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THE

NDIAN CONSTITUTION

V. R. SUBRAHMANYA AIYAR M. A , M. L.

Senior Professor of haw, Rolkar College, Indore.

Member of the Facullij of Lau? and the Academic Poard,
Convener, Board of Studies in Lau?, Agra Uniuersitij.

( Formerl-q High Court Uakil, Honi^. First Class Magistrate,
and Honij. Co-opera tius Organiser, Trauancore ).

Author of

" LEGISLATION IN INDORE "

" CThe Neu? Constitution of India " &.c.

WUh a Foreword by

VVazir=U(I-DauIah Rai Bahadur
5ir S. M. BAPNA Kt., C- I. E.

B. A,, B, SC, LL. B.

Prime Minister and President, Legislaliue Council, Indore.

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—■■•'•-' 1111

i BY THE SAME AUTHOR

THE NEW CONSTITUTION OF INDIA

With a Foreword by

Mashir Bahadur Dr. P. BASU M. A , Ph. D., B. L.

Principal, Holkar College, Indore,

and

UicC'-ChanceUor, Agra Uniuersilij.

" This study of the Act for the general reader has
sen considerably simplified by the present brochure
'rofessor Aiyar has carefully analysed the provisions o
le Act bringing out its main features. His explanation:
re lucid and his grasp of the subject thorough. It ii
ot easy to show all this within two hundred and fift;
ages. This is his credit as also the special merit o
is book. I have no hesitation in recommending it tc
\{ who want clearly to understand the fundamenta
'■^^0Tr\S^^>t,he new constitution and I hope that this boo!
7ill be widely read by the educated public of India."

!VUV 6 'jQ7R {Extract from the Foreword ).

FOREWORD.

The common complaint of the layman is that
constiluticns and the measures that embody them are
set out in a language that remains highly technical.
Consequently though every one is governed by the Law
laying down the Constitution, a very small percentage
of the people understand it. That is not a desirable
state of affairs; but it exists.

It is there lies the usefulness cf books like the one
written by Mr. V. R. S. Aiyer. They help the average
educated man to understand the law to which he is
subject every day of his life and, perhaps imperceptibly
enable him to model his life in full understanding of
the piovisions of the law. Mr. Aiyer's additional object
is to make the Government cf India Act (1935)
intelligible to the student. Both by his intimate contact
with the student world and his past experience Mr.
Aiyer is fully qualified for catering to the needs of that
class, anxious to understand ccmplicated legal enact-
ments; and his book is a valuable contribution in that
direction and presents a complete summary of the Act
with sufficient legal accuracy.

Mr. Aiyer has quite rightly not expressed any
views regarding the merits of the constitution that is set
out in the Government of India Act (1935). The Cons-
titution has yet to ccme into foice and diverse opinions

are held about its several details. How the Great Ex-
periment is going to take shape v\iil depend on a large
variety of considerations that are independent of the
letter of the Constitution. Dealing with the prospects
of success of the constilulion might have created con-
fusion in the mind of tie student and hindered, rather
than helped towards the realisation of the object of the
author, viz., enabling the young mind to get a clear
grasp of the implications of the various provisions of the
Government of India Act.

S. M. Bapna.

PREFACE.

This book is modelled to meet the requirf merits
of the general public who desire to have an idea of
the new Constitution of India, and of College
students who have got to study the Government of
India Act of 1935 as a part cf their course. In
the earlier chapters an idea of a Federal Constitution
and a survey cf the history of the Indian Constitution
up to 1935 are given. A summaiy of the Act and
of the Schedules thereto is then given. The last
five chapters contain a reprint of important Sections of
the Act; and notes are given for several of them. In the
Appendices the trends of developmiCnt of the Adminis-
trative machinery, civil and military, are dealt with.

I have inserted in appropriate places some extracts
from the series of my articles on the "States and Federa-
tion" and en the "Public Services." I have also embo-
died in this book practically all the chapters of my book,
''The New Constitution of India,'' which was intended
mainly for Law students.

I am obliged to Mr. W. Y. Pande M. A., LL. B.,
of the Indore Bar, who drafted the summary of about
forty sections of the Act, and to my brother, Mr. V. E,
Sadasivan M. A., who prepared the Index and helped
me considerably in seeing the book through the Press.

I am deeply obliged to Wazir-ud-Daulah Rai
Bahadur Sir S. M. Bapna Kt., C. I. E., B. A., B. Sc,
LL. B., for writing the Foreword.

I am thankful to the Goveinment of India for the
permission granted to reprint important Sections of
the Act.

My thanks are also due to my brother co-opera-
tors Prof. W. G. Urdhwareshe M. A., F. R. E. S. and
Mr. D. R. Ektare B. A. in charge of the Indore Co-
operative Printing Press for help rendered in con-
nection with the publication.

Indore, January, 1937. V. R. S. Aiyar.

"That humble, simple duty of the day

Perform he bids; ask not if small or great;

Serve in thy post, be faithful and obey;

Who serves her truly, sometimes saves the State'

CONTENTS.

Page.
Foreword

1 rGlflCB ^ ••• ••• ••• •••

Chapter I. — Introductory Explaiications ... ... 1

Constitutions — Composite States — Unions — Con-
federations—Federations— The American Con-
stitution— Swiss Constitution — Australian Con-
stitution.

Chapter II. — Historical Survey... ... ... 7

Period of Charters — Period of territorial Sove-
reignty— Period of Sovereign Government by the
Crown — The Act of 1892 — Minto-Morley Reforms
— Montagu-Chelmsford Reforms.

Chapter III — Constitutional Investigations from 1920

to 1935 ... ... ... 16

The Muddiman Committee — Enquiry and Report
— Lord Reading's Letter to the Nizam — Simon
Commission Enquiry — Butler Committee — Nehru
Report — Butler Report — Simon Report — R.T.C. —
Federal Idea — Communal Award — Sapru Memo-
randum-White Paper-J. P. C. — AgaKhan Memo-
randum—J. P. C. Report— The Bill.

Chapter IV — The New Constitution ... ... 49

Federation — Units— Accession of States — Exe-
cutive— Council of Ministers — Reserved Subjects
— G-G's Special Responsibilities — Instrument of
Instructions — Federal Legislature — Legislative
Procedure — Financial Matters — General Proce-
dure— G-G's Legislative Powers — G-G's Acts —
Safeguards against failure of Constitutional ma-
chinery — Provincial Governments — Provinces-

Governor's Administration — Special Provisions —
Provincial Legislatures — Excluded Areas — Chief
Commissioners' Provinces — Legislative and Admi-
nistrative Jurisdiction — Lemslative .Powers —
Jurisdiction — Legislative Lists — Emergency
Legislation — Restriction of Legislative Powers —
Discrimination — Medical Qualifications — Admini-
strative Relations between Federation, Provinces
and States — Administration — Broadcasting —
Water sup[)lies — Crown and States — Financial
Provisions — Borrowing — 'Audit and Accounts —
Property, Contracts — Liabilities and suits.

Chapter V — The New Constitution (Contd.) ... ... 86

Federal Railway Authority.

Functions — composition — direction and
principles — P"inance — Railway Rates Commi-
ttee—Railway Tribunal,

Judicature.

Federal Court— Constitution — Jurisdiction —

State Courts.
Courts in B. India — constitution and jurisdic-
tion.
Services of the Crown.

Defence services— civil services — recruitment

by Secretary of State— judicial officers —

miscellaneous.

