composition. From 13 to
19 he studied Sanskrit. With the permission of his elder brother
he began the study of music at the age of 16 when his father died.
Professors Kshetra Mohan Goswami and Lakshmi Prosad Misra
were his masters. At the age of 18 he acquired a knowledge of
English Music with the help of a Gerinan Tutor, and the
Revd. Father Lafont, S. J. instructed him in the principles of the
science.

He established in 1871 the Bengal Music School in the Chitpore
Road in Calcutta and maintains it to this day. A Branch Institution
opened at Colutola was maintained by him for some years. He
also founded in 1881 the Bengal Academy of Music. He has
published a number of important works connected with music, and
helped other students in bringing out books on the subject. While

1082 RAJA SIR 80URIDRA MOHAN TAGORB.

devoting his attention to music, he translated into Bengali " the
Maldbik-agnimitra " of Kalidas.

He collected a large number of books on music, ancient and
modern, Asiatic and European, and published his Sangiisarj a work
on the Theory of Music, and a long series of treatises on music His
'' y antra Kosha " contains a full account in Bengali of the constnic>
tion of the musical instiuments of various countries in ancient and
modern times. The Raja contributed for some time a liberal monthlj
stipend for the maintenance of a teacher of music at the Calcutta
Normal School. He supplies music masters and musical books to
numerous public and private schools at .his own cost, and encourages
Professors of Music by pecuniary and other help. The degree of
Doctor of Music was conferred on him in April 1875 by the Univer-
sity of Philadelphia, which was recognised by Government on the
recommendation of the late Mr. H. Woodrow, then Director of
Public Instruction. In November 1896, the University of Oxford
conferred on him also the degree of Doctor of Music t'n dbsmtid^ —
a rare honour. He was granted a similar degree by the University
of Utrecht ; also the title of " Master of Music " by his Majesty,
the King of Portugal.

On 1st January 1880, Sourindro Mohan Tagore was made a
C. I. E. and on the 3rd February following the title of Raja was
conferred on him for his researches and accomplishments by Ix>rd
Lytton, whose cordial congratulations he received on both these
occasions.

The Raja published an English translation of the SansMt drama
Vtni Samhara^ and Rome Kavya, a metrical history of the immortal
city from its foundation to the present day. in Sanskrit, and the
Manimalay a learned work on gems, compiled from Asiatic as well
as European sources, and full of curious practical information.
The list of the Raja's works includes more than 60 names. The
Raja is an Honorary Magistrate and Justice of the Peace for the
town of Calcutta and a Fellow of the University of Calcutta. He
has been granted titles of honour by most of the Sovereigns of the
continent of Europe, including membership of different Orders of
Knighthood. He is also a '' Knight '' of the United Knigdom of
Great Britain and Ireland. He received from the Hindu ruler of
Nepal the title of '' Sangii Nayaka'' — the highest accorded to a

RAJA SIR SOURINDRO MOHAN TAGORE. 1083

Hindu musician by the Hindu Sastras. The Shah of Persia conferred
on him the hereditary title of Nawab Shahzada, so that he is the
first and only Native of India who holds simultaneously the titles
of Raja and Nawab Shahzada. Thus, in respect of Indian music.
Raja Sourindro Mohan Tagore holds admittedly the first place,
while his literary compositions would otherwise have entitled him
to distinction.

APPENDIX III

JUDGES OF THE SUPREME
COURT OF JUDICATURE,
SINCE 1854.
Chief Justices,
The Hon'ble—
Sir Lawrence Peel, 1854-55.
Sir James W. Colvile, 1855—59.
Sir Arthur W. Buller, (offg.) 1855.
Sir Charles R. M. Jackson, (offg.)

1859.
Sir Barnes Peacock, 1859—62.

Puisne Judges,

The Hon'ble—

Sir J. W. Colvile, 1854.55.

Sir A. W. Buller, 1854—59.

Sir C. R. M. Jackson, 1855—62.

Sir Mordaunt L. Wells, 1859—62.

JUDGES OF THE SADAR
DEWANI AND NIZAMAT
ADALAT,
SINCE 1854.
The Hon'ble—
A. Dick, 1854—56.
Sir R. Barlow, Bart^ 1854 — 56.

A. J. M. Mills, 1854.
H. T. Raikes, 1854—62.
G. Plowden, 1854.
J. H. Patton, 1854—60.
J. Dunbar, 1854.

B. J. Colvin, 1854—59.
A. Sconce, 1856 — 59.
H. C. Metcalfe, 1856.
J. S. Torrens, 1856 — 6a

C. B. Trevor, 1856, 1859—62.
£. A. Samuells, 1856, 1859—61.

D. J. Money, 1856.

G. Loch, 1856, 1859—62.

H. V. Bayley, 1^56, 1860—62.

C. Steer, 1860—^2.

F. B. Kemp, 1861—62.

W. S. Seto'n-Karr, 1862.

Sir L. S. Jackson, CLE. 1862.

CHIEF JUSTICES AND PUISNE JUDGES OF THE
HIGH COURT, FROM 1ST. July 1862.

Chief Justices.

Barristers-at'Law.

The Hon'ble—

Sir B. Peacock, 1862— 7a

J. B. Norman, (offg.) 1864—65,

1870—71.
Sir R. Couch, 1870—75.
Sir A. G. Macpherson, (offg.) k.ci.e.,

1875.
Sir R. Garth, Q. C. 1875—86.
Sir W. C. Pethcram, Q. C. 1886—96.
Sir F. H. Maclean, Q. C. k.ci.e.,

1896—

Members of the Covenanted Cfi'il

Service.
The Hon^le-
C. B. Trevor, (offg.) 1865.
F. B. Kemp, (offg) 1871.
Sir L. S. Jackson, CLE., (offg) 1878.

Pleader of the High Court.

The Hon'ble—

Sir Romesh Chandra Mitter, (offg.)
1882.

PUISNE JUDOBS.

1085

PUISNE JUDGES.

Barrisiers-aUlaw,

The Hon'ble—

Sir C R. M. Jackson, 1862-63.

Sir M. L. Wells, 1862-63.

J. P. Norman, 1862—71.

Sir W. Morgan, 1862—66.

H. Mills Q. C. 1864.

A. T. T. Peterson, (offg.) 1864-65.

Sir J. B. Phear, 1864—76.

Sir A. G. Macpherson, k.ci.e.,

1864—77.
Sir W. Markby, K.Ci.E., 1866—78.
Sir G. C. Paul, K.C.i.E., (offg.)

1870-71.

Sir C. Pontifex, K.C.I.E., 1872—82.
Sir H. S. Cunningham, k.ci.e.,

1877-88.
J. S. White, 1876-82.
J. Pitt- Kennedy (offg.) 1877.
Sir A. Wilson, K.C.I.E., 1878—92.
L. P. D. Broughton, (offg.)

1878—82.
J. Q. Pigot, 1882—96.
J. F. Norris, Q. C. 1882—95.
C. J. Wilkinson (offg.) 1883-84.
E. J. Trevelyan, 1885—98.
Sir W. F. Agnew (offg.) 1885-86.
C. H. Hill,' 1889-
Ameer Ali, ci.e. 1890—
S. G. Sale, 1893—
Sir L. H. Jenkins, 1896—99.
P. O^Kinealy, (offg.) 1898.
G. S. Henderson, (offg) 1898.

Members of the Coi/enattfed CM I

Service,

The Hon'ble—

H. T. Raikes, 1862—64.

C. B. Trevor, 1862 — 67.

G. Loch, 1862—73.

H. V. Bayley, 1862—73.

C. Steer, 1862 — 65.

F. B. Kemp, 1862—78.

W. S. Seton-Karr, 1862-68.

Sir L. S. Jackson, ci.e., r862 — 80.

E. de Lautour, 1862.

Sir G. Campbell K.cs 1 , 1862—67.

E. P. Levinge, 1863—65.

A. A. Roberts (offg.) 1863.

E. Jackson, 1863-73.
R. J. Scott, 1864.

F. A. B. Glover, 1864 — 76.

Sir C. P. Hobhouse, Barf^ 1864. ;

1867—71.
W. Ainslie, 1870—80.
E. G. Birch, 1873—79.

G. G. Morris, 1873 — 82.

W. F. McDonell V. C. 1874-86.

Sir H. T. Prinsep Kt., 1877 —

H. B. Lawford (offg.) 1875, 1877.

L. R. Tottenham, 1878 — 93.

A. T. Maclean, 1878—85.

C. D. Field, 1880—86.

J. O'Kinealy, 1882—99.

Sir W. Macpherson, 1882 — 1900.

H. Beverley, 1884—97.

J. P. Grant (offg.) 1885-86.

G. E. Porter, (offg.) 1886.

R. F. Rampini, 1888—

H. W. Gordon, (offg.) 1888— 1897.

J. F. Stevens, 1895 —

C. A. Wilkins, 1897— 1900.

xom

FUNNR J(fMU«

Pleaders of the High Court,
The Hon'ble—

Shambhii Nath Pandit, 1863—67.
Dwarka Nath Mitter, 1867—74-
Anocool Chandra Mukerji, (oflfe.)

1870-71,
Sir Romesh Chandra Mitter, K.C i.e.,

1874—90.
Mohendra Nath Bose, (offg.) 1882.
Chunder Madhub Ghosc, 1885 —
Dr. Gooroo Dass Banerji, 1888 —

BOAKD OF REVENUE,

Members.
G. Plowden, 1854.
E. Currie, 1854—55.
J. Dunbar, 1854—56.
Sir H. Ricketts, K.c.s.l., 1854—58.
W. Dampier, 1855—60.
W. J. Allen, 1856, 58—65.
H. Stainforth, 1856, 57—62.
A. Grote, 1859, 60, 61—68.
H. D H. Fergusson, 1862

E. T. Trevor, 1 862, 63—68.
G. P. Cockburn, 1865—66.
R. N. Shore, 1865.

V. H. Schalch, c.s.l., 1866, 67, 68,

69 — ^^,
C. H. Campbell, 1868, 69.
Sir A. Money, k.cm.o., c.b., 1868,

69-77.
C. T. Buckland, 1870, 77, 78—81.
H. L. Dampier, c.i.K., 1873, 74» 75*

77—84.
T. E. Ravenshaw, 1877.
Lord H. U. Browne, 1878.
R. L. Mangles, vc. 1879, 81-82.
H. J. Reynolds, cs.i., 1880, 8f, 82,

83, 84-89.
H. A. Cockerell, cs.l., 1882, 83—87.

F. M. Halliday, 1884, 86, 87, 88—91.

LOWER PROVINCES.

Secretafies,
C. H. Lushington, 1854.
A. Grote, 1854—57.
A. R. Young, 1854—57.
H. V. Bayley, 1855—56.
S. VVauchope, c.b.,- 1856.

C. S. Belli, 1856—57.

E. T, Trevor, 1856, 57—61.
Sir W. Grey, K,c.s.i., 1857—58.

E. H. Lushington, 1857^61.

The Hon'ble Sir A, Eden, K.c.s.U,

1859, 60^ 61-62.
Sir A. R. Thompson, K.C.S.I., ci.E.,

1859^ 61.
H. L. Dampier, c.i.E., 1860^61 — 63.
Sir W. J. Herschel, Barty 1862.
J. P. Grant, 1863.
R. B. Chapman, C.S.I., 1863 — 67.
T. B. Lane, 1863—77.
Sir H. T. Prinsep, Kt. 1864.
R. L. Mangles, v.c, 1866, 67, 68, 69,

70, 71.
J. Monro, C.B., 1868, 69.
Sir H. L. Harrison, Kt., 1868, 71,

72, 78—80.

F. B. Peacock, cs.i., 1870, 71, 72,
H. Beverley, 1870.

D. J. McNcile, 1870, 71, 72,73> 74-

BOABB OV MVBMTTB, t.P.

1087

Members,

F. B. Peacock, c.s.i., 1884, 85,

88 — 90.
John Beames, 1887, 89.
Sir H. L. Harrison, Kt. 1890,91-92.
A« Smith, 1 891.
Sir C. C. Stevens, K.c.s.1., 1892,

93—98-
W. Kcmble, 1892.