Public Service Commissions— composition —

functions.
Secretary of State and his advisers— organi-
sation.
Miscellaneous and General,

Crown and Indian States — Aden — New Pro-
vinces— Franchisee — Legal matters — Existing
Jaw — Foreign jurisdiction— General-High
Commissioner — Constitutional amendments

and Orders in Council. — Transitory provi-
sions— Commencement and repeal.

The Schedules. First Schedule— Federal Legis-
lature— States' Representatives— schedules
2 to 5 — Provincial Legislature — franchise —
Federal Railway Authority &c.

Chapter VI— The Government of India Act, 1935, ... 114

Parts I and U. with notes.

Chapter VII— The G. of L Act, 1935. ( contd )... ... 162

Parts III, IV, V, VI, VII, with notes.

Chapter VIII— The G. of I. Act, 1935. (contd)..- ... 207

Parts VIII, IX, X, with notes.

Chapter IX— The G. of I. Act, 1935. ( contd )... ... 239

Parts XI, XII, XIII, XIV, ^vith notes.

Chapter X— The G. of I. Act, 1 935. Schedules ... ... 261

Federal I egislaturr — Table of Seats — Provincial
Legislature — Frandtise — U. P. Legislature —
Legislative Lists.

Appendices ... ... ... ... i

A. General Administration.

B. Control from Encjland.

C. The Judiciary.

D. The Public Services.

E. Defence.

F. Extracts from Proclamations, speeches and
writings on Indian Policy. 1 to 10.

G. Draft Instrument of Accession.

H. Select opinions on the White Paper, Simon
Report and Dominion Status.

Index ... ... ... ... ... XXV

•Cirra ta... ... ... ... ...

" It is axiomatic that the spirit in which a constitution
is worked must in the long run count for more than the letter
in which it is written. For myself I am able to assure you
that, for such time as I am holding my present office, it is
my intention to interpret my duty with liberal and sympa-
thetic mind For my part I shall be found ready and

anxious, when the time comes, to work to the best of my
power with any and every political party willing to work
the constitution that may succeed in winning the confidence
of the electorates." — His Excellency The Marquis of
LINLITHGOW.

" The political evolution of India has reached a point
where in their respective spheres the Governor-General and
Governors of Provinces should more and more seek to
observe those conventions which regulate the attitude to-
wards matters of contemporary public controversy, of the
('rown in Great Britain and of the representatives of the
Crown in, for example, Canada and Australia, for, democra-
tic institutions require for their successful working that all
parties in the State which, whether in office or in opposition
work within the Constitution, should be able to feel that at
the head of the State there is some one above party and
above the heat and the dust of party warfare to whom they
can at all times and whatever their political fortunes for
the time being look with confidence for all proper counte-
nance and support." — His Excellency The Maiquisof
LINLITHGOW.

THE INDIAN CONSTITUTION

Chapter I

INTRODUCTORY EXPLANATIONS.

The Constitution: — A State is defined by Maclver as "an
association, which, acting through law as promulgated by
government endowed to this end with coercive power,
maintains within a community, territorially demarcated, the
universal external conditions of social order". Constitutional
law is the body of principles which determine the essential
and fundamental portions of the State's organisation.
" The Constitution of a Stute consists of those of its laws
or rules which determine the form of its government and
the respective rights and duties of it towards the citizens
and of the citizens towards the government. " ( Bryce )

Composite States: — States are variously classified
according to different painciples. Under one such princi-
ple, States are either unitary or composite. Composite
states involve the union under a government of a number
of political entities retaining separate administrations.
" In the form of empire, the components do not create the
common government. In the form of federation, the com-
ponents both retain a degree of sovereignty and together
constitute the sovereign power, which upholds the federal
union." ( Salmond ). It has to be noted that " so long
as the sub-divisions in a state are really nothing but historical

The Indian Constitution Ch. I

or administrative circumscriptions without an extensive
local autonomy of right, the state is simple in form, not
federal."

Unions: — Unions are of various kinds. They may be
personal unions, where two or more states, wholly separate
and distinct in their external and interna] relations, are
associated under the same reigning sovereign. The only
bond of union is the Crown eg. between England and
Hanover between 1714 and 1837. A real union results from
the joining together of two or more states, not merely
through the common ruler " but through the creation of
common constitutional or international arrangements for the
administration of common affairs." Hall says that '* such a
union occurs when states are indissolubly combined under
the same monarch, their identity being merged in that of
a common state for external purposes, eg. old Austria-
Hungary, Norway and Sweden from 1S15 to 1905."

Confederations: — There are leagues or unions of states
which seem to fall somewhere between mere alliance and
federation. They differ from alliance in having a form
of common government, so that they act through a single
recognised authority in matters affecting the whole body
mainly in respect of external relations. They differ from
federations in that this common government deals only with
the constituent states and not directly with their individual
citizens. The old American Confederation was of this
type. Willoughby states the distinction thus in his
" Fundamental Concepts of Public Law ": — " In the federal
state, a true central state is created, its several units are
legally and constitutionally united, and sovereignt)' resides
in the central federal body. In the Confederacy, the

Introductory Explanations

individual states retain their character as States, and the
relations to each other are of an international or treaty
character. Consequently no central state is created, and
sovereignty lies wholly within such individual political
units. What union there is in the confederacy is the creation
of the wills of individual states. In the Federal State its
foundation rests in itself."

Federations: — "The name federal government may be
applied to any union of component members where the
degree of union between the members surpasses that of mere
alliance, however intimate, and where the degree of in-
dependence possessed by each member surpasses anything
which can come under the head of mere municipal
freedom. " ( Freeman ). Federation is often a device
invented by constitutionalists for the proper governance of
unweildy areas. Sidgwick points out that the maintenance
of the federal system in the United States of America may
be partly attributed to a sense of the difficulty of governing
the vast territory by the methods of a unitary state. The
two essentials for the formation of a federation are a desire
for union but not for unity, and some common interests such
as language, racial affinities, culture, civilisation, traditions,
&c. The characteristics of a federation are the supremacy
of the Constitution (with its attendant consequences that
the constitution must be written as embodying the terms
of a solemn contract, that the constitution must be rigid,
and that the legislature in a federation is a non-sovereign
law-making body ), the separation of powers, and the
authority of courts. It is also pointed out by Dicey that
when compared to a Unitary constitution, federal govern-
ment is weak, that the constitution leads to conservatism

The Indian Constitution Ch. 1

( being like a slumbering monarch hard to rouse ), that it
leads to the predominance of the judiciary and that litiga-
tion is substituted for legislation. It is, however, pointed
out by Munro in his book " United States of America, "
that for internal efficiency federal government is as good as
any other form; the weakness, if any, will be only if the
foreign policy of the federation is aggressive with a view to
getting the benefit of territorial aggrandisement.

The American Constitution:— For noting the analogous
conditions in other federations, a few points may be men-
tioned. The central legislative power in the United States
of America is vested in the President and the Congress,
which consists of two Houses, the Senate and the House of
Representatives. The Senate is composed of two represen-
tatives from each State chosen for six years. The Vice-
President of the United States is thePresidentof the Senate.
For the President, its consent is necessary in the appoint-
ment to public offices and the conduct of foreign affairs.
The House of Representatives is composed of members
elected for two years by various States in proportion to the
size of their population. The assent of both Houses is
required for any measure. If the President dissents, the
measure is returned to the House which initiated it, and if
it is again passed by a majority of two-thirds in both
Houses, it becomes law. The Supreme Court has power to
try all cases arising under the Constitution, each individual
State having also a separate Court with exclusive jurisdi-
ction in matters not involving the interpretation of federal
statutes. Amendments to the Constitution may be pro-
posed by the Congress with the approval of two-thirds of
both Houses, or by a convention summoned on the

Introductory Explanations

application of two-thirds of State legislatures. The proposed
amendments must be subsequently ratified by at least three-
fourths of the State legislatures. Powers not delegated to
the centre, nor prohibited by it to the States, are reserved
to the States. The central executive is vested in a Presi-
dent, who is elected together with the Vice-President for
four years.

The Swiss Constitution :~In Switzerland, side by side
with a federal government, the legislative powers of which
are strictly defined, there exist the local legislatures of the
various Cantons with undefined legislative powers. The
Federal Government consists of (i) a Federal Executive
Council composed of seven members, elected by both
Houses of the legislature sitting together in Congress, for
three years. (2) a Federal Legislature consisting of two
Houses, viz., the Council of States, composed of two
members elected from each of the cantons, and the
National Council composed of members elected for three
years by the people in each canton in proportion to their
population. The members of the Federal Executive Council
may introduce a measure or speak in either House but
they cannot vote. The President and the Vice-President
are nominated annually by the Legislature. The Federal
Council has certain Judicial powers in deciding questions
of constitutional and administrative law. They are not
dismissable by the legislature. The Judiciary is composed
of ninteen members chosen by the legislature for six years.
It has no power to decide the validity of laws passed by
the federal legislature or to decide cases of administrative
law. No alteration of the constitution can be effected
without resorting to referendum.

The Indian Constitution Ch. I

The Australian Constitution :-The Australian Common-
wealth exhibits the following characteristics: — (i) a
Federal form of Government, (2) a Parliamentary Executive;
(3) an effective method for amending the Constitution.
The powers of the federal government, both executive and
legislative, are, though wide, definite and limited; the powers
of the separate States are indefinite, so that any power not
assigned by the Constitution to the Federal Government
remains vested in each of the several States. The House
of Representatives represents numbers; the Senate represents
the States of the Commonwealth; and each of the Original
States is entitled, irrespective of its size and population, to
an equal number of senators. The courts and ultimately
the Federal Supreme Court, are intended to be the inter-
preters, and in this sense the protectors of the Constitution.
The Executive of the Commonwealth is a Parliamentary
Cabinet. A law changing the Constitution must be passed
by an absolute majority of each House of Parliament; it
must then be submitted to the electors of the Common-
wealth; if in a majority of the States, a majority of the
electors voting approve the law, and a majority of all the
electors voting approve the law, then it will duly become
law according to the usual procedure. ( Dicey. )

If the constitution can be altered by the same process and
body by which ordinary laws are passed, then the constitution
is said to be flexible; otherwise it is rigid. Under " admini-
strative law" as distinguished from the 'Rule of Law' prevalent
in England, tribunals separate and distinct from the ordinary
courts of justice, and constituted on different principles, are
provided for the adjudication of disputes between private
individuals and public authorities, and of disputes among
administrative officials themselves.

Chapter II

HISTORICAL SURVEY.

Inlroductory: — It is customary, to divide the Consti-
tutional History of Modern India into certain well-marked
periods, viz. (i) from 1600 to 1765 — the period of charters
to the East India Company, (2) from 1765 to 1857 — the
period of territorial sovereignty of the Company, (3) from
1858 to 1919 — the period of sovereign Government by the
Crown, and (4) the period of Responsible Government
from 1 9 19.

The period of Charters: — During the first of these
periods, thirteen charters were granted. Among other
conditions, it was provided that the laws made by the
Company were to be "reasonable and not contrary to the
laws, statutes and customs of the English realm."

The Second period:— The period of territorial sove-
reignty of the Company commences with the grant of the
Diwani to the Company by the Moghul Emperor in 1765.
The Regulating Act of 1773 "definitely recognised the
political functions of the Company, but asserted for the
first time the right of Parliament to dictate the form
of Government for the Company's possessions." It cieated
a Governor-General of Bengal in Council in Calcutta, with
power of control over Madras and Bombay, and with
legislative authority to promulgate Ordinances and Regula-
tions. A Supreme Court was constituted in Bengal and
a Court of Directors in England. The Act of 1781 rectified

The Indian Constitution Ch. II

some of the defects of the Regulating Act by settling the
question relating to the jurisdiction of the Supreme Court,
and by exempting the public servants of the Company from
the jurisdiction of the Court for acts done in their official
capacity. The court was to administer the personal law
of the defendant, and to respect the religious customs of
people. The Act of 1784 placed the Government in India
under the Board of Control in England. The Act of 1793
contained the official declaration of the disavowal of a
policy of extension and expansion of territories. The Act
of 1800 created a Supreme Court at Madras. The Act 1807
conferred some legislative powers on the Governors in
Council at Bombay and Madras. The Act of 1813 em-
powered the local governments to impose taxes on persons
subject to the jurisdiction of the Supreme Courts. The Act
of 1835, while permitting the immigration of Europeans,
empowered the Governor-General in Council to provide for
"the protection of the natives from insults and outrages
in their religions and opinions. " Equality of opportunity
for the admission of qualified Indians to the Public Service
was enunciated. A Law Member was added as an
extra-ordinary member of the Council of the Governor-
General of India. His function was to help in making laws
and Regulations. The legislative powers of the Governors
of Madras and Bombay were taken away. The Indian Law
Commission was constituted. The Act of 1853 made the
Law Member an ordinary Member of the Governor-
General's Council with power to sit and vote on all matters
like other members. The Executive council was expanded
for legislative purposes by the appointment of six more
persons as additional members for legislation; each of the
local Governments of Madras, Bombay, Agra, and Bengal,

HlSTORTCAI, SriRVEV

had to send one ofticial representative; the otlior two were
the Chief Justice and a Puisne Judge of the Supreme Court
at Calcutta. The proceedings of the Legislative council
were held in public and were published from time to time.
The Act of 1854 laid down the "mode of passing Letters
Patent and other Acts by the Crown relating to India. "

Period of Sovereign Government by the Crown: — The

Act of 1858 transferred the Government from the Company
to the Crown and created the Secretary of State and the
Council of India. The East India Company however
wrote: — " Let Her Majest}' appreciate the gift; let Her take
the vast country and the teeming milh'ons of India under
her direct control; but let her not forget the great corpora-
tion from whom she has received them, nor the lessens to
be learnt from its success. " Her Majesty's Proclamation
expressed the earnest desire "to administer the Government
for the benefit of all our subjects resident tlierein. " The
following extracts from that Magna Carta of India are
noteworthy: — "We desire no extension of our territorial
possessions. We shall respect the rights, dignity, and honour
of native Princes as our own. It is our further will, that,
so far as may be, our subjects of whatever race or creed, be
freely and impartially admitted to office in our service ".
( See Appendix F )

The Indian Councils Act ofi86iwas passed because
the Legislative Council created by the Act of 1853 converted
itself into an Anglo-Indian House of Commons. The new
Act enlarged the Executive Council of the Governor-
General by adding a gentleman of the legal profession,
a jurist rather than a technical lawyer. The Legislative
Council vras to consist of not less than six and not more

C.L. 2

The Indian Constitution Ch. II

than twelve additional members, of whom at least one-
half should be non-official members. Madras and Bombay
got back their legislative powers; but the assent of the
Governor-General was required for the Provincial ActS; The
Legislatures were merely advisory bodies.

The High Courts Act of 1861 empowered the Crown
to establish High Courts at Madras, Bombay and Calcutta,
with a Chief Justice and not more than 15 judges. In 1866
the Allahabad High Court was created.