D. R. Lyall, c.s.i., 1892, 93—96.

E. V. Westmacott, 1894.

G. Toynbee, 1896, 97—98.
W. B. Oldham, c.i.E., 1898.

Secretaries,
T. Walton, 1872.
H. S. Beadon, 1873.
J. Geoghegan, 1873, 74, 75,
H. J. Reynolds, C.S.I., 1874.
T. J. C. Grant, 1874.
J. F. K. Hewitt, 1874.
G. Toynbee, 1874-75.
W. H. Grimley, 1874, 75, 76, 77-79,

1883, 84.
Sir A. Mackenzie, K.cs.i., 1875, 76, 77'
R. H. Wilson, 1877, 78, 79, 80.
J. F. Bradbury, 1878.
C, P. L. Macaulay, ci.K., 1879-80.
E. E. Lowis, 1879.
P. Nolan, 1879, 1885.
W. D. Blyth, 1 879.
A. Forbes, c.s.i., 1880, 81, 82—83.
H. J, S. Cotton, C.S.I., 1880, 81—88.
Sir C. C. Stevens, K.c.s.i., 1882.
C. E. Buckland, c.i.«., 1882, 83, 84,

. 85,86,87—91.
C. A. Samuells, 1885-86.
Krishna Gobind Gupta 1887, 88, 89,

90-91.
L. P. Shirres, 1889, 93.
C. W. BoUon, C.S.I., 1889—90,
1891—94.

E. R. Henry, cs.i., 1890, 91.
T. Inglis, 1891, 92—94.

J. A. Bourdillon, c.s.i., 1892.

M. Finucane, cs.i., 1893, 94, 95, 96.

F. A. Slacke, 1893, 96-97.
Nanda Krishna Bose, 1894, 95.
E. H. C. Walsh, 1895, 96, 97.
C R. Marriott, 1897-98.

E. W. Collin, 1895, 97» 98-
H. Luson, 1897.
E. V. Levinge, 1898.

1088

THE . GOVBRNHfiNT OP BENGAL.

THE GOVERNMENT OF BENGAL.

Socretarie«.

Sir W. Grey, K.c.s.1,

1854—57.
A. R. Young, 1857—60

E. H. Lushinglon,
1859, 60, 61—63.

Sir A. Money k.c.m.g.

.C.B., i860.
W. S. Seton-Karr,

1860-61.
The Hon'ble Sir A.

Eden, K.c.s.i., 1862,

63—71.

F. R. Cockerell,i863,64

H. L. Dampier, c.i.E.,

1867, 68—77.
Sir S. C. Bayley,

K.c.s.1., CLE., 1865.
67,68, 71.77.

Sir A. R. Thompson,
K.cs.i , C.I.E. 1869,

70,71,72,73—75.
Sir C. E. Bernard,

K.C.S.I., 1 87 1, 72, 73>

74, 75-
Sir A. Mackenzie,

K.C.S.I., 1872, 73i n^

—82.

H. J. Reynolds, C.S.I.,

1874, 75. 76, 77—84.
R. L. Mangles, v.c,

1875, 76, ii^

H. A. Cockerell, c.s.i.,

1877, 78—82.

Sir D. M. Barbour,

K.C.S.I., K.C.M.G.,

1878, 79, 82.

Sir H. L. Harrison, Kt.,

1879, 80.

Junior Seoretaries.

C. T. Buckland, 1856 —

59.
Sir A. R. Thompson,

K.c S.I., C.I.E., 1859 —

61.
J. D. Gordon, c.S.i.,

1861-62.
H. Bell, 1862, 63.
Sir S. C. Bayley, K.c.s.1.,

C.I.E., 1862, 63—66,

67. .
J. Geoghegan, 1 865, 66.
Sir H. L. Harrison, Kt.

1867-- 71.
Sir A. Mackenzie,

K.C.S.I., 1868, 69, 70,

7'— 73-
Sir J. Westland, K.c s.i.,

1869.
T. Walton, 1872.
Sir J. W. Edgar, K.C.I.E.,

C.S.I.. 1872, 73-
J. F. K. Hewitt, 1874.
H. J. S. Cotton, C.S.I ,

1874, 7 Si 76-77.
C. £. Buckland, d.E.,

1875.
C. P. L. Macaulay,

C.I.E.,. 1877.

Asaistaiit Secretaries.

Thomas Jones, 1867 —

72.
W.H.Ryland, 1869,70,

71.
R. Knight, 1873, 75-
H. J. S. Cotton, C.S.I.,

»873» 75-

Under Secretaries.

W. G. Youngy 1854.
W. S. Seton Karr, 1854.
A. W. Russell, 1854 —

56.
H. Pratt, 1854-55.
G. G. Morris, 1855-56.
Lord, H. U. Browne,

1 859- 6a
H. Bell, 1860-62.
J. Monro, C. B. 1861.
J P. H. Ward, 1862.
J. Geoghegan, 1862-66.
H. Beverley, 1865, 67.
Sir A. Mackenzie,

K.C.S.I., 1866 — 68.
P. D.Dickens, 1868, 69.
H. S. Beadon, 1869, 70,

71.
W. M. Souttar, 187CX
J. G. Charles, 1870.
R. H. Wilson, 1871, 72.
Sir T. J. C. Plowden,

K.C.S.I., 1872, 73.
H. J. S. Cotton, cs.i.,

1873.
L. C. Abbott, 1873, 74.

J. Crawford, 1873, 74,

75i 76-77.
H. Luttman Johnson,

1873.

C. E. Buckland, ci.E.,

1874.
C. P. L. Macaulay,
C.I.E., 1876, 77, 78

79.
H. H. Risley, C.I.E.,

1877-80.

THE GOVSRNMKNT OF BBNOAL.

1089

Secretaries. .

C. P. L. Macaulay,
C.I.E., 1879, 80, 81,
82 — 90.

H. M. Kisch, 1 88 1.

Sir A. P. MacDonnell,

G.C.S.I.. 1881, 82, 83,

84—86.
F. B. Peacock, cs.i.,

1882, 83—88.

Sir J. W. Edgar,

K.«C*I«£<*, C.S'I., Io04)

85, 86, 87, 88—92.
E. N. Baker, C.S.I.,

1884.
H. H. Risley, c.i.E.,

1885, 91, 92—98.
W. D. Blyth, 1886.
P. Nolan, 1886,87—91.
R. H. Wilson, 1886-87
W. C. Macpherson,

1887.
H. J. S. Cotton, C.S.I.,

1888, 89, 90—96.

C. E. Buckland, ci.E.,

1889, 90, 91—96.
Sir C. C. Stevens,

K.C.S.I., 1890.
W. Maude, 1892.
J. A. Bourdillon, cs.i.,

1892, 93, 94. 95-

M. Finucane, c.s.i.

1893, 96—98.

C, W. Bolton, C.S.I.,

1894, 96—98.

C. E. A. W. Oldham,
1897.

D. J. Macpherson,
C.I.E., 1898.

Ati8istant Secretaries.

G. Easton, 1875.

C. E. Buckland, Ci.E,

1876.77.
J. A. Bourdillon, C.S.I.,

1876.
H. H, Risley, ci.E.,

1876, f-].
H. Lee, 1876.
C. P. L. Macaulay,

C.I.E., 1877.
Rai Rajendra Nath

Mitra, Bahdur, 1877

—82.
Rai Hem Chunder

Ker, Bahadur, 1880.
Rai Bankim Chunder

Chatterji, Bahadur,

C.I.E., 1881.
W. D. Blyth, 1882.

Under Suuretarics.

H. M. Kisch, 1878, 79,

80—83.
C. W. Bolton, C.S.I.,

1879—84.
C. S. Bayley, 1881, 82,

83.
W. D. Blyth, 1881, 82

—86.
M. Finucane, c. s. i.,

1882.

E. N. Baker, c. s. i.,
1882, 83, 84, 85—87.

A. E. Staley, 1884, 85.
G. K. Lyon, 1885, 86

87. .

F. E. Pargiter, 1885.

W. C. Macpherson,

1885—88.
H. A. D. Phillips, 1886,

87.
H. W. C. Carnduff,

1887, 88—90.
L. P. Shirres, 1887, 88-

89.
C. Cuthbertson, 1888,

89,90.
R. W. Carlyle, 1888,

89, 90.
A. Earle, 1889.
W. Maude, 1888, 89,

90—92.
F. J. Monahan, 1889.
P. C. Lyon, 1890.
T. W. Richardson, 1890,

92, 93—95-
H. C. Streatfeild, 1890.

—93-
H. Luson, 1890, 91-92.
J. Windsor, 1891.
H. J. Mcintosh, 1892-93

1090 IHK GOVKRNJWNT OF BENGAL.

Sucretarieb. Uuder Secretarlct*.

N. Bonham-Carter,

i893»94-96.
E. V. Levinge, 1893 —

96.
C. H. Bompas, 1893.
J. G. Cumming, 1894.
J. Lang. 1894, 95,
I. H. Temple, 1894, 95.
W. Egerton, 1895—97.
C. E. A. W. Oidham,

189s— 98.
B. Foley, 1896—98.
E. M. Konstam, 1896 —
98.

APPENDIX IV.

THE COUNCIL OF THE LIEUTENANT-GOVERNOR OF

BENGAL FOR THE PURPOSE OF MAKING

LAWS AND REGULATIONS.

{Styled " HofibW'from 1872),

T. H. Cowie, Advocate- General, 1862, 64, 65, 68, 70.

A. R. Young, C.S., 1862.

H. D. H. Fergusson, C.s., 1862.

E. H. Lushington, c.s., 1862.

Babu Rama Persad Ray, 1862.

Maulvi Abdul Latif, Khan Bahadur, 1862, 70, 73.

J. N. Bullen, 1862.

W. Maitland, 1862.

A. T. T. Peterson, 1862, 64, 65.

Raja Pertab Chand Sing, 1862.

Babu Prosonno Kumar Tagore, cs.l., 1862, 66.

W. Moran, 1862.

W. S. Seton-Karr, c.s., 1862.

W. J. Allen, as., 1862.

¥HB BKNOAL LJfiOiBLATlVC COUNCIL. 1091

The Hon'ble (Sir) A. Eden, c s., K.c.s.1., 1862, 64, 66, 68 and 71*

Babo Ram Gopal Ghose, 1862.

C. H. Brown, 1863.

F. Jennings, 1863, ^^,

J. Graham, Acting Advocate- General, 1863, 65, 70, 71.

(Sir) C. P. Hobhouse, Bariy C.S., 1863.

F. R. Cockerell, C,s., 1863, 65, 67.

J. B. Barry, 1863.

Syed Azumuddin Hossein, Khan Bahadur, 1864.

Munshi (Nawab) Ainir AH, Khan Bahadur, 1864.

Raja Sutyo Shurn Ghosal, Bahadur, 1864.

E. T. Trevor, C.S., 1864, 67.

Babu (Raja) Digambar Mitter, 1864, 70, 73.
£. D. Kilburn, 1864.

F. A. Goodenough, 1865.

J. B. Knight, ci.Et, 1865, 78.

V. H. Schalch, cs., C.S.I., 1865, 67, lo^ 72, 74, 76.

J. Skinner, 1866.

(Sir) H. T. Prinsep, C.S., Kt., 1866, 77-

Kumar (Raja) Harendra Krishna, Rai Bahadur, 1866.

(Nawab Sir) Khaja Abdul Ghani, K.c.s i., 1866.

Babu (Raja) Rama Nath Tagore, c.s.i., 1866.

(Sir) S. S. Hogg, C.S., Kt. 1867, 74, 76.

(Sir) S. C. Bayley, c.s., K.C.S.I., 1867, 71, 77.

J. R. Bullen Smith, 1867.

H. L, Dampier, c.s., ci.E , 1867, 7 >> 73» 75, 79i 81, 83.

H. Knowles, 1867.

Babu Piari Chand Mittra, 1867.

T. Alcock, 1867.

(Sir) A. R. Thompson, cs., K.c.s.1., c.i.E., 1867, 70, 74

H. H. Sutherland, 1867.

Kumar Satyanund Ghosal, 1867.

Babu Issur Chandra Ghosal, 1868.

Babu Chandra Mohan Chatterji, 1868.

(Sir) A. Money, c.S., K C.M.G., C.B., 1869.

T. M. Robinson, 1870, 72.

F. F. Wyman, 1870, 72.

(Maharaja Sir) Jotendra Mohun Tagore, Bahadur, K.C.s.l., 1870, 73.

Babu Unocool Chunder Mookerjee, 1870.

T. H. Wordic, 1870.

(Sir) C. E. Bernard, cs., K.cs.1., 1871, 73.

B. D. Colvin, 1871, 73*

1092 THE BENGAL f^lsaiSLATlVK COUNCIL.

F. L. Beaufort, CS., 1872.

(Sir) G. C. Paul, Advocate-General, 1872, 75i 76, 79, S2, 83, 85, 87,

89, 93, 95, & 97.
Lord Ulick Browne, C.S., 1872.

T. W. Brookes, 1874, 76, 81.

Babu (Maharaja) Durga Churn Law, c lk., 1874.