The Act of 189 2: — The Indian Councils Act of 1892
enlarged the size of the Legislative Councils and the scope
of their functions, and changed the method of nomination
of members. The Governor.General's Council was to have
not less than ten and not more than sixteen members; the
Councils at Bombay and Madras were to have not less than
8 and not more than 20; the Bengal Council was to have not
more than 20, and the Council for the N. W. Provinces not
more than fifteen. The members recommended or elected
by certain bodies or territorial groups were to be nominated
by the Government. The Councils could discuss the annual
Financial statement, without power to vote, and could
interpellate Government on matters of public interest.

In August 1907 two Indians were appointed as
members of the Council of India. In March 1909 Mr. S.
P. Sinha was appointed as Law Member of the Government
of India.

The Minto=MorIey Reforms: — The Indian Councils Act
of 1909 effected improvements in the constitution and
functions of the Legislative bodies in India, and introduced
the principle of separate electorates. The maximum for

Historical Survey

the Governor-General's Council was fixed at 60; that for
the Punjab and Burma at 30; and for other Provincial
Councils at 50. Except the Imperial Legislative Council,
all the others had a non-official majority. A large number
of non-officials were elected by territorial and other
constituencies, while some were nominated also. The
non- official members of the Provincial Legislative Council
were the general electorate for the Imperial Council, which
had also special electorates for land-holders, Muhammadans,
and the Bengal and the Bombay Chambers of Commerce.
The same system of general and special electorates was
followed in the case of the Provincial Councils. The right
to discuss and vote on matters of general public interest,
to discuss and vote on resolutions relating to the preliminary
Financial Statement under items open to discussion, to
discuss, but not to vote on, the Budget, to put supplementary
questions Restricted to the original interpellator only),
constituted the salient features of the Minto-Morley Reforms
of 1909. Viscount Morley however said; — " If I were
attempting to set up a Parliamentary system in India, or if
it could be said that this chapter of reforms led directly
or necessarily to the establishment of a Parliamentary
system in India, I, for one, would have nothing at all to do
with it." An Indian was appointed as member of the
Executive Council of the Governor in each of the Provinces,
which had an Executive Council, though this depended on
convention and was not made a statutory obligation.

THE MONTAGU-CHELMSFORD REFORMS.

Genesis:— The auspicious event of the Imperial visit in
December, 191 1, the creation of the Presidency of Bengal
annulling the settled fact of the Partition, the creation of

The Indian Constitution Ch. II

an Executive Council for Bihar and Orissa; the conferment
of authority to create Legislative Councils for territories
under Chief Commissioners, the creation of a High Court
at Patna under the powers conferred by the Indian High
Courts Act, 19 II, are the points to be noted in the interval
before 1919. A variety of circumstances contributed to the
introduction of the Montford Reforms of 19 19 within ten
years of the Minto-]\Iorley Reforms. India's contribution
to the prosecution and successful termination of the War
was marvellous. Sir M. Visvesvarayya, in his book
" Planned Economy for India "says: — "It maybe mentioned
that in the Great War ( 19 14-18 ) the total contribution of
personnel by India was 1,457,000 men, of whom, 1,381,000
served overseas. This is equivalent to about 25% of the
total contributed by Great Britain. The Overseas Dominions
sent between them 12% of the same total." ''The bare
list of donations by Princes fills 200 printed pages. In
money, in cars, and in supplies, the aggregate value of
these gifts totals many millions." " The casualities on the
Indian side amounted to nearly a lakh of soldiers." These
and the large contributions from the Indian Exchequer and
the Indian public naturally kindled hopes of a substantial
recognition. The agitation for reforms was carried on by
the Home Rule Leagues. The Congress and the re-organised
Moslem League put forward joint proposals known as the
Congress-League Scheme embodying the minimum demands
of the nation. Nineteen members of the Imperial Legis-
lative Council submitted to the Governor-General the
" Nineteen Pvlemorandum " embodying the reforms requir-
ed. Then came the Mesopotamia Commission and the
resignation of IMr. Austen Chamberlain of his post of the
Secretary of State for India. On the ^oth August, 1917,

Historical Survey

Mr. Montagu, the new Secretary of State, made the historic
dechiration that " the policy of His Majesty's Government,
with which the Government of India are in complete accord,
is that of the increasing association of Indians in every
branch of the administration and the gradual development
of self-governing institutions with a view to the progressive
realisation of responsible government in India as an integral
part of the British Empire. The British Government and

the Government of India must be the judges of the

time and measure of each advance", as progress can only
be achieved by successive stages. These and other points
were embodied in the Preamble to the Government of India
Act of 19 19. ( Appendix F ).

The Secretary of State and the Governor-General
toured in India with some other colleagues and drew up
their Report on Indian Constitutional Reforms ( the 22nd
April 19 iS) which formed the basis for a bill introduced in
Parliament. Three Committees viz. the Southborough
Committee, the Feetham Committee, and the Crewe Com-
mittee submitted their reports on the various Constitutional
problems. The Bill, after the usual stages, including consi-
deration by a Joint Select Committee under the chairman-
ship of Lord Selbourne, was placed on the statute-book
as the Government of India Act of 191 9.

The Central Government:— The Reforms of 1919 did
not introduce any new changes in the Central Executive
except that a convention was adopted of appointing three
Indians as Members of Governor- General's Executive Council.
Sir John Marriott writes thus in his " English Political
Institutions ":•—" The changes introduced by that Act ( of
1919) into the Supreme Government of India, though

The Indian Constitution Ch. II

considerable, are relatively unimportant. Now, as formerly,
executive power is vested in the Viceroy and his Executive
Council, who are appointed by the Crown, and are res-
ponsible to the Secretary of State in Council and Parlia-
ment. The Government, in fact, remains an autocracy
tempered by a bicameral Legislature. The right of granting
supplies and of legislation is vested ordinarily in the
Legislature; but in order to prevent a deadlock between
the legislature and the executive, the Viceroy is empower-
ed, when necessary, to override the will of (he legislature
both in regard to legislation and taxation. " The lower
House ( the Assembly ) got the right to elect its own
President after the first four years, and to elect the Deputy
President from the very beginning. The constitution of
standing committees, a substantial elected majority in the
Assembly, the right to move adjournments of the House
to discuss matters of urgent public importance, and to
divide the House for the grant of votable items in the
Budget were the other improvements.

Dyarchy: — In the Provinces, the system known as
Dyarchy was introduced by which Ministers were placed in
charge of transferred subjects like local self-government,
public health, education, agriculture &c. The Members
of the Executive Council were in charge of reserved subjects
like Justice, Finance and Police. Ministers were normally
selected from and legally intended to be responsible to, the
legislature. A substantial non-official elected majority (not
less than 70% ) was fixed for the legislature in the Provinces.
Practically all the Provinces were brought under a sort of
uniform administration prescribed |for Governor's Provinces
with dyarchy as the feature.

Historical Survey

Miscellaneous.'— A Royal Commission was to examine
the question of further instalment of Reforms on the expiry of
ten years. The salary of the Secretary of State was placed
on the British Estimates. The Act also provided that the
salary of the Under-Secretaries maybe placed on the British
Estimates. The number of members of the Council of India
was to be not more than twelve and not less than eight.
Provision was made for the appointment of a High Com-
missioner for India in London, an Auditor-General for
India and for the establishment of a Public Service
Commission. The rules for the Constitution of Provincial
Councils and Central legislature received Parliamentary
approval in 1920.

( See Appendices A to F for further details).

'• Our conception of the eventual future of India is a
sister-hood of States, self-croverning in all matters of purelj'

local or provincial interest Over this Congeries of States

would preside a central government, increasingly representa-
tive of and responsible to the people of all of them; dealing
with matters, both internal and external, of common interest
to the whole of India; acting as arbiter in inter-state relations,
and representing the interests of all India on equal terms with
the self-governing units of the British Empire. In this picture
there is a place also for the Native Stales ".

( M. C. Report. )

Chaptkr III

CONSTITUTIONAL INVESTIGATIONS
From 1920 to 193 5.

Introductory :— On December 2^, 1919, when His
Majesty King Emperor George V gave the Royal Assent to
the Reforms Bill, a sympathetic and gracious Proclamation
was issued from which the following may be noted: " I rely
on the new popular assemblies to interpret wisely the
w^ishes of those whom they represent and not to forget the
interests of the masses, who cannot yet be admitted to the
franchise.... Equally do I rely on my officers to respect theii
new colleagues and to work with them in harmony and
kindness, to assist the people and their representatives in an
orderly advance towards free institutions." The Financial
relations between the Provinces and the Central Govern-
ment were decided on the recommendations of the Meston
Committee consisting of Sir James Meston, Mr. C. H.
Roberts (a former Under-Secretary of State for India) and
Mr. E. Hilton-Young (later on, the President of the Currency
Commission on the ratio question). This was in March
1920. Lord Sinha was appointed as Governor of Bihar and
Orissa. In November 1920 the elections to the Provincial
and Indian Legislatures were held. His Majesty had origi-
nally intended to depute the Prince of Wales, '* the
Ambassador of the Empire ", to inaugurate the Indian
Legislature; but due to some inconvenience, H, R. H. The
Duke of Connaught was sent to India for the said purpose.
In the course of the Royal Message on that occasion, His

Constitutional, Investigations

Majesty was pleased to state: — " Simultaneously with the
new Constitution in British India, I have gladly assented
to the establishment of a Chamber of Princes. And with
all my people I pray to Almighty God that by His wisdom
and under His guidance India may be led to greater pro-
sperity and contentment and may grow to the fulness of
political freedom." In the revised Instrument of Instruc-
tions dated 15-3-1921, there is the following important
reference: — "For, above all things, it is Our will and
pleasure that the plans laid by Our Parliament for the
progressive realisation of Responsible government in British
India as an integral part of Our Empire may come to
fruition, to the end that British India may attain its due
place among Our Dominions." In April 1921 Lord Reading
became the Governor-General in succession to Lord
Chelmsford.

The elections and the working of the Reforms did not
receive the full co-operation of the country. As H. R. H.
The Duke of Connaught said, "The shadow of Amritsar
lengthened over the fair face of India." Even the
Moderates had their own misgivings regarding the
adequacy of the opportunities offered for attaining self-
government with dyarchy as the mechanism for Provincial
administration. On September 23, 1 92 1, Rai Bahadur Jadunath
Mozumdar moved a Resolution in the Legislative Assembly
for the establishment of autonomy in the Provinces and the
introduction of responsibility in the Central Government,
( vide Minority Report of the Reforms Enquiry Committee).
On the 29th September, 1921, Mr. Jamnadas Dwarakdas
moved an amendment by which he requested the Governor-
General to appoint a committee of officials and non-officials

C L. 3 17

The Indian Constitution Ch. Ill

to consider the waj's for the introduction of Provincial
Autonomy and Responsibility at the Central Government.
Sir William Vincent speaking on behalf of the Government,
referring to the provision for a Statutory Commission under
the Act of 1 9 19 for examining the working of the reforms
and the further instalment of reforms to be granted, quoted
the following remarks of Mr. Montagu, " If there is a
remarkable unforeseen development in Indian conditions in
the short space often years, the Act does not tie the hands
of Parliament and there can always be a Commission in the
interval. On Sir William Vincent's suggestion, the following
amended resolution was passed by the Assembly without
division: — " That this Assembly recommends to the
Governor-General in Council that he should convey to the
Secretary of State for India the view of this Assembly that
the progress made by India in the path of responsible
Government warrants a re-examination and revision of the
constitution at an earlier date than 1929. " To this the reply
came to the Governor-General in Lord Peel's Desptach of
November 2, 1922, in which the Secretary of State expressed
his inability to accept the resolution of the Assembly for
further steps towards reforms. On the 22nd February, 1923,
Dewan Bahadur T. Ranga Chari moved a resolution before
the Assembly expressing extreme dissatisfaction with the
Peel Despatch. The debate on this was, after some talk,
adjourned sine die. On the iSth July 1923 Dr. (afterwards,
Sir. Hari Singh) Gour moved a resolution recommending to
the Governor-General to move the Secretary of State
to carry out his suggestions in the Governor-General's
previous despatch on the subject of further reforms possible
under the Constitution. This resolution was carried. In
July 1923, the first Legislative Assembly was prorogued.

Constitutional Investigations

The Niitional Congress allowed the Svvarajya Party to
contest the next elections. The Swarajists entered the
Legislative Assembly in substantial numbers to be effective
in opposition.

The Muddiman Committee: Genesis:— In the beginning
of 1924, the Labour Party came into power for the first time
in the History of England, and high hopes of constitutional
reforms for India were entertained by the Indians. " From
1 924 began the interminable series of Commissions of Enqiury
and of formal and informal consultation which culminated
in the Round Table Conferences and the Bill of 1934." In
February 1924, Dewan Bahadur Rangachari moved a
resolution recommending " au early revision of the Govern-
ment of India Act so that India may secure full self-
governing Dominion Status." Pandit Motilal Nehru moved
an amendment suggesting the summoning of a Round Table
Conference to recommend the scheme of a Constitution for
India, and the holding of a fresh election, the placing of the
scheme before the new legislature, and the submission of the
same to British Parliament for being embodied in a statute.
On the 8th February, 1924, Sir Malcolm Hailey spoke in the
Assembly on the question of Dominion Status, and said; —
"if you analyse the term' 'full Dominion Self-Government,
you will see that it is of somewhat wider extent, conveying
that not only the executive will be responsible to the
legislature but that the legislature will in itself have full
powers which are typical of the modern dominion. I say
that there is some difference of substance, because
responsible government is not necessarily incompatible with
limited or restricted powers. It may be that full Dominion
self-government is the logical outcome of responsible

The Indian Constitution Ch. Ill

government; nay, it may be the inevitable and historical
development of responsible government, but it is a further
and a final step." As the Nehru Report of later years says,
''the speech constitutes the beginning of a new current of
thought in official circles in India; and much of constitu-
tional ingenuity has been displayed in supporting or
refuting this new interpretation of British Policy." On the
i8th February, 1924, the amended resolution of Pandit
Nehru was adopted by the Assembly. The Government
first appointed an official committee to examine the work-
ing of the Act and then appointed a formal Committee
under the Chairmanship of Sir Alexander Muddiman, which
came to be known as the Muddiman Committee, or the
Reforms Enquiry Committee.

The Enquiry: — The terms ofreference to the Committee
were: — *' ( i ) to enquire into the difficulties arising from,
or defects inherent in, the working of the Government of
India Act and the Rules thereunder in regard to the Central
Government and the Governments of the Governors'
Provinces; and ( 2 ) to investigate the feasibility and desir-
ability of securing remedies for such difficulties or defects
consistent with the structure, policy, and purposes of the Act,
(a) by action taken under the Act and the Rules, or (b) by
such amendments of the Act as appear necessary to rectify
any administrative imperfections. " The Majority Report of
the Committee was signed by Sir A. P. Muddiman, Sir
Md. Shafi, the Maharajadhiraja of Burdwan, Mr. A. H.
Froom, and Sir. H, Moncrieff-Smith; the Minority consisted
of Dr. Sir. Tej Bahadur Sapru, Sir. P. S. Sivaswamy Aiyar,
Dr. R. P. Paranjpye, and Mr. M. A. Jinnah. According to
both sections, the alleged defects of dyarchy were, "i. the

Constitutional Investigations

impinging of the administration of reserved upon that of
the transferred subjects, and vice versa, 2. the absence of
joint responsibility of the Ministers, 3. the absence of joint
deliberations between the two halves of the Government,
4. the attitude of the permanent official towards the reforms,
their relations with the Ministers, and their general position
in the constitution. 5. the difficulties in the way of the
Ministers arising out of the overriding powers of the
Governors under the Act, the control of the Government of
India and of the Secretary of State; 7. a. the measure of
control exercised by the Finance Department, b. the fact
that under the rules the Finance Department is in the charge of
a member of the Executive Council, Avho is also in charge
of the spending department, c. the disqualification of the
Ministers to hold the portfolio of finance by reason of the
Devolution Rules ".