Babu Jagadanund Mookerjee, 1874.

F. G. Eldridge, 1874.

Rai Bahadur Kristo Das Pal, C.I.E., 1875, 76, 78, 81.

Nawab Syed Ashlar Ali Diler Jung, cs.i , 1875.

H. J. Reynolds, cs., c.s.i., 1875, 77, 81, 83, 85, 87, 89.

H. Bell, C.S., 1875,

Rai Ram Sunker Sen Bahadur, 1876.

Maulvi (Nawab) Mir Mahomed Ali, 1876.

Rai Issur Chunder Mitter Bahadur, 1876.

W. Spink, 1876.

H. F. Brown, 1876.

T. E. Ravenshaw, c.s., 1877.

Raja Pramatha Nath Roy Bahadur of Dighapatia, 1877.

(Sir) A. Mackenzie, C.S., k.cs.l, 1877, 79.

Babu Mohini Mohan Ray, 1878.

Ameer Ali, C.I.E., 1878, 81,

J. O'Kinealy, C.s., 1878, 80.

C. T. Buckland, C.s., 1878.

A. B. Inglis, 1878.

H. A. Cockerell, c.s., c.s.i., 1878, 80, 82.

Maulvi (Nawab) Syed Amir Hossein, 1878, 95, 97.

J. D. Bell, Acting Advocate-General, 1879.

C. D. Field, C.S., L.L.D., 1879.

Babu (Raja) Peari Mohun Mookerjee, c.s.i., 1879

Maharaja Sir Lachmesvar Sing Bahadur K.ci.E., of Durbhunga,

1880, 93, 95, 97.

F. Prestage, 1880.

T. T. Allen, cs., 1881, 83, 86, 88, 90, 92.

(Sir) D. M. Barbour, c.s., K.C.S.I., k.c.m.g., 1882.

Babu Bhudeb Mookerjee, c I.E., 1882.

J. E. Caithness, 1882.

Maulvi Mohamed Yusuf, Khan Bahadnr. 1882, 95.

A. Phillips, Acting Advocate- General, 1882, 84.

Col. S. T. Trevor, r.e. 1882, 84.

C. P. L. Macaulay, cs., Ci.E. 1882, 84, 86, 88.

Harbuns Sahai, 1882.

THB BSNOAL LCOISLATIVB COUNCIL. 1093

Babu Chunder*Madhub*Ghose, 1885.

W. L. Alexander, 1883.

Kumar Boikuntonath De, 1883.

H. Beverley, cs., 1884.

A. B. Miller, 1884.

Maulvi Abdul Jubbur, Khan Bahadur, 1884, 86, 93.

Sir A. P. Mac Donnell, C. s., G. C. s. i., 1884.

Rai Joy Prokash Lall, Bahadur, 1884.

C. B. Garrett, C.S., 1884.
G. Irving, 1884, 86, 96,

Lalla (Raja) Ban Behari Kapur, 1^85.

D. Cruickshank, 1885.
Anundo Mohun Bose, 1885, 9$.

Sir H. L. Harrison, C. s. Kt., 1886, 88, 90.

Babu Kali Nath Mitter, CLE. 1886.

Sir A. W. Croft, K. C. i. E., 1887, 89, 91.

Dr. Mahendra Lai Sarcar, c. i. E., 1887, 89, 91, 93.

C. H. Moore, 1887, 89.

Dr. Gooroo Dass Banerji, 1887.

H. Pratt, 1 888.

Shahzada Mahomed Furrokh Shah, 1888, 90.

Dr. Rash Behary Ghose, 1888, 90.

Raja Rameshwar Sing Bahadur, 1888.

P. Nolan, c s., 1889.

F. B. Peacock, c. s., c. s i., 1889.

H. J. S. Cotton, c. s., c. s. i.; 1890, 92, 94.

A. H. Wallis, 1890, 92, 96.

Maharaja Sir Harendra Kishore Sing Bahadur, K. C. i. E. 1891.

J. T. Woodroflfe, Acting Advocate-General, 1892.

Babu Qonesh Chunder Chunder, 1892.

H. H. Risley, c. s., c i. £., 1892, 95, 97.

(Sir) J. Lambert, K. C. i. E., 1892, 94.

(Sir) P. Playfair, Kt, C. i. E., 1892, 93.

H. Lee, c. s., 1892.

Maulvi Syed Fazl Imam Khan Bahadur, 1892.

Maharaja (Sir) Ravaneshur Prosad Sing Bahadur of Gidhour, 1893, 95

D. R. Lyall, C. s., C. s. 1., 1893, 95*

J. A. Bourdillon, c s. c. s. i., 1893, 95.
Babu Surendra Nath Banerjee, 1893, 9S> 97*
Lai Mohan Ghose, 1893.
Maulvi Serajul Islam, Khan Bahadur, 1893.
W. C. Bonnerjee, 1893.

1094 TH« BENGAL LBOISLATIVK COUNCIL.

J. G. Womack, 1893, 95*

F. FL S. Collier, c. s., 1893.

C. E. Buckland, c. s., c. i. E, 1893, 95-

Maharaja Jagadindra Nath Roy of Natore, 1894, 97.

J. N. Stuart, 1894.

C. A. Wilkins, a S., 1894, 95, 96.

R. C. Dutt, c. s., CLE., 1895.

T. D. Beighton, c. s., 1895.

C. E. Smyth, 1895.

Sir Griffith Evans, K. c. i. E. Aoing Advocate-General, 1895

Rai Durga Gati Banerjea Bahadur' c. i. £., i695,*97.

Rai Eshan Chandra Mittra, Bahadur, 1899.

Babu Guru Prasad Sen, 1895.

W. B. Gladstone, 1896.

M. Finucane, c. s., a s. i., 1896, 98.

W. B. Gladstone, 1896.

Babu Madhu Suduan Das, 1696.

C. W. Bolton, c. s., c. s. i., 1896.

W. H. Grimley, c. s., 1896, 98.

J. Pratt, C s. 1896, 97.

J. G. H. Glass, c. i. e., 1896.

Sahibzada Mahomed Bakhtyar Shah, c. 1. £. 1897.

M. C. Turner, 1897.

Babu Norendra Nath Sen, 1897.

Babu Saltgram Singh, 1897.

Babu Kali Charan Baneijee, 1897.

G. Toynbee, C. S., 1897.
Babu Jatra Mohan Sen, 1898.

W. B. Oldham, C. s., c I. E., 1898.
R. B. Buckley, 1898.
T. W. Spink, 1898.

APPENDIX V-

Abkar

Amin

Amla

Atta

Bahadur

Barkandaz

Basti

Biali

Bigha

Bil

Chakaran

Chaklidar
Char
Charak Puja

Chaukidar

Cheena

Chittack

Chowdri

Dacoit

Dafadar

Dak

Dandpat

Darbar

Daroga

•••

Dasturi

• ••

Firman

• ••

Ghara

• • •

Ghat

• • •

Ghi

• ••

Gola

• ••

Gumashta

■«•

Guru

•••

GLOSSARY.

A manufacturer of spirituous liquors.

A revenue surveyor ; a land measurer.

Ministerial officers.

A coarse kind of flour.

A title of honour.

Lit. lightning thrower, a matchlock man : a guard.

An aggregate of huts : a locality inhabited by the
lower order of people.

A rice crop in Orissa, sown about May or June,
and reaped in October.

A measure of land, 1600 sq. yds. (in Bengal).

A swamp.

Service lands, Le. land given to Chaukidar$ in
lieu of wages.

Governor of a division of a country.

Alluviated land.

The Hindu swinging festival, which takes place in
April.

A village watchman.

An inferior sort of millet.

One-sixteenth of a seer \ two ounces.

Headman.

A robber.

A commandant, or head, of a number of persons.

Post.

Prostration, making obeisance.

A court : a ceremonial assembly for State pur-
poses.

The head officer of a Police, customs, or excise
station.

A customary allowance ; a commission.

A mandate : an order.

An earthen water-vessel.

A landing place ; a ferry ; a mountain pass.

Clarified butter.

A store-house.

An agent.

A teacher $ a spiritual guide.

1096

GLOSSARY.

Handia
Havildar

Ilakadar

Inamdar

Jagir

Jagirdar

Jama

Jamadar

Jot

Kabulyat

Kanungo

Karkach

Karpardaz

Khal

Kharif

Khas

Khidmatgar

Kila

Lathi

Lathial

Madrasa

Mahajan

Mahal

Maidan

Malik

Mamlatdari

Mandal

Manji

Masjid

Malikdar

Mufassal

Muharrir

Mukhtar

Mulla

Munjeet

Munsif

Nala

Nijabad

Fermented liquor produced from rice.
One holding any office of trust : a subordinate

officer.
Holder of a village, estate, or other landed

property.
Holder of a rent-free grant of land.
An assignment of land.
The holder of a jagir.
Rent.

A petty officer ; a head of the messengers &c.
A tenure or holding.
A written agreement.
A subordinate revenue officer.
Salt made by solar evaporation.
An agent or Manager.
A creek.

The autumn harvest.
Lit private. Khas mahalsy lands retained in

the hands of Government.
A table attendant.
A fort.
A club.

A professional clubman.
A College, a place of teaching.
Ut.y great man : a merchant or banker.
Estate.

A field, or plain.
An owner.

The jurisdiction of a subordinate revenue officer.
Village headman.
Headman (among the Sonthals).
A mosque.

Owner or holder of rent-free land.
The interior of a district, as distinct from the

Sadar or Headquarters.
A vernacular clerk.
An agent, attorney.
A Muhammadan priest.
A root used for colouring ; madder«
A native Civil Judge of the lowest rank.
An aqueduct.
Cultivated by the Qwner l^ms^f.

GLOSSARY.

1097

Nij jote
Pachwai

Paik

Panchayat
Pandit
Pargana

Parganait
Parwana
Pathsala
Patni

Patta
Patwari

Rabi

Raivat

Sadar

Sadhu

Sarai

Sarbarahkar

Sardar

Sawar

Seer

Sir

Stupa

Subadar

Sundri

Tahsildar
Taluk
Tasildar
Tarai

Thakur

Thana

Zamindar

Zanana

ZiUa

Ziraat

A holding cultivated by the tenant himself.

An intoxicating drink prepared from the fermen-
tation of rice or other grain steeped in water.

A messenger, footman, armed servant.

A body of arbitrators.

A Sanskrit scholar ; a learned man ; a teacher.

A tract of country comprising a number of
villages.

Superintendent of a Pargana.

An of¥icial order in writing.

A native village school.

A permanent farm of the management and rent
collection of a part of a zamindari.

A written lease.

A village registrar or accountant between zamin-
dar and raiyat.

The spring harvest.

A tenant.

Chief; headquarters.

A pious man ; a Hindu ascetic.

A rest-house.

Manager.

A chief ; a leader.

A horsemam.

2 lbs. Avoirdupois, nearly.

Land in the immediate cultivation of the
proprietor.

A heap.

Ruler of a province ; a military title of rank,

A kind of tree, growing in the Sundarbans, from
which the latter derive their name.

A native collector of revenue.

A kind of estate or subordmate tenure.

Proprietor of a taluk.

Low moist land : the strip along the foot of the
Himalayas.

An idol ; a subordinate chief under a Raja.

A Police station.

A landed proprietor.

The female apartments, or the females of a family.

A district.

Cultivation, agriculture.

APPENDIX VI.

BOOKS AND WORKS REFERRED TO AND QUOTED.

Annals of Indian Administration, 19 Vols.

Asiatic Journal, 1 1 Vols.

Balfour's, Lady B, Lord Lytton's Indian Administration (1899.)

Bayley, Life of Sir S. C.

Bengal Administration Reports, (1853— 1898).

Bengal AnnuaJ, Several Volumes.

Bengal Directories, (from 1853 onwards).

Beveridges, Comprehensive Histoo' erf India, Civil, Military and

Social, 3 Vols.
Blackwood's Magazine, Several Articles, 1822-1825.
Bromehead's (Rev. W. C), Lives of the Bishops of Calcutta, 1876,
The Calcutta Gazette, 186 Vols.
Calcutta Literary Gazette, 2 Vols.
Campbell's Sir G., Modern India and its Government, 1852.

Memoirs of My Indian Career.

Chesney's, Sir G., Indian Polity.

Cunningham's, Sir H. S., Earl Canning.

Marquis of Dalhousie's Minute, dated 28th February 1856.

Eden, Life of the Hon'ble Sir Ashley.

Gazette of India^ 140 Vols.

General Administration Report of the several Presidencies and Pro-

vinces of British India, for several years.
Gleig's Memoirs of Warren Hastings, 3 Vols. Edition r84i.
Grierson's, G. A., The Administration of the Lower Provinces of

Bengal, 1882-83 to 1886-87.

Hastings', Warren, Disputes in Council, and Bengal Narration
2 Vols, '

Hayden's Dictionary of Dates.

Historical and Ecclesiastical Sketches of Bengal, Calcutta 1882.
Diary of William Hodges, Hakluyt Society. 3 Vols.
Hunter's Sir W. W., Marquis of Dalhousie.*

Earl of Mayo.

Iggulden's, Captain, Sikhim Expedition of 1888.
Indian Charivari Album, 1875.76.
Kaye's, Sir J. W., History of the Sepoy War.
Life of Lord Metcalfe.

BOOKS AND WORKS RKFERRRD TO AND QUOTED. 1099

Lawrence, Lord, by the Rev. Bosworth Smith.

by Sir C. U. Aitchtson.

Lawrte's, Col., Distinguished Anglo- Indians, 2 series.

Lawson's, Sir C, Life of Warren Hastings, 1895.

Life of Pandit Isvar Chandra Vidyasagar.

LyaU's, Sir A. C, Warren Hastings.

Marshman's History of Bengal.

Malleson's, Col. G. B., History of the Indian Mutiny.

Moral and Material Progress Report of India, 1881-82, 1891-92.

Murray's History of British India.

Parke's and H. Merivale's Memoirs of Sir Philip Francis, 2 Vols.

Prichard's, 1. T., Administration of India, 2 Vols.

Ram Chunder Dass's Bengal Civil Servants, with their respective
appointments.

Koutledge's, James, English rule in India, 1878.

RusselPs, Sir W. H., Prince of Wales' Tour in India, 1877.

Shoshi Charan Dutt's Works.

Temple's, Sir R., Men and events of my time in India.

The Story of my life.

Lord Lawrence.

Trotter's History of the British Empire in India, 1866.

Warren Hastings.

Vansittart's, H , Transactions in Bengal 1760-64 : pub. 1766.

Verelst, Harry, late Governor of Bengal, A view of the Rise, Pro-
gress, &c., of the English Government in Bengal, 1772.

Wheeler's, Talboys, Summary of aflfairs in the Foreign Department,
1864-69.

West's, Sir Algernon, Sir Charles Wood's .Administration of Indian
affairs from 1859 to 1866 : pub. 1867.

Wood's, The Right Hon'ble Sir Charles, Speech in moving for leave
to introduce a Bill to provide for the Government of India, June

3i '853-

INDEX

Abdul Ghani Mia, Nawab Sir

Khwaja, ii. 1028.
Abdul Latif Bahadur, Nawab, ii.

1060.
Act, Chaukidari, of 1856, i. 18.

Municipal, XIV of 1856, i. 18.
Do. XXV of 1856, lb.
Do. XXVIII of 1856, ib.
,the Hindu Widows Remarriage,

XV of 1856, i. 22.

Excise, XXI of 1856, i. 20.

the Press, XV of 1857, i. 38.

Mutiny XIV of 1857, i. 41.
Do. XVI of 1857, ib. ; i. 72.
-, Do. XVII of 1857, i. 41.
-, for the. better Govemmeni of

India, i. 50.
-X of 1859, i. 54.
-XI of 1859, i. 56.
-XI of i860, i. 187 ; i. 191.
-XL 1 1 of i860, i. 193.
-XLVof i860, i. 218.
-V of 1861, i. 219.
-, the Indian Councils, 1861, i. 330.
-VI of 1862, i. 195.
-XX of 1863, i. 226.
-Ill (B.C.) of 1863, i. 284.
-VI (B.C)of 1863, i. 279.
■XX of 1864, i. 282.
-II (B.C.)of 1864, i. 314.
-Ill (B.C.) of 1864, i. 292.
•VI (B.C.) of 1865, i. 285.
■Ill (B.C.) of 1866, i. 251.
•X (B.C.) of 1866, i. 322.
XVl of 1868, i. 278.
VI (B C.) of 1868, i. 429*

Act, VII (B.C.) of 1868, i. 456.

VI(B.C.)of 1869, i. 455.

VII (B.C.) of 1869, ». 466.

VIII (B.C.) of 1869, ii. 633.

II (B.C.) of 1870, i. 467.

V (B.C.) of 1870, i. 405.

, Chaukidari, VI (B.C.) of 1870.

i. 473.

-V (B.C.) of 1871, i. 417.

-VII(B.C.)of 1871, i. 493.
-VIII (B.C.)of 1871, ii. 602.
■X (B.C.) of 1871, i. 488.
-XI (B.C.) of 187 1, i. S'5-

X of 1872, ii. 770.

II (B.C.) 1873, »• 525.

VI (B.C.) of 1873, i. 553.

VIl(B.C.)of 1873,1. 553-

II (B.C.) of 1874, ii. 603.

V of 1876, ii. 657.

, the Land Registration, of 1876,

ii. 658.

, the Partition, of 1876, ii. 659.

, IV (B.C.) of 1876, ii. 647.

VI (B.C.) of 1876, ii. 637.

IV of 1877 (Presidency Magis-
trates' Act\ ii. 726.

II (B.C.) of 1877, ii. 693.

IX of 1878, ii. 714.

XVI of 1878, ii. 717.

I (B.C.) of 1878, ii. 694.

Ill (B.C.) of 1878, ii. 709.

Ill (B.C.) of 1879, ii. 710.

1 (B.C.) of 1880 (The Calcutta

Tramways Act), ii. 727.

VI (B.C.) of 1880 (The Bengal

Drainage Act), ii, 727.

1104

INDEX.

Act IX (B.C.) of 1880 (The Cess

Act), ii. 728.
VI (B.C) of 1881 (Calcutta

Municipal Act), ii. 729.

I of 1882, ii. 764.

Ill of 1882, ii. 719.

I (B.C ) of 1882, ii. 867.

Illof 1884, ii. 789. •

Municipal, of 1884, ii. 807.

the Bengal Tramways, ii. 803.

I of 1885, i. 548.

Vni of 1885 (Bengal Tenancy

Act), ii. 8rT.

Ill (B.C.) of 1885, ii. 807.

1 (B.C.) of 1886, ii 821.

II (B.C.) of 1S88, ii 867.

HI (B.C.) of 1890, ii. 878.

XV of 1891, ii. 731.

I (B.C.) of 1892, ii. 920.

VII of 1893 (The Inland Emi-
gration Act), ii. 948.
Bengal Municipal Act, IV
(B.C.) of 1894, ii. 958.

I (B.C.) of 1895 (Public De-

mands Recovery Act) ii. 966.

V (B.C.) of 1895. ib.

VIII (B.C.) of 189s, >» 939-

II (B.C.)of 1896. ii. 976.

Ill (B.C) of 1897, ii. 898.

IV (B C.) of 1897, ii. 1007.

, for the suppression of rain-
gambling, 1897, ii. 1005.

Partition, of 1897, ii. 1008.

IV of 1898, ii 720.

I (B.C.) of 1898, ii. 1005.

Ill (B.C.) of 1898, ii. roo8.

Agriculture — Sir John Lawrence
on, i. 394 ; Sir G. Campbell
on, i. 549 ; Sir A. Eden on,
ii. 707.

Agricultural Department— created
by Sir R Thompson ii. 802.

Aitchison, Sir C, his * Lord Law-
rence ' i. 378.

Anti-kine-killing agitation, ii. 952.

Appeals, Civil, — Sir R. Temple
on, ii. 660.

Appointment, of Honorary Magis-
trates, i. 74 ; of Special Com-
missioners, i. 98 : i. 194.

Arbuthnot, Sir A. J., nearly Lieut.-
Govr. i. 484, ii. 690.

Archieology, ii. 743 ; ii. 831 ; ii. 961.

Arms Act. — Notifn. of August 1896,
ii. 977.

Army, the Bengal. .See BengaL

Arracan, transferred to Burma, i. 5.

Assam, separated from Bengal, i. 5 ;
i. 551 ; Tea Company, i. 176 ;
Chief Commissionership, i. 555.

Backergunge, disarmament of, ii.

977.
Bankim Chandra Cbatteiji, Rai

Bahadur, ii. 1077.
Bayley, Sir Sifcuart. — birth and
career, ii. 837 ; his speech
on Sir A. Eden, ii. 753;
Lieutenant-Governor, ii. 838 ;
his marriage, lb. ; his Intro-
duction to ''The 2nd Bat-
talion Derbyshire Regiment in
the Sikhim Expedition of 1888"
by Captain Igguldcn, referred
to, ii. 852 ; on Excise, ii.
857 ; his opinion of Local
Boards ii. 870; extended the
system of Honorary Magis-
trates, ii. 872 ; on &-
mine, ii. 872 ; proposed a
scheme of local taxation, ii.
876 ; on the police, ii.
880 ; on other matters, iL 881 ;
his policy of administration,

1N9IX.

1105

ib. ; observations on, ii. 88 1 ;
Sir C. Elliott on, ii.
883 ; Lord Elgin on the
unveiling of his statue, ii.
883 ; his subsequent career,
ii. 885.
Beadon, Sir Cecil, — birth and ca-
reer, i. 272 ; Lord Har-
dinge on, i. 273 ; Lord Can-
ning on i. 276 ; a Na-
tive newspaper on, i. 276 ;
Lieutenant-Governor., i. 277 ;
reorganisation of the Subor-
dinate Judicial service, i.
277 ; Act VI (B. C.) of 1863,
i. 279, combined the of-
fices of Chairman of the
Justices and Commissioner of
Police, i. 282 ; i. 317 ; vested
Calcutta Magistrates with cer-
tain powers, ib. ; organised
the Police i. 282 ; on waste
lands, i. 284 ; Act III
(B. C.) of 1863, i. 284;
Act VI. (B. C.) of 1865, i.
285 ; on the abandonment
of Salt Manufacture, i. 286 ;
operations against the Kha-
sias, i. 287 ; dealings with other
frontier tribes, i. 288 ; esta-
blished Normal schools, ib ;
the Industrial School of
Arts, i. 289 ; Agricultural
Exhibition, i. 293 ; on throw-
ing corpses into the river, i.
296 ; Resoln. of 15th March
1865 on Hook-swinging, i. 313 ;
on forests, i. 314 ; established
new Sub-Divisions, ib. ; a
scheme for Central Jails,
i. 314 ; on Canals, ; i. 315 ;
on pure water-supply for

Calcutta i. 316 ; on the
Wahabi-conspiracy, i. 317 ;
on Port Canning, i. 318 ;
improvement of the Port of
Calcutta, i. 322 ; Jury Notifn.
of January 1862, ib. ; on
the Jury system, i. 322 ;
on the practice of carry-
ing sick people to the river
side, i. 323 ; on polygamy,
i. 324 ; on Indigo dis-
putes in Tirhut, i. 327 ;
his Minute of the 30th April
1867 on the Orissa famine,
i. 369 ; Lord Lawrence on,
i. 378 ; The Calcutta Rnneiv
on, i. 395.

Belvedere, a curious theft case at^
i. 477 ; a history of, ii. 1012.

Bengal, extent and population of,
i. 5 ; i. 516 ; ii 905 ; Army, i.
5 ; Yeomanry Cavalry Corps, i. •
37 ; Legislative Councl, i.
230 ; Library, the, i. 293 ;
Tenancy Act, i. 548 ; ii. 81 r.

Bengal Administration Report for
1867, on Belvedere, ii. 102 1.

Bhudeb Mukerji, Babu, c.i.E., ii.
1044.

Bhutan, Measures against, i.
33 ; i. 178 ; Proclamation of
November 1864, i. 308 ; the
Secy, of State's despatch of
February 1866, i. 309.

Bible, in Government Schools, i.
222.

Bill, relating to landlords and
tenants, ii. 707.

Bridge, the Calcutta- How rah, i. 494 ;
ii. 622 ; the^'Jubilee, ii. 833.

* Brief History ' of the BengalrBihar
famine of 1873-74, ii. 577.

1106

INBIX.

British Indian Association, on Sir

J. P. Grants, i. 235.
Burning Ghats^ i. 297.
Busteed, Dr. H. £., his 'Echoes

from Old Calcutta' quoted,

ii. 1015 ; ii. 1016.

Calcutta, its insanitary state, i.

280 ; ii. 817 ; ii. 977.

Sanitary Commission, ii. 817.

Water-supply, i. 316 ; i. 471 ;

ii. 648 ; ii. 905.
Drainage, i. 472 ; ii. 648 ; ii,

978.

its population &c. i. 518 ; ii.

904.

amalgamation of Suburbs with

it, ii. 819'; ii. 904.

Howrah Bridge, i 494 ; ii. 622.