The Muddiman Report:— The Majority Report reco-
mmended relaxation of the control of the India Office in
cases affecting purely Indian interests, modification of the
procedural rules of the Assembly, the practice of joint
deliberation in the Provinces, the payment of the same
salary to the Ministers and the Members of the Executive
Council, relaxation of control of the Governor over the
Ministers, transfer of some more subjects to the Ministers,
modification of the franchise, the revision of the Meston
Settlement, provision for better representation of the
depressed classes and the factory labourers, the declaration of
the ineligibility of the Finance Member to be in charge of
any spending department, the introduction of Public Service
Commissions. The Minority Report was to the effect that
Dyarchy was working creakily in the Provinces and

The Indian Constitution Ch. Ill

recommended that "the proper question to ask was not whether
any alternative transitional system can be devised, but
whether the constitution should not be put on a permanent
basis, with provisions for automatic progress in the future
so as to secure stability in the Government and willing
co-operation of the people; we can only express the hope
that a serious attempt may be made at an early date to
solve the question. That this attempt should be made
whether by the appointment of a Royal Commission with
freer terms of reference and larger scope of enquiry than ours
or by any other agency — is a question which we earnestly
commend to the notice of the Government, " The failure
of dyarchy was clear. Lord Birkenhead on a later occasion
described dyarchy as " the kind of pedantic hide-bound
constitution to which Anglo-Saxon communities had not
generally responded and unlikely to make a successful
appeal to the community whose political ideals were so
largely derived from Anglo-Saxon models ".

In August 1925, Mr. V. J. Patel was elected as Presi-
dent of the Legislative Assembly.

The Government moved for the adoption of the Mud-
diraan Report. Pandit Motilal Nehru, thereupon pleaded for a
Round Table Conference for discussing the " National
Demand," i. e. the minimum reforms acceptable to the
Congress. The official attitude on this subiect was not
considered to be satisfactory by the Congress, and so in
1926 the Swarajist party withdrew from the legislature.

Lord Reading's Letter to H. E. H. The Nizam:— On

the 27th March, 1926, Lord Reading explained thus some
important constitutional points regarding Indian States,

Constitutional Investigations

in a letter to His Exalted Hii^hness the Nizam in reply to
H.E.H, The Nizam's letter dated tlie 20th September, 1925.
" The sovereignty of the British Crown is supreme in India,
and therefore no Ruler of an Indian State can justifiably
claim to negotiate with the British Government on an
equal footing. Its supremacy is not based only on tteaties
and engagements, but exists independently of them and,
quite apart from its prerogative in matters relating to
foreign powers and policies, it is the right and duty of the
British Government, while scrupulously respecting all
treaties and engagements, to preserve peace and good order
throughout India. The right oL the British Government
to intervene in the internal affairs/rndian States is another
instance of the consequences necessarily involved in the
supremacy of the British Crown. 1 regret that I cannot
accept the view that the orders of the Secretary of State on

your representation do not amount to a decision The

varying degrees of internal sovereignty which the Rulers
enjoy are all subject to the due exercise by the Paramount
Power of this responsibility." This letter led, in the words
of the Nehru Report, to much searching of heart in Indian
States, and to the constitution of the Butler Committee as
will be seen later on.

Lord Irwin:— In April 1926, Lord Irwin became the
Governor-General in succession to Lord Reading. " Lord
Irwin won the immediate interest of many Indians because
he was a keen practising Christian. For five disturbed
years he maintained his peculiar political austerity, and
when he left. Englishmen and Indians were discussing the
future of India on equal terms." ( Thompson and Garret,
in "Rise and Fulfilment of British Rule in India.")

The Indian Constitution Ch. Ill

The Simon Commission:— On the 26th November, 1927,
the Statutory Commission contemplated under Section 84-A
of the Government of India Act 19 19, was appointed to
investigate the nature and extent of the next instalment
of Reforms, with Sir John Simon as the Chairman. Section
84-A enacted. — " At the expiration of ten 5'-ears after the
passing of the Government of India Act, 1919, the Secre-
tary of State with the concurrence of both Houses of
Parliament, shall submit for the approval of His Majesty
the names of persons to act as a Commission for the purpose
of this Section". By the Government of India (Statutory
Commission) Act, 1927, word "within" was substituted
for the words " at the expiration of ". Lord Birkenhead,
the then Secretary of State, interpreted the Section
to mean that only Members of Parliament could be
appointed to the Commission. " The inclusion of two
Indian Members of the House of Lords would have been
a useful gesture, " ( Thompson and Garret, who remark
that if a Muhammadan gentleman was created a peer,
then he and Lord Sinha could have come in without
infringing even the interpretation put in by Lord Birkenhead.)
Referring to these events of 1927, as observed by him
during his visit to England in that year, the Rt. Hon'ble
Sir Tej Bahadur Sapru stated, ( see the " Leader " of
January 14, 1936 ) " At the end of the conversation (with
Lord Reading ) it was abundantly plain to me that the
decision which had been taken at that time to exclude
Indians and to keep the Commission an exclusively
Parliamentary body had been taken irrevocably. That
was the only occasion when on a big question I felt some-
what disappointed with Lord Reading. But I also felt that
Lord Birkenhead had made up his mind and that it was

CONSTITUTIONAT. INVESTIGATIONS

somewhat unfortunate that the Labour Party, which was then
in opposition, should have agreed with him. In later years it
was freely admitted to me by several of my English friends
in England, and at least one or two, or three in India, that
the decision to exclude public men from India, was
a most unfortunate one, and the whole course of events
might have been different if it had not been taken ".

The Butler Committee:— In May 1927 the Viceroy
held a conference at Simla, when a representative group
of Princes asked for the appointment of a special committee
to examine the relationship between themselves and the
Paramount Power. So, on the i6th December 1927, the
Earl of Birkenhead, as Secretary of State appointed a
committee with Sir Harcourt Butler as Chairman and
Viscount Peel and Mr, Holdsworth as members, " (i) to
report upon the relationship between the Paramount Power
and the Indian States with particular reference to the
rights and obligations arising from— (a) treaties, engagements
and sanads, and (b) usage, sufferance and other causes and
(2) to enquire into the financial and economic relations
between British India and the States, and to make any
recommendations that the Committee may consider desira-
able or necessary for their more satisfactory adjustment."

In the Christmas of 1927 the Indian National Congress
resolved to boycott the Simon Commission. In 1928, the
Indian Legislative Assembly also resolved that it should
have nothing to do with the Simon Commission.

The Nehru Report : — On the 12th February 1928, a
conference of the representatives of all the political parties
met at Delhi for drawing up a constitution acceptable to

C. L. 4 25

The Indian Constitution Ch. Ill

all the parties, and continued its sittings till February 22,
1928. "The All Parties Conference was a reply to Lord
Birkenhead's challenge when he sought to justify the per-
sonnel of the Simon Commission by a reference to India's
communal and other dissensions." The Conference appointed
a committee to report on the following subjects : —
whether the legislature should be unicameral or bi-cameral;
franchise; declaration of rights of labour and the
peasantry; Indian States. The Conference met again on
the 8th March, and appointed two sub-committees, one for
enquiring into the financial aspects of the separation of Sind,
and the other to consider the feasibility of the system of
proportional representation. The Conference met again on
the 19th May, 1928, at Bombay, considered the reports of
the various committees and appointed a committee to
consider and determine the principles of the Constitution
for India giving due weight to the representations of several
organisations and sub-committees for communal unity.
Pandit Moti Lai Nehru was Chairman, Sir Tej Bahadur
Sapru, Sir Ali Imam, Mr. M. S. Aney, and Mr. N. M. Joshi
were among the members. The committee submitted the
report to Dr. M. A. Ansari, the President of the All Parties
Conference on August 10, 1928. In the introduction, they
answer the arguments based on Sir Malcolm Hailey's
speech of February 8, 1924, already referred to, and the
objections to the grant of Dominion Status. In the first six
chapters, the evidence on the various controversial questions
and the data are analysed. The seventh chapter contains
the draft definitions and recommendations relating to the
Constitutional status of India, operation of the constitu-
tion and the laws, citizenship, fundamental rights, the
Parliament of India consisting of the Governor-General

Constitutional Investigations

representing the King and the Senate and the House of
Representatives, the Commonwealth Executive consisting
of the Prime Minister and other Ministers, High Commi-
ssioner and Foreign Relations, Auditor-General, Provincial
Autonomy with an Executive responsible to the Legislature,
constitution and jurisdiction of a Supreme Court, appeal to
the King in Council, constitution and jurisdiction of High
courts, Advocate-General, Revenue and Finance, Railway
and Harbour Fund, Defence, Civil Services, Army Services,
Indian States, redistribution of Provinces on a linguistic
basis, future amendment of the constitution, and communal
representation. The separation of Sind as a separate
Province was recommended. Two schedules enumerating
the central and Provincial subjects were also annexed to the
report. The report (since known as the Nehru Report), was
adopted by the National Congress in its 1928 Session.

The Butler Committee Report:— -The Butler Committee
met at Delhi on January 14, 1928, and issued a questionnaire
on March i, 1928. They visited fifteen States and returned
to England in May 1928, when the Rt. Hon'ble Sir Leslie
Scott, K. C, presented the case of the Princes with the
assistance of Colonel Sir Kailas Narain Haksar. They
submitted their report on the r4th February, 1929, to
Viscount Peel, who had succeeded Lord Birkenhead as
Secretary of State.

The Report stated among other things: — "India is one
and indivisble, made up of the pink and the yellow. The
problem of statesma nship is to hold the two together.
Truly it may be said that Indian States are Indian India.
Paramount Power means the Crown acting through the
Secretary of State and the Governor-General in Council,

The Indian Constitution Ch. Ill

who are responsible to Parliament. The fact of para-
mountcy has been acted on and acquiesced in over a long
period of time. It is based on treaties, engagements, and
sanads, supplemented by usage, sufferance, and by decisions
of the Government of India and the Secretary of State
embodied in political practice. The policy of the British
Government towards the States passed from the original
plan of non-intervention in all matters beyond its own ring-
fence to the policy of subordinate isolation. That in its
turn gave way before the existing conception of union and
co-operation with the Paramount Power. Lord Canning
said in 1858: — 'The Crown stands forth as the unquestioned
ruler and Paramount Power in all India, and is, for the
first time, brought face to face with its feudatories. There
is a reality in the suzerainty of the Sovereign of England,
which has never existed before, and which is not only felt
but eagerly acknowledged by the Chiefs." In a despatch
dated the 30th April, i860, he added that flagrant mis-
government must be prevented or arrested by timely exercise
of intervention. With this theory of intervention, modern
political practice began, reaching its zenith during Lord
Curzon's Viceroyalty.

The Butler Committee Report refers to the Baroda
Case (1873-75), the Manipur Case (1891-92), Lord Minto's
Udaipur Speech of the 3rd November, 1909, and the letter
of Lord Reading to H. E. H. The Nizam, (noted already)
as important pronouncements on Paramountcy. Reference
is made to the demand for codification of political practice
and the constitution of the Chamber of Princes, whereby
open conference was substituted for secrecy in ventilating
the opinion of the Princes on political practice.

Constitutional Investigations

The Committee said that " the treaties are made with
the Crown in England and should be interpreted according
to their history, circumstances and traditions, but they are
not merely contractual relationship." "The Paramount Power
has the right of intervention relating to external affairs,
defence, and protection and for good government." They
conclude *' the Princes should not be handed over without
their agreement to a new government responsible to the
Indian Legislature. Paramountcy must remain paramount.
On paramountcy and paramountcy alone can the States rely.
for their preservation through the generations that are to
come." They recommended that the Viceroy, and not the
Governor-General, should be the agent of the Crown in its
relations with the Princes. They commended the sugges-
tion " that the time has come to recruit separately from the
Universities in England for service in the States alone."
The Report also dealt with the financial and economic
relations with States, the claims of States to a share of the
customs revenue, the adequacy of their contribution
to Imperial Defence, the proposal for a Zollverein, the
claims of States regarding railways, mints, coinage, manu-
facture of salt, Posts and Telegraph, opium, excise and
harbours.

Paramountcy: — As regards the exercise of Para-
mountcy, the States can claim a substantially liberal
attitude in view of what Sir Robert Holland, with so much
of experience has stated, viz: — " a body of usage influenc-
ing the relation with the States has come into force through
a process which though benevolent, was nevertheless,
to some extent arbitrary." The Nehru Report was of.
opinion that it was untenable legally and historically to

The Indian Constitution Ch. Ill

claim that the treaties were between the Crown and the
States. But the Butler Committee has recognised the
relations, as also the Joint Parliamentary Committee of
later days. As regards the position of the States the Butler
Committee said: — ''In fact none of the States ever held
international status. Nearly all of them are, or were, sub-
ordinate to the Mughal Empire, or the Maharatta Supre-
macy, or the Sikh Kingdom, and depending on them. Some
were rescued, others were created by the British/' It may
be that all the attributes according to International Law
were not possessed by the States. But a perusal of many trea-
ties will show that they were not considered to be mere non-
entities as the quotations would imply. The successful
rebellion of these states from the respective supremacies
referred to was recognised by the Company by entering
into separate treaties, instead of dealing with the alleged
masters holding the supremacy, if any. Their independent
status has been recognised by the treaties ignoring the
masters, under whom they were. There was nothing to
prevent the States from contracting agreements with the
Company of their own right. In an^'' case, some principles
of international law may be indirectly invoked for analogy
in suitable cases in settling disputes between British India
and Indian States.

The Simon Commission Enquiry— The Simon Commis-
sion paid two visits to India, the first lasting from the 3rd
February 1928, to the 31st March 1928, and the second
from the nth October 1928 to the 13th April 1929. They
proposed the method of " Joint Free Conference" by which
an Indian wing of the conference to work as colleagues of
the Commissioners was created. A central committee

CONSTlTUIiONAL INVESTIGATIONS

composed of the members elected by the Indian Legishiture
was to sit with the Commission during the whole of their
tours and delibeiations in public,while Provincial Committees
elected by the respective provincial legislatures were to
sit with the Commission in the respective provinces. The
Central Provinces Legislative Council did not elect a com-
mittee. The Indian Legislative Assembly also did not elect
any representatives, and so the Governor-General nominated
some of the Assembly members to the Central Committee.
All other legislature?? elected members to the committees
to which they were asked to elect representatives.