Gazette of September 1795,

quoted, ii. 1012.

Municipality, See Municipality.

Calcutta Reifiew^ the, on Sir F.
Halliday, i. 2, on the Son-
thai insurrection, i. 1 1 ; refer-
red to, ii. 1012 ; ii. 1013 ;
quoted, ii. 1014.

Calcutta University, the. See Uni-
versity.

Campbell, Sir George, birth and
career, i. 483 ; Lieute-
nant-Governor, ib. ; his * Me-
moirs of my Indian career'
and the summary of 1871-
1872, i. 484 ; on the ad-
ministration of the Sonthal
Parganasy i. 486; on Provin-
cial finance, i. 487 ; introduced
the District Road Cess, i.
488 ; Resoln. of August
1871, i. 490 ; Road Cess
Proclamation, i. 491 ; Sir A.

Mackenzie on, i. 492 ; on
the murder of Chief Justice
Norman, i. 498 ; on the
epidemic fever, i. 505 ; on the
assassination of Lord Mayo,
i. 512; his opinion of the
Viceroy, i. 513 ; on Lord Na-
pier, ib. ; on Sir J. P. Grant,
i. 183 ; on the Census of 1871,
i. 514 ; his policy of Gov-
ernment, i. 518; opened a
Statistical branch of the Sc
cretariat, i. 522 ; established
an Economic Museum, ib. ;
on Self- Government, i. 522 :
on the Mu/assal Municipal
Bill, i. 522 ; on Primary Edu-
cation, i. 526; on higher
Education, i. 532 ; on Jaib,
i- S33 ; on the position
of Magistrate-Collectors, i.
537 ; on the Police, i. 23 ;
«• 537 ; on Sub- Deputies,
i. 538 ; on the Northern
Bengal Railway, i. 540 ; on the
Garo expedition, i. 541 ; on
the Daflas, ib. ; on waste
lands, i. 543 ; Proclamation
of 4th July on Pabna rent
disturbances, i. 546; on the
concentration of Government
offices, i. 548 ; on the system
of parallel promotion in the
Executive and Judicial lines,
i. 548 ; on Experimental
farms, i. 550 ; on the
Calcutta Municipality, i. 552 ;
Embankment Act VI (B.C.)
of 1873, i. 553 ; on trade with
Central Asia though Sikhim,
i. 554 ; on miscellaneous mat-
ters, i. 555 ; his narrative of

INDK.

1107

the Bengal- Bihar famine of

i873-i874i i. 55 S ; Lord
Northbrook on his reisignation,
i. 568 ; observations on, i.
569 ; editor of his Memoirs on,
i. 570 ; a contemporary author
on, i. 570 ; Member of the
Secy, of State's Council, i. 571 ;
his death, ib.

Canals, i. 315 ; i. 455 ; ii.
731 ; ii. 792 ; ii. 997-

— the Orissa, ii. 963.

Canning, Lady, her opinion of Sir
C. Be^don, i. 275 ; Sir J. P.
Grant on her death, i. 232.

Canning, Lord, — his Minute of i8th
February 1857 on concentra-
tion of power, i. 24 ; .on re-
organization of the Police of
Bengal, 1. 27 ; i. 231 ; Sir F.
Halliday^s influence over, i.
33; nobility of character, i.
34 ; final Minute of 2nd
July 1859 on Mutiny, i. 59 ;
on Sir J. P. Grant, i. 168 ;
Proclamation after the Mutiny,
i. 172 ; on indigo excitement,
i. 192 ; on the position of the
raiyaty i. 196 ; on Sir C.
Beadon, i. 276 ; on Waste
Lands, i. 283..

Census, of 1872, i. 464 ; i. 514.
„ of 188 1, ii. 735.
,, of 1891, ii. 902.

Cesarewitch, his visit to Calcutta,
ii. 902.

Chairman of the Justices, combined
with Commissioner of Police,
i. 282.

Charak Puja, See Hook-Swinging.

Chaukidar, ii. 919.

Chaukidari Act, See Act

Cinchona-cultivation, i. 228 ; ii. 707.

Civil Appeals. See Appeals.

Civil Courts, Sir F. Halliday on,

i. 62 ; Sir J. P. Grant on,, i.

265 ; also, see Courts.
Civil Service — a change proposed,

i. 435. ^
separated into Executive and

Judicial branches, ii. 696.
employment of Natives in, ii.

725 ; ii. 956.

Statutory, ii. 792.

Civilians, their Judicial training,

ii. 798 ; their pension and re-
tirement, ii. 697.
Cockerell, H. A., Mr., officiated as

Lieutenant Governor, ii. 821.
College, the Presidency, i. 9 ; the

Sibpur Engineering, ii. 927.
Commission, the Dacoity, i. 173.

the Indigo, i. 189.

the Police, i. 231.

the Fever, i. 291.

the Famine, i. 331.

the Tea, i. 404.

the Calcutta Plague, i. 471.

the Rent Law, ii. 706.

the Army, ii. 724-

the Emigration, ii. 726.

the Nadia Fever, ii. 763.

the Education, ii. 766.

the Salaries, ii. 792.

——the Opium, ii. 792.

on the working of Orissa canals,

". 793.
—Calcutta, Sanitary, of 1884-85 ;

ii. 817.
—to examine into the state of

defences of the river Hooghly

and the Port of Calcutta ii«

818.
—the Excise, ii. 822.

1108

mmm

Commission, the* Indian Public

Service, ii. 853.
— the Hemp Drags, ii. 955.
— the Labour Enquiry, ii. 964.
Commissioner, of Police, i. 282 ;

Special appointment of, i. 98 ;

i. 194.
Contract, Provincial, of 1897, ii.

TOOO.

Cotton, .Bishop, i. 326 ; Government
of India on, i. 327 ; Secy, of
State on, ib.

Council, Bengal, i. 526 ; ii. 659.

— enlarged ii. 942.

Courts, Divisional Appellate, ii.
725 ; ii. 821.

Croft, Sir A., ii. 999 ; on Babu
Bhudeb Mukerji, ii. 1016.

Cross, Lord, on the Report of the
Indian Public Service Com-
mission, ii. 855.

Crown, the, Assumption of the
Government of India by, i. 50.

Cunningham, Sir H. S., his
^ Earl Canning ' i. 6 ; on Lord
Canning's nobility of charac-
ter i. 34 ; on Sir J. P. Grant,
i. 169 ; his opinion of Lady
Canning, i. 232.

Cyclone, of 5th October 1864, i.
298.

— of November 1867, i. 406 ;

—of 1874, ii. 621.

— and storm wave of 31st October
1876, ii. 674.

—of 25th May 1887, ii. 839.

—of 24th October 1897 at Chitta-
gong ii. 1009.

Dacoity, i. 172 ; in rivers, i. 173 ;
Commission, i. 173 ; depart-
men abolished, i. 283.

Dalhousie, Earl (Marquis) di,
on Sir F. Halltday, i. 2 ; pro-
posed a Lieutenant-Governor
of Bengal, ib., his Minute of
28th February 1856, u 5 ; i.
II ; his opinion on the Edu-
cation despatch of 1854, L 7 ;
his Proclamation on tiie cap-
ture of Sebastopol, i. 16 ;
on the separation of the oflB-
ces of Magistrate and Col-
lector, i. 24 ; on Railway
Communication in India, i.
29 ; on Bishop Wilson, i.
45 ; on Sir J. P. Grant, i. 164 ;
his Minutes of 17th February
and 24th September 1854
on a suitable residence for
the Lieut.-Govr. ii. 1018.

Dalton, Colonel, his Descriptive
Ethnology of Bengal, i. 1 1.

Debendra Nath Tagore, .Maharshi,
ri. 1035.

Delhi Assemblage ii. 691.

Dengue fever, i. 506.

Dictionary of National Biography
on Sir Cecil Beadtm, i. 273.

Digambar Mitra, Raja, C.S.I., ii.
1042.

Director of Public Instruction,
constituted, i. 7 ; first appoint-
ment, lb.

Directors, The Court of, their des-
patch on Sir F. Halliday's
Mutiny Minute, i. 46.

Directory, the Bengal, on the

disposition of the Bengal Army,

i. 5.

Disraeli, on Sir J. P. Grant's
Annexation Minute, i. 164.

Distilleries, Central, opening of
i. 20 ; Sir J. P. Grant on, L

INDBX.

llj»9

X27. ; dosing af» ii. 720 ;

Sadar, substituted for out-

stiUs, ii. 859.
District Boards, ii. 869 ; Sir C.

Elliott on, ii. 964.
Divisions, Civil, rearrangement of,

ii. 62a
Docks, the Kidderpore, ii. 804 ; ii.

940 ; ii. looo.
Drainage, ii. 608 ; ii. 727, ii- 93^ :

Resoln. of 18th July. 1892,

ii. 958.
Drunkenness, among the lower class-
es, i. 19.
Duke of Edinburgh— his visit to

Calcutta, i. 466.
Dwarka Nath Mitra, The Hon'ble

Justice, ii. 1037.

Earthquake, of January 1869, i. 457 ;
of 12th June 1897 ; ii. looi.

Eden, Sir Ashley, birth and career,
ii. 688 ; on special duty to
the Sonthals, i. 16 ; his differ-
ences with Mr. Grote, i.
184 ; as Envoy to Sikhim,
i. 223 ; his Mission to
Bhutan, i. 303 ; on Sir W.
Grey, i. 480 ; Lord Lawrence
on, ii. 689 ; an Indian News-
paper on, ii. 689; on the
V Annual Administration
Reports, ii. 690 ; on famine, ii.
691 ; on the reconstitution of
the Secretariat, ii. 695 ; on
the separation of the Civil
Service into the Judicial and
Executive branches, ii. 696 ;
on the retirement of Civi-
lians, ii. 697 ; on lotteries,
ii. 698 ; on irregular dis-
• traint in Bihar, ii. 703 ; on in-

digocultivatiott) ii. 703 ; on the
Rent Law in Bihar, ii. 704 ;
appointed the Rent Law
Commission, ii. 706; on the
landlord and tenant Bill, ii.
707 ; on Cinchona febrifuge
ib., on Agriculture, ib., Resoln.
of 25th January, J879, on
hospital management, ii.
708 ; reorgapised the Educa-
tion Department, ii. 710 ; the
Sibpur Engineering College, ii.
7 1 1 ; on jails, ii. 7 1 3 ; his speech
on the Vernacular Press Act,
ii. 714 ; on the Excise reve-
nue, ii. 724 ; President of
the Army Commission, ib. ;
Lord Lytton on, ib. ; Sir J.
Strachey on, ib ; created a
new grade of Deputy Collec-
tors, ii. 725 ; supported Di vi-
sional Appellate Courts ii. 725 ;
on drainage, ii. 729 ; on Public
Works, ii. 737 ; concentrat-
ed the public offices in
Writers Buildings ii- 738 ; on
Provincial finance, ii. 739-;
ii. 742 ; on Local Self Govern-
ment, ii. 742 ; opened the
Eden Hospital, ii. 744 : on
Eden Sanitarium, ib.; on other
matters, ii. 745 ; his letter
dated aoth March 1882, on
the jurisdiction of Native
Magistrates over European
British subjects ii. 769 ; fare-
well address on his retirement,
ii. 746 ; observations on, ii.
750 ; Sir H. T. Prinsep and
Sir S. Bayley on the un-
veiling of bis statue, ii. 75.1 ;
a story, ii. 758 ; his death,

1110

INDEX.

ib. ; Lord Northbrook on, ib.

Edgar, Sir J., his deputation to the
Lushai Country, i. 459 ; i.
499 ; Sir G. Campbell on,
i. 504 ; ^official notice of his
retirement, ii. 887.

Education, despatch of July 1854,
i. 6.

Sir F. Halliday's Minute, i. 9.

aflfected by the Mutiny, i. 10.

despatch of April 1859, i. 171.

primary, i. 208 ; i. 526 ; i.

533 ; ii. 623 ; ii. 929 ; Halka-
bandi system, ii. 1045.
Normal schools, i. 288.
Secretary of State on Verna-
cular Education, i. 439.
(ss, i. 440.
-despatch of 12th May 1870;

1. 441.
Govt of India's Resoln., Sep-
tember 1869, i. 468; i. 470.
——Sir. W. Grey on, i. 469.
——Resoln. of 30th Septembei

1872, i. 527.

higher, i. 532.

^—Technical, ii. 625.

Sir R. Temple on, ii. 627 ;
Department reorganized, ii.

710 ; ii. 998.
Lord Lytton's Minute of 25th

March 1879, ii. 712.
——Commission, ii. 766.
Elgin, Lord, his speech on the

unveiling of Sir S. Bayley's

statue, ii. 883.
Ellenborough, Lord, President of

the Board of Control, i. 9.
Elliott, Lady, a leading journal on,

ii. 970.
Elliott, Sir C, on Sir S. Bayley, ii.

883; his career, ii. 886 ; Lieute-

nant-Governor, ii. 887 ; on
Surveys and Settlements ii.
887 ; on the Cadastral Survey
in North Bihar, ii. 889 ; on
the maintenance of the Record
of Rights, ii. 895 ; on the
Lushai Hills, ii. 908 ; on
Sikhim, ii. 909 ; inquired Into
the poverty of Europeans and
Eurasians ii. 912 ; proposed
enlistment of Eurasians in
British Regiments, ii. 914;
prosecution of the Banf[€ibcLsi
newspaper, ii. 916 ; on Ckauki'
darSy ii. 921 ; on the Criminal
Courts, ii. 921 ; on Excise ii.
922 ; on scarcity, ii. 925 ; on
the physical training and wel-
fare of students, ii. 926 ; on
Sibpur Engineering College,
ii. 928 ; on primary educa-
tion, ii. 930 ; on the spell-
ing of Vernacular names, ii. 931 :
on Babu Bhudeb Mukeiji's
Samajic Prabumdka^ ii. 1046 :
on Provincial finance, li.
935 ; on dramage and water-
supply, ii. 938 ; on Kid-
derpore docks, ii. 941 ; on
tours by officers, ii. 942 ; on
the Jury system, ii. 946 ; his
Jury Notifh. of 20th Octo-
ber 1892, ii. 947 ; on the
Court language in Bihar, iL
955 ; on the Bengal Municipal
Act IV (B.C.) of 1894, ii. 958 ;
on the maintenance of order
at festivals, ii. 960 ; on Archa»>

logy* "• 9^1 \ appointed a
Labour Inquiry Commissioii,
ii. 964 ; on District and Local
Boards, ii. 964 ; on legislation,

INPB^C.

ii. 965 ; on miscellaneous
matters, ii. 966 ; * bis dona-
tions to good works, ii. 968 ;
remarks on, ii. 969 ;
marriage, ii. 970 ; retire-
ment, ib.

Emigration, ii. 608 ; ii. 726 ; to
Burma, ii. 86$.

Empress of India, ii. 681.

Engineering College, Sibpur, ii.
927.

Epidemic fever i. 290; i. 413; i.
504 ; its history and cause, i.
505.

Ethnographic Glossary, ii. 915.

Ethnology, ii. 823.

Eurasians, pauperism among, ii.
912 ; proposed enlistment of,
in British regiments, ii. 914.

Exchange compensation, ii. 951.

Excise, ii. 720; ii. 857 ; ii. 922.

— Commission ii. 824 ;

— Commissioner, ii.'858 ;

— despatch of 1890, i. 19.

—Law. See Act XXI of 1856.

— Sir J. P. Grant on, i. 227.

—Sir W. Grey on opium, i.
462.

— Sir R. Temple on, ii. 651.

Exhibition, Agricultural, i. 294 ;
International, of 1883-84, ii.

799-

Famine, in Orissa i. 329 ; ii.;69i ;
in Bihar and North Bengal,
i* 393 f Govt of India's des-
patch of April 1867, i. 363 ;
Sir C. Beadon*s Minute of
30th April 1867, i. 369 ; Secy,
of State's despatch of 25th
July 1867, i. 378 ; Board of
Revenue's defence, dated isth

.August 1869, i. 387 ; Govt, of
India's letter dated 4th Sept-
ember 1867, i. 389 ; Bengal-
Bihar famine of 1873-74, i.
555 ; "• 577 ; Sir R. Temple
on, ii. 593 ; Govt, of India's
Resoln. of i8th February i87S»
ii. 591 ; in Bihar and Orissa,
ii. 872 ; of 1896-97, ii. 987.

Famine Commission, the, i. 331 ; on
the famine management of
1867, i. 391 ; on Bengal-
Bihar famine of 1873-74, i.
556.

Fay, Mrs., her Original letters
from India, ii, 1014.

Fever, the Burdwan, i. 291 ; i. 416 ;

i. 505 ; Sir R. Temple on,

ii. 612 ; Dengue, i. 506; the

Nadia, ii. 730 ; epidemic. See

Epidemic.

Finance, provincial, i. 487 ; ii. 739 ;
ii. 761 ; ii. 838 ; ii. 932 ; ex-
tended, ii. 692 ; Commission,
ii. 763.

Finances, decentralisation of, i. 473.

Floods, ii. 822.

Forests, ii. 613 ; conservation of,

i. 3'4.
Frontier tribes, their raids, ii. 840.

Fuller case, the, ii. 669.

Gagging Act, the, i, 41.

Gazetteer of Bengal, ii. 623.

of Sikhim ii. 842.

Gleig's Memoirs Vol. I. ii. 1013.

Government of Bengal, on drainage
and watersupply, ii. 959.

Government of India, on the prac-
tice of carrying the sick to the
.riverside, i. 324 ; on poly-
gamy, ib. ; despatch of 22nd

1112

INOIX.

April 1^7 on the Orissa
Famine, i. 363; Resoln. of 19th
August 1867 regarding ap-
pointment of Natives to higher
posts, i. 417 ; Resoln. of March
1868 on the ** shoe-question,"
i. 428 ; on Vernacular edu-
cation, i. 439 ; on Road
cess, i. 441 ; Resoln. of Sep-
tember 1869 on high Eng-
lish education, i. 468 ; i. 470 ;
Resoln. of Deer. 1870 on
the decentralisation of the
finances, i. 474 ; Resoln.
of 1 8th February 1875 on
the Bengal-Bihar famine,
ii. 59' ; on Sir R. Temple,
ii. 684 ; Resoln. of March
1895 on the Hemp Orugs
Commission, ii. 956.
Grant, Sir John Peter, birth and
career, i. 163 ; his family
connections, i. 237 ; Lord
Macaulay on, i. 164; Mr.
Seton-Karr on, ib ; i. 165 ;
i. 233 ; on Volunteers, i.
165 ; Sir John Kaye on,
i. 166; his deputation as
Lieut-Govr. of the Central
Provinces, i. 167 ; Lord
Canning on, i. 168 ; Col.
Malleson, Sir R. Temple and
Sir H. S. Cunningham on,
i. 169 ; Lieutenant-Governor of
Bengal, i. 170; The Hindu
Patriot on, 1. 169 ;. i. 234 ; his
administration, i. 170 ; on the
Police of Bengal, i. 25 ; The
Bengal Admn.' Report, i.
172 ; Dacoity Commission
i. 173; his tours, i. 174;
Parasnath, i. 174 ; Tea-

cultivation, i. 1.76 ; on
Hook-swinging i. 177 ; on
Sonthal slaves i. 178 ; Bhutan
expedition, i. 178 ; measures
against the Kukis, Garos, &c.
i. 181 ; Sir G. Campbell
on, i. 183 ; Notifn. of
March i860, i. 187 ; on Indigo
oppression, i. 185 ; Act XI of
1860, i. 187 ; Indigo distur-
bance, i. 188 ; the Indigo Com-
mission, i. 189 ; his Mi-
nute on the Indigo Com-
mission's Report, i. 238 ;
adoption of measures regard-
ing Indigo, i. 193 ; his action
approved by Govt, of India,
ib. ; the Viceroy and the
Secy, of State on his
Indigo Minute, i. 194 ; ap-
pointment of special Commis-
sioners, ib. ; Act VI (B.C.) of
1862, i. 195 ';his Minute on the
Nil DarpoHy i. 197 ; on
Mr. Seton-Karr, i. 201 ; Govr.-
tienl's Resoln on the Nil
DarpoMy i. 202 ; his mis-
understanding with the Govt,
of India, i. 207 ; his apokigy,
i. 208 ; on Primary education,
i. 208 ; on the Indian Penal
Coide, i. 218 ; System of
Sub- Divisions, i. 219 ; his
Minute of I4tfa November
on Bible reading, i. 222 ;
on Sikhim i. 223 ; Aa XX
of 1863, i. 226 ; on Sadar
distilleries, i. 237 ; on Honor-
ary Magistrates, i. 227 ;
i. 265 ; appointed a Commis-
sion to enquire into the
Calcutta Municipal oonser-

INBK.

Ills

vancy, i. 228 ; on Cinchona
cultivation, i. 226 ; on Lady
Canning's death i. 232 ; British
Jndian Association on, i. 235 ;
on Hindu Widows' remarriage
Bill, i. 236 ; a libel case i.
236 ; on the Missionaries
i. 25$ ; on Civil Courts i. 265 ;
on the appointment of
a special Indigo Commis-
sioner, i. 268 ; on the gene-
ral disarming of Natives, i.
270 ; on polygamy, i. 324 ; his
retirement, i. 208 ; Governor
of Jamaica, i. 237 ; hrs death,
ib.

Grants in aid. i. 8.

Grey, Sir William, birth and
career t. 398 ; marriage,
i. 481 ; relieved the Board
of Revenue of all connec-
tion with relief measures,
i* 391 ; Native Press on, i. 401 ;
Lord Lawrence on, ib. ; on
Daijeeling Cantonment, i. 402 ;
on Tea Commission, i. 403 ;
transferred the Port of
Calcutta to Trustees, i. 406 ;
on Port Canning i. 409 ; on
the Subordinate Executive
service, i. 418 : appointed
a Sanitary Commissioner, i.
419 ; revised the salaries of
ministerial ofHcers, i. 419 ;
appointed an additional Secre-
tary to Govt. i. 420 ; Keonjhur
disturbances, i. 420 ; on
certain questions relating to
Govt. i. 427 ; on indigo
disputes in Champaran, i. 429
on the Wahabis, i. 432 ;
proposed a change in

the Civil Service, i. 435 ;
on hook-swinging, i. 438 ;
on the proposed Education
cess, i. 440 ; on Road cess,
i. 441 ; on the Gazetteer of
Bengal, i. 456 ; on the Lushai
expedition, i. 458 ; i. 462 ;
his policy with other frontier
tribes, i. 461 ; on opium, i.
462 ; on police, i. 463; on
the Census of 1871, i. 464 ;
on high English educa-
tion, i. 469 ; on cattle
disease, i. 471 ; on bridging
the Hooghly, i. 472 ; on Chau-
kidari Act VI. (B. C.) of 1870,
i. 473 ; the Friend of India of
Serampore on his retirement,
i. 478 ; Sir .\. Elden on, i.
480 ; a journalist on, ib. ;
Governor of Jamaica, ib. ; his
death, i. 48r.

Halliday, Sir F. J., — birth and
career i. i ; marriage, i. 63 ;
eldest son, F. M. Halliday, i.
63 ; as musician, i. 62 ; nomi-
nation as Lieutenant-( Governor,
i. 2 ; accession to office, i. 4 ;
E<fucation Minute, i. 9 ; Minute
on the Police and Criminal
justice, i. 26 ; tours, i. 32 ;
Minute of 5th March 1857, i.
33 ; influence over Lord Can-
ningf i. 33 ; during the Mutiny
i. 35 ; his Minute of 30th
September 1858, i. 42 ; See
Appendix to Chap. I^ i. 65 ;
removal of Mr. Tayler, i. 42 ;
i. 72 ; Minute on Mr. Taylor's
' Brief narrative ' i. 44 ; thanks
of Parliament, i» 45 ; i. 63 ;

ni4

IN0KS::

Court of Directors t>n his
Mutiny Minute , i. 46 ;
Lord Canning on, i. 59 ; on
Civil Courts, i. 62 ; on Messrs
Money and HoUings, i. 72 ;
on Mr. Samuells, i. 95 ;
removal of an Assistant Com-
missioner, i. 100 ; on the nature
of the Mutiny in Bengal*
i. 157 ; retirement, i. 63 ;
reply to farewell address, i.
60 ; made K. C. B. i. 63 ;
Member of the Secretary of
State's Council, ib. ; author's
obligations to, i. 64 ; his
account of a Suttee^ i. 160.

Hara Chandra Ghose, Rai Bahadur,
ii. 1071.

Hardlnge, Lord, on Sir C. Beadon,

i. 273.
Haris Chandra Mukerji, Babu,ii. 1047

Hassan Ali Khan Bahadur, Nawab

Sir, ii. T954.
High Court, Calcutta, i. 278 ; on

the Jury system, i. 323.
Holidays, ii. 876.
Honorary Magistrates, i. 74 ; i.

156 ; i. 227.

system of, extended, ii. 872.

Hooghly, the, project of bridging,

i. 29 ; i. 472.
Calcutta- Howrah bridge, i.

494 ; ii. 622.
Hook-swinging, i. 32 ; i. 177 ; i.

312 ; i. 438.
Hooker, Dr., on Sikhim, i. 223.
Hospitals, Sir A. Eden on, ii.

708 ; the Presidency General,

ii. 977.
Hunter, Sir W. W., quoted i. 7 ;

i. I X ; appointed to compile a

Gaseetteer for Bengal, i. 456 ;

on decentralisation of the
finances, i. 476 ; on i>nmary
education, ii. 929 ; his Statis-
tical Account of Bengal Vd. I,
ii. 1014.

llbert, Sir C. P., on the Bengal
Tenancy Bill, ii. 814.

llbert Bill, the, ii. 768 ; ii. 7/2 ; ii-
788 ; Sir R. Thompson's
opinion on, ii. 776.

Indigo, planters' oppression, i. 185 ;
ii. 704 ; Act, i. 187 ; disturb-
ance, i. 188; i. 193; i.
206 ; i. 327 ; ii. 638 ; Com-
mission, i. 189 ; Sir J. P.
Grant's Indigo Minute, i. 238 ;
popular excitement) i. 192 ;
Sir Charles Wood's despatch,
i. 196 ; the Nil DarpcM^ L 196.

Inundations, i. 402 ; of 1871, i.
494 ; ii. 822.

Insurrection, the SonthaL See Son-
thai.

isvar Chandra Vidyasagar, Pandit,
CLE., ii. 1032.

Jagannath, attack on, ii. 733.
Jails, Central, i. 314 ; Sir G.

Campbell on, i. 533 ; Sir

A. Eden on, ii. 713.
Jotindra Mohan Tagore, Maharaja

Sir, ii. 1052.
Joy Kishen Mukerji, Babu, ii. 105a
Jubilee, Queen Empress's, ii. 699 ;

ii. 832 ; ii. 1003 ; bridge, ii.

833.
Judges, their pay and promotion,

i. 548.
Judicial Service, Subordinate, re*

organisation of, i. 277.
Jury system, the, — NotHh. 6f Janu-

iKmoL

1115

ary 1862, i. 322; the High

Court on, i. 323 ; il 797 ; ii.

945 ; Notifh. of 20th October
1 892, ii. 947.

Kali Krishna Deb Bahadur, Raja,

ii. 1067.
Kaye, Sir J. W., i. 42 ; on Sir J. P.

Grant, i. 165 ; i. 166 ; i. 168 ;

his article on Sir £. Impey,

ii. 1013.
Keshab Chandra Sen, Babu, ii. 1039.
Khwaja Abdul Ghani Mia, Nawab

Sir, K.C.S.I., and Khwaja Ahsa-

nulla Bahadur, Nawab Sir,

IC.C.1.E., ii. 1028.
King, Sir G., SirR. Temple on, ii.

617.
Kisori Chand Mitra, Babu, ii. 1075.
Krishna Mohan Banerji, Rev. Dr.,

ii. 1061.
KristolDas Pal Rai Bahadur, ci.ii;.

ii. 1055.

Lachmesvar Sing Bahadur, Maha-
raja Sir, ii. 1068.

Lai Behari De, the Revd., ii 1080.

Lawrence, Sir John, (Lord) on In-
dian Agriculture, i. 294 ; on Sir
C. Beadon, i. 378 ; on Sir W.
Grey, i. 401 ; on abolition
of Board of Revenue, i.
427 ; on Sir A. Eden, ii. 689.

Lawrence^ Sir Johtu, the, lost at
sea, ii. 84a

Legislative Council. See Council.

Lethbridge, Sir Roper, on Vidya-
sagar, Krist9 Das Pal and
Bhudeb Mukeiji, ii. 1047.

Library, the Bengal, i. 293.

Lieutenant-Governor, the, appoint-
ment of^ i. 50 ; his residence
at Daijeelingi iL 744.

Long, the Rev. J., i. 197 ; i* 205;
his Article on * ' Calcutta in
the Olden Time", and Vol.
I of his Selections from the
unpublished records of Govt,
ii. 1012.

Lotteries, ii. 698.

Lower classes, cause of their low
wages and remedy, ii. 864.

Lushai expedition, i. 458 ; i.
462 ; i. 499 ; ii. 841 ; ii. 906 ;
"• 975 » *Secy. of State on,
i. 504 ; future policy of Govt,
towards the Lushais, ib.

Lytton, Lord, on the Fuller case,
ii. 669 ; Proclamation of 18th
August 1876, ii. 681 ; his
Minute of 25th March 1879
on education of poor Euro-
pean and Eurasian children,
ii. 712 ; on Sir A. Eden,
ii. 724.

Macaulay, Lord, on Sir ]. P. Grant,
i. 164.

Mac Donnell, Sir A. P., his Minute
on the Bihar Cadastral survey
ii. 893 ; Offg. Lieut-Govr.,
Bengal, ii. 95a

Mackenzie, Sir Alexander, birth
and career ii. 971 ; Lieute-
nant-Governor, ib ; marriage,
ii. 972 ; on tours of officers,
ib. ; on the settlement oper-
ations in Orissa and Bihar,
ii. 972 ; on the sanitation
of Calcutta, ii. 977 ; his
speech to the Calcutta Cor-
poration ii. 978 ; on the
Calcutta Municipal Bill ii.
986 ; on Famine of 1896-1897,
ii. 990; his final Resoln.

am*

of'ifth March 1896 on the
fsmine, ii. 994 ; on Sir G.
Campbell, i. 492 ; on Sir A.
CiDft) ii. 999 ; rain-gambling,
ii. io£)5 ; on the Partition Act,
ii. 1007 ; on miscellaneous
matters, ii. lolo ; review of
his administration, ii^ loii ;
a leading journal on, ib.

Magistrates, their relations with the
Police, i. 283 ; i. 537 ; Sir
G. Campbell on, i. 537 ; their
pay and promotion, i. 548 ;
Honorary, i. 74; i. 156; i.
tZ7 ; ii. 872.

Mahendra Lai Sircar, Dr., c.i.£.,
ii. 1065.

M ah tab Chand Rai, Maharaja
Adhiraj Bahadur of Uurdwan,
ii. 1030. .

. Maine, Sir Henry S., on the decen-
tralisation of the finances, i.
476.

.Malleson, G. B. Colonel, his
History of the Indian Mutiny
Vol. I, i. 42 ; on Sir J. P.
Grant, i. 169.

.Marine, Indian, ii. 743.

Martial law— declared during the
Sonthal insurrection i. 14; in
Patna and ChotaNagpur Divi-
sions, i. 41 ; i. 72.

Mayo, Lord, on the decentralisation
of the finances, i. 474 ;
his assassination, i. 507 ; the
Queen's message on his death,
i. 512 ; Sir G. Campbell on

i. 513-
Metcalfe, Sir Charles, — on the

liberty of the Press, i. 38.

.Michael Madhu Sudan Dutt, ii.

1069.

.Mills & Hanrington^ M^sarsi^tlieir
Code .t)C Civil JProoedure,

i-55.-

Milman, Robert, Bishop D. D.« ii.
644.
Missionaries, Sir J. P. Grant on,
i. 225.

Moral and Material Progress of
India, 1891-92, ii. 841 ; on
the Public Service Commis-
sion quoted, ii. 853.

Muharram, the, Sir C. Elliott
on, ii. 960.

Municipalities, Afu/assal, i. 522 ; ii.
649.

Municipality, the Calcutta, com-
mencement of, i. 18 ; a Com-
mission to enquire into, i. 228 ;
remodelled, i. 279 ; Sir G.
Campbell on, i. $S2 ; reformed
by Sir R. Temple, ii. 646 ;
Municipal Act of 188S, ii. 866^
Calcutta Municipal Bill,ii. 982.

Munsifs, i. 278.

Museum, the Indian, benefited by
Sir C. Elliott, ii. 961.

— Economic, i. 522 ; ii. 663.

Mutiny, The, affected edocation,
i. 10 ; its breaking out, i. 35 ;
Proclamatiim, i. 35 ; Acts, i.
41 ; Lord Canning's Minute
on, i. 58 ; services of Ma-
haraja Jang Bahadur, i. 81 ;
an act of cmelty, i. 89 ; dis-
appearance of prisoners, i.
93 ; murder of Sir Norman
Leslie, i. ^24 ; murder of Lt
Cooper, i. 125 ; Raja of
Assam, i. 154 ; reforms intro-
duced, i. 156; Sir F. Halliday
on tbe nature o( i. IS7:
first symptoms o^ i. 133 >

INDSX.

1117

disaitning of troops, i. 134; a
plot at Jessore, i. 134 ; panic
in Calcutta, i. 137; thanks-
giving after, i. 172.

Mutiny, The, (See Appendix to Ch.
I.) — in Bengal, i. 65.

—in Patna Division, i, 66 ; i. 70.

— in Chota Nagpur Division i. 66 ;
. i. 98 ; i. 99.

—in Bhagalpur Division, i. 66 ; i.
123.

— in Rajshahi Division, i. 67 ; i. 130.

— in Nadia Division, i. 133.

— in Burdwan Division, i. 67 ; i. 78.

— in Dacca Division, i. 67 ; i. 81.

— in Chittagong Division, i. 67 ;
i. 144.

Napier, of Merchistoun, Lord, Sir G.
Campbell on, i. 513.

Nawab Nazim of Bengal — his ser-
vices during the Mutiny, i. 48 ;
i. 133 ; his retirement, ii.
730-

Nil Darpariy the, i. 196 ; Sir J.

P. Grant's Minute on, i. 197 ;
Govt, of India's Resoln. on, i.
202 ; Secy, of State on, i. 206.

Norman, Chief Justice, — his murder
i. 495 ; Sir G. Campbell on,
i. 498.

Northbrook, Lord, Resoln. of 8th
April 1874 on the Bengal-
Bihar famine, i. 568 ; on the
deputation of Sir R. Temple
on famine duty in Bihar, ii.
575 » The Tiffies on, ii. 593 ;
his speech on Sir A. Eden
ii. 758.

Order of Indian Empire, the, ii. 699.
Star of India, the, i. 225.

Outstill system, the, ii. 720 ; ii. 857 ;

ii. 861.
Paget, the Hon'ble Sir E., Commdr.

in- Chief, his Letters &c.

quoted ii. 1017.
Panchayai^ i. 18.
Panic Sunday, i. 38.
Parasnath as a sanitarium, i. 174.
Patriot^ the Hindu^ on Sir J. P.

Grant, i. 167.
Penal Code, i. 218.
Piari Chand Mitra, Babu, ii. 1073.
Piari Mohan Mukerji, Raja, ii. 105 1
Plague, ii. 986.
Ploughmen's begging movement,

the, ii. 954.
Police, i. 23 ; ii. 919 ; Sir F. Hal-

liday on, i. 61 ; of Bihar

i. 156 ; on improved system,

i. 193 ; Commission, i. 231 ; ii.

820 ; reform ii. 820 ; organised,

i. 282 ; ii. 966. Military, i. 27 ;

i. 283 ; Sir J. P. Grant on, i.

25 ; Sir C. Wood on, 1.

231 ; reductions in the, i. 463 ;

their subordination to the

Magistrate, i. 537 ; Sir S.

Bayley on, ii. 880.
Polygamy, J. P. Grant on, i. 324 ;

Govt, of India on, ib. ; Sir C.

Beadon on, i. 324.
Port Canning, i. 318 ; i. 409; i. 518;

of Calcutta, i. 493 ; ii. 878.
Prasanna Kumar Tagore, cs.i., ii.

1027.
Pratap Chandra Siirgh, Raja, Baha-
dur ii. 1079.

Press, liberty of the, i. 38 ; the
Native, i. 293 ; Sir A. Eden

on, ii. 714 ; Act. Sec Act.

Procdgs against the . Som

Prakask, ii. 718 ; Procdgs.

1118

INPBX.

against the Bangabast \ ii.
719 ; ii. 916 ; Sir R. Thomp-
son on, ii. 797.

Prince Albert Victor — his visit to
Calcutta ii. 875 ;
of Wales—, ditto ii. 643.

Private Secretary —

— to Sir F. Halliday, i. 4.

J. P. Grant, i. 170

C. Beadon, i. 277.

W. Grey, i. 402.

G. Campbell i. 485.

R. Temple, ii. 574 ; ii- 683.

A. Eden, ii. 690.

S. Bayley, ii. 838.

C. Elliott, ii. 887.

A. Mackenzie, ii. 971.

Proclamation of May 1857, i. 35.

—of ist November 1858, i. 50.

—of 1 2th November 1864, i. 304.

—of 4th July 1872, on the Pabna
rent disturbance, i. 546.

—of 7th February 1874, i. 555.

—of 28th April 1 876 on the assump-
tion of the title of Empress of
India, ii. 681.

— of 1 8th August 1876 regarding
the Delhi Assemblage, ii. 681.

Public Works, ii. 737.

Queen, the, Proclamation of ist
November 1858, i.50 ; sent a
message of condolence on
the death of Lord Mayo, i.
512 ; assumed the title of Em-
press of India, ii. 681.

—Her Jubilee. See Jubilee.

Radhakanta Deb Bahadur, K.c.s.i.,

. Sir Raja, ii. 1022
Railway, the E. I., its direction,

i. 30 ; lengths opened, ib. ;

i. 200 ; the £. B., ib. ; i. 468 ;

the Northern Bengal, t. 540 ;
E. B. S. vested in the Govt.
of Bengal, ii. 831 ; also, ii.
603 ; ii. 699 ; ii. 828 ; ii. 871 ;
ii. 936.

Rajendra Lala Mitra, Raja, ii. 1058.

Ram Gopal Ghose, Babu, ii. 1023.

Rama Nath Tagore, Maharaja, ii.
1049.

Ramtanu Lahiri, Babu, ii. 1026.

Reformatories, ii. 657.

Rent Law, Sir A. Eden on, ii. 704.

Report, Annual required, i .5 ; the
Bengal administration, its style
improved, i. 172 ; of the
Indigo Commission, i. 189;
Sir A. Eden on the an-
nual administration, ii. 690.

Reynolds, the Hon'ble Mr., on
the Calcutta Port Trust, ii.
878.

Rhotas, the, ii. 576.

Ricketts, Sir H., Commissioner for
the revision of Civil sala-
ries, i. 31.

Riots, in Calcutta, ii. 1004.

Ripon, the Marquis of, insulted, ii.
787 ; a conspiracy against, ib.

Risley, H. H., c. s., his Ethno-
graphic Glossary and Anthro-
pometric Data, ii. 915.

Roads, want of, i. 28.

Road Cess, Sir W. Grey on, i.
441 ; Govt, of India on, ib. ;
Secy, of State on, i. 453 ;
introduced, i. 488 ; Resoln.
of August 1871, i. 490 ; Pro-
clamation, i. 491

Roberts, Lord, in the Lushat ex*
pedition, i. 504.

Sadar Amin, abolished, i. 278

Salaries, Civil, revision o^ i. 3a

INDIX.

1119

Sale Law. See Act XI of 1859.

Salt manufacture^ first established
by Lord Clive, i. 287 ; aban-
doned, ib.

Sanitary Commissioner, appoint-
ment of, i. 419.

Sanitation, rural, ii. 938.

Satya Charan Ghosal, Raja Baha-
dur, ii. 1078.

Schools, Bible reading in, i. 222 ;
Normal, i. 288 ; Secretary of
State on indigenous schools, i.
289 ; The Industrial School of
Arts, i. 289 ; Technical, ii.
711.

Secretariat, the Bengal, ii. 738 ;
reconstitution of, ii. 695.

Secretary of State, on the practice
of carrying the sick to the
riverside, i. 324; despatch
on polygamy, i. 326 ; despatch
dated 25th July 1867, on the
Orissa famine, i. 378 ; on
Govt, of India's Resoln.
of 19th August 1867, i.418 ;
despatch of January 1868,
426 ; on Road Cess i.
441 ; Education despatch of
1 2th May 1870, i. 441.
on a Gazetteer for Bengal i.
4 $6 ; despatch of February
1 87 1 on the decentralisation
of the finances i. 476.
Sedition i. 40 ; i. 434 ; ii. 720.
Self-Govemment, i. 280 ; ii. 805 ;
ii. 976 ; Sir G. Campbell on,
i. 522 ; Sir A. Eden on, ii.

742.
Seton Karr, W. S., on the admi-
nistration of Lord Dalbousie
i. 2 ; on Sir J. P. Grant, i. 164 ;
i. 165 ; i. 170 ; i. 233, on

the Nil Darpan^ i. ^199;
Sir J. P. Grant on, i.201 ;
Govt, of India i. 204 ; his
apology, i. 206 ; Secy, of
State on, ib. ; his '* Grant of
Rothiemurchus" quoted, i. 267.

Shillong, i. 287.

Shoe-question, i. 428.

Sikhim, i. 223 ; our relations with,
ii. 842 ; expedition, ii. 848 ;
The Anglo-Chinese Conven-
tion of 1890, ii. 852 ; Sir
C. Elliott on, ii. 909 ; dispute
with Tibet, ii. 975.

Smith, Bosworth, his Life of Lord
Lawrence quoted, i. 378.

Sonthals — their origin &c. i. 11;
insurrection in 1855, i. 11 ;
bondage, i. 178 ; excitement
among i. 485 ; ii. 657 ; intem-
perance, ii. 655.

Sonthar/'rtr^wtfj— formation of a
separate district i. 16 ; Sir G.
Campbell on the system of
administration, i. 486.

Sourindro Mohan Tagore, Raja Sir
ii. 1081.

Star of India, Order of the, i.
225.

Statistical Department, ii. 664.

Statutory Civil Service ii. 792.

Stevens, Sir C. C, Officiating, Lt.
Govr., ii. 1003 ; on the Chitta-
gong Cyclone of 1897, ii.
1009 ; on Babu Ramtanu
Lahiri, ii. 1026.

Stormwave of September 1885, in
Orissa, ii. 822.

Strachey, Sir John,— on Bengal
in 1853, i. 24 ; on insani-
tary condition of Calcutta, i.
280 ; on decentralisation of

1120

INDIX.

Jinances, i. 476, on Act III
of 1884 ii. 790.

Sub-Deputies Sir G. Campbell,

on, i. 538.

Sub-Divisions, i. 219.

Subordinate Executive Service, i.
418 ; ii. 867 ; a new grade
opened, ii. 725, competitive
system introduced, ii. 791.

Subordinate Judges, i. 278.

Sunday, Panic, i. 38.

Sundarbans, i. 408 ; ii. 613 ; recla-
mation of, i. 320.

Surveyand Settlement — in Muzaffar-
pur, ii. 816 ; ii. 870 ; in
Bengal and Bihar, ii. 887 ; in
Orissa and North Bihar, ii.
972.

Suttee— ?iVi account of a, i. 160.

Svarnamayi, the Maharani, ii. 1062.

Tayler, W, (c. s.^, his removal
from Commissionership, i. 42 ;
i. 72 ; his **Brief narrative
&c." i. 43 ; appointed Judge
of Mymensingh i. 44 ; sus-
pension, ib. ; his appeal to
the House of Commons, ib.

Temple, Sir Richard, on Sir J. P.
Grant, i. 169; his 'English
Men of Action, Lord Lawrence'
and 'Men and Events of my
time in India' quoted i. 378 ;
ii* 593 } ii- ^2 ; extended the
Road Cess Act, i. 492 ; on levy
of illegal cesses by zatnindars^
i. 551 ; as famine delegate, i.
565 ; ii. 575 ;. ii. 581 ; The Cal-
cutta Review on, ii. 573 ; birth
and career, ii. 573; Lieutenant-
Governor ii. 577 ; on the
Bengal- Bihar famine, ii. 574 ;

ii. 585 ; on railways, ii.
603 ; on canals, ii. 606 ;
on drainage, ii. 608; on the
Burdwan fever, ii. 612 ; on
the preservation of forests, ii.
613 ; on scientific agricul-
ture, ii. 616 ; on the Sibpur
Botanical Garden, ii. 618 ;
opened the Zoological Garden,
ii. 618 ; readjusted several
Civil Divisions of Bengal, ii.
620 ; on the Calcutta- Howrah
Bridge, ii 622; on Pri-
mary Education, ii. 623 ;
on Technical instruction, ii.
635 ; on the education of
poor Europeans and East
Indians, ii. 627 ; established
the Art Gallery, ii. 628 ; pro-
posed a separate University
for Bengal, ii. 628 ; his Mi-
nute on rent difficulties, ii. 631 ;
on indigo disturbances in
Bihar, ii. 638 ; on the deter-
mination and enhancement
of rent, ii. 639 ; reformed
the Calcutta Municipality, ii.
646 ; on Mufassal Muni-
cipalities, ii. 649 ; on Sikhim-
Tibet trade*rout<^ ii. 649 :
on the Excise policy,
ii. 651 ; on intemperance
among the Sonthals, ii. 655 ;
established reformatories, ii.
657 ; on the powers of the
Bengal Council, ii. 659 ; on
Civil Appeals and Appellate
Benches, ii. 660 ; on the Econo-
mic Museum, ii. 663 ; on the
Statistical Department and
Industrial Survey, ii. 664 ; on
the Civil Service, ii. 665 ; pro-

IJIDliX

11^1

■posed the formation of foar new
districts, ii. 666 ; Minute
on appointment of natives
to higher Judicial and Ex-
ecutive offices, ii. 666 ;
Minute on a sensational
case, ii. 672 ; description of
the cyclone and storm-wave
of 31st October, 1876, ii. 674 ;
on miscellaneous matters, ii.
679 ; narrow escape from an
accident, ii. 680 ; his "Story of
my Life" quoted i. 556 ; ii. 681 ;
deputation to Madras . and
Bombay on famine duty, ii.
683 ; appointed Governor of
Bombay, ii. 684 ; ii. 686 ;
Govt of India on, ib ; a con-
temporary author on^ ii. 684 ;
his subsequent career, ii. 686 ;
as an author, ii. 686 ; The
World on, ii. 687 ; his
marriage, ib.
Thompson, Sir Augustus Rivers,
career, ii. 760 ; Lieutenant-
Governor ii. 761 ; opinion on
the Bill to amend the Criminal
Procedure Code, ii. 776 ; Com-
mission to inquire into working
of Orissa • Canals, ii. 793 ;
on admission of females as
students to the Calcutta Medi-
cal College, ii. 795 ; on the
Native and Anglo-Native
Press ii. 797 ; the Inter-,
national Exhibition of 1883-84,
ii. 799 ; created an Agricul-
tural Department, ii. 802 ; on
the Kidderpore Docks, ii. 804 ;
on Local Self Government
Act, ii. 807 ; on the Bengal
Tenancy Bill, ii. 809 ; a Sani-

tary Comilfiission for Calcutta
ii. 817 ; the Commission to
examine into the defences of
the Hooghly and ' the- Port
of Calcutta ii. 8t8 ; bn the
amalgamation of the suburbs
with Calcutta,' ii. 8ig; on
Appellate Benches ii. 821 ; on
Ethnological inquiry, ii. 823 ;
appointed an Excise Commis-
sion, ii. 824 ; on Archaeology,
ii. 831 ; on miscellaneous mat-
ters, ii, 833 ; observations on,
ii. 835 ; his marriage and death,
ii. 836.

Tornado of April 1888, ii.857.

Tours, Sir C. Elliott on, ii. 942 ;
Sir A. Mackenzie on, ii. 972.

Tramways, ii. 727 ; ii- 803.

Tree-daubing, ii. 954.

Trevelyan, Bart^ Sir C. — on Sir
J. P. Gram i. 167.

Troops, European, in Bengal at the
out-break of the Mutiny i. 6 ;

withdrawn from small outsta-

tions ii. 726.

Universities— scheme for, i. 8 ; The
Calcutta University, ib. ; ii.
628;

Volunteers, i. 36 ; i. 165 ; i. 225.

Wahabi conspiracy, i, 317 ; i. 432.

War, the Russo-Turkish, ii. 691.

Waste lands, i. 542.

Widows, Hindu,— burning of, i.
160 ; their re-marriage bill,
i. 236 ; Act XV of 1856, i. 22.

Wilson, Bishop, i. 44 ; laid the
foundation stone of St. Paul's
Cathedral, i. 45 ; his advocacy
of steam communication, lA

1122 INDEX*

Wood, Sir Charles,— his Education Writers' Buildings, i. 548 ; ii. 738.
despatch, i. 6 ; on the revision

of Civil salaries, i 30 ; on Act Zamindars, deprived of right of
XI of i860 ; i. 191 ; on Indigo collecting duties on spirits

Commission's Report, i. 195 ; and drugs, i. 19 ; Sir G. Camp-

on police reform, i. 231 ; on ^^ on their illegal exactions,.

Bhutan, i. 309. »• 55o-

Printed at ihe Oottok Pbbss 45» BaniatoU Lane— CalcutU-

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Full text of "Bengal under the lieutenant-governors: being a narrative of the principal events and public measures during their periods of office, from 1854-1898"

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