The General Elections in Britain brought the Labour
party in office, and reliance was placed on the speech of
Mr. Ramsay MacDonald some time before taking office
( July 2, 1929 ) in which he said: — "I hope within a period
of months rather than years, there will be a new Dominion
added to the Commonwealth of Nations, a Dominion of
another race, a Dominion vrhich will find self-respect as an
equal within the Commonwealth. I refer to India".

The Joint conference of the Simon Commission and of
the Indian Central Committee met between the 19th June
1929, and the 30th July, 1929. On the i6th October, 1929,
Sir John Simon addressed a letter to the Prime Minister
(Mr. Ramsay MacDonald ) in which he stated: — "As our
investigation proceeded, we have become more and
more impressed, in considering the direction which the
future constitutional development of India is likely to take,
with the importance of bearing in mind the relation which
may develop between British India and the Indian States.
It is evident to us that whatever may be the scheme which
Parliament will ultimately approve for the future constitution

The Indian Constitution Ch, III

and governance of British India, it is essential that the
methods by which the future relationship between these two
constituent parts of Greater India may be adopted, should
be fully examined. It seems to us that what would be
required would be the setting up of some sort of conference,
and that in this conference His Majesty's Government woud
meet both representatives of British India and representa-
tives of the States (not necessarily together) for the purpose
of seeking the greatest possible measure of agreement for
the final proposals which it would later be the duty of His
Majesty's Government to submit to Parliament. The
procedure by the Joint Parliamentary Committee conferring
with delegations from the Indian Legislatures and other
bodies, which was previously contemplated and is referred
to in my letter to the Viceroy on February 6, 1928, would
still be appropriate for the examination of the Bill, when it
is subsequently placed before Parliament; but would, we
think, obviously have to be preceded by such a conference
as we have indicated."

To this, the Prime Minister replied on the 25th Octo-
ber, 1929, in which he said: — "His Majesty's Government
are also greatly concerned to find means by which they
may approach the treatment of the broad question of
British-Indian constitutional advance in co-operation with
all those who can authoritatively speak for British-Indian
opinion. They will propose to invite representatives of
different parties and interests in British India and repre-
sentatives of Indian States to meet them separately or
together, as the circumstances may demand, for the purpose
of conference and discussion in regard both to the British-
Indian and All-Indian problems. It will be their earnest

CONSTITUTIONAI, INVESTIGATIONS

hope that by this means it may subsequently prove possible
on these grave issues to submit definite proposals to Parlia-
ment, on a wide measure of general assent. With my best
wishes for the success of your future labours "

An interim report on the progress of education in India
was submitted by the Auxiliary Committee of which Sir
Philip Hartog was the chairman.

In the summer of 1929 Lord Irwin went to England
to confer with the British Cabinet on the proper solution
of the Indian Constitutional problem. On his return he
made the following important declaration on the 31st
October, 1929: — "I am authorised, on behalf of His Majesty's
Government, to state clearly that, in their judgment, it
is implicit in the declaratien of 19 17 that the natural
issue of India's constitutional progress as there contem-
plated, is the attainment of Dominion Status. His
Majesty's Government will propose to invite representatives
of the Indian States to meet them separately or together....

for the purpose of conference and discussion both of the

British Indian and All-India problems."

The Simon Report : — In November 1929, the Provin-
cial Committees and the Central Committee sent their
reports to the Simon Commission. On 12th May 1930,
the Simon Commission submitted the report to Parliament.
In July 1930, the Indian Legislative Assembly declared
that the recommendations of the Simon Commission were
inadequate and unacceptable ( See Appendix H. i — for
select opinion. ).

If the constitution of the Simon Commission engender-
ed uneasy feelings, the publication of the Report "only

c- L. 5 . 33

The Indian Constitution Ch. Ill

intensified the civil disobedience movement " which
was already in swing from March 1930. The Commission
stated: — "In writing this report we have made no allusion to
the events of the last few months in India. In fact, the whole
of our principal recommendations were arrived at and
unanimously ngreed upon before these events occurred. We
have not altered a line of our Report, for it is necessary to
look beyond particular incidents and take a longer view. "
With regard to the recommendations themselves, it was
hardly likely that with the All Parties Report before them
even the more moderate section of the public in India
would have been satisfied with the reforms suggested by the
Simon Commission. "Beyond a few adjustments to a creaky
machinery, nothing very far-reaching was suggested. While
dyarchy was to terminate, the Ministers in the Provinces
may be elected members of the legislature or not, and
where and when the Governor considers it necessary, it
v/ill contain an official element. Indirect election was
recommended for the Central Legislative Assembly to be
renamed the " Federal Assembly ", the electors being the
members of the respective provincial legislature. Indirect
election was recommended for the Council of State in the
case of those Provinces which had a second chamber. The
Assembly was to have tiie right to vote certain indirect
taxes also to be selected by the Governor-General himself.
The central executive was to be the same as that under the
Act of 1 91 9 with the prescribed qualification of service
under the Crown for ten years for three of its members.
The Commander-in-chief was not to be a member of the
executive Council or of the legislature. The Security
Services ( Police and the I. C. S. ) were to be recruited by
the Secretary of State; the same system was to be extended

Constitutional Investigations

to the Irrigation and the Forest Services. The
programmes of Indianisation laid down by the Lee
Commission which were themselves complained by the
Indians to be inadequate, were to he maintained. The High
Courts were to be centralised as also the expenditure there-
for. The size of the Council of India was to be reduced with
more recent Indian experience being required for member-
ship. A Council of Greater India v^as to be constituted with
consultative and deliberative functions for discussing
matters of common concern between Indian States and
British India. " In the atmcsphere in which it was issued
it did not receive a favourable consideration.

Round Table Conference:— As foreshadowed in the
Prime Minister's letter to Sir John Simon in October 1929,
and in Lord Irwin's speech of October 1929, the First
Round Table Conference was held in the autumn of 1930
and January, 1931. '' The Simon Report was shelved, and
the Conference began working out the terms of an early
federation." The federal idea was expounded by the British
Indian delegates and agreed to by His Highness the
Maharaja of Bikaner, on behalf of the States' delegates. On
the 15th January 1931, in a concluding address to the
Conference on the safeguards for the minorities, the Prime
Minister said:— ^' In such statutory safeguards as may be
made for meeting the needs of the transitional period, it
will be a primary concern of His Majesty's Government
to see that the reserved powers are so framed as not to
prejudice the advance of India through the new constitution
to full responsibility for her own government. "

The Federal Idea: — The delegates from British India and
the Indian States returned to India with the determination

The Indian Constitution Ch. Ill

to help the cause of federation. There was, however,
a trend of thought among the States which wanted that
the Princes should not join the federation each in his own
manner and on his own terms, but should meet in the
Chamber of Princes for entering the Federation as a body.
Later, the general terms for federation were settled,
and the differences were only regarding the seats in the
Houses of the Central legislature. This was facilitated by
the idea of some association with Indian States having been
before the public and the statesmen for a long time. Lord
Lytton's proposal to constitute an Imperial Privy Council
comprising some of the great Princes, Lord Dufferin's institu-
tion of the Imperial Service Troops, Lord Curzon's plan for a
Council of Ruling Princes, Lord Minto's scheme for an
Imperial Advisory Council and for an Imperial Council of
Ruling Princes are instances. " Lord Hardinge made
no secret of his desire to seek the collective opinion of the
Princes as trusted colleagues on matters affecting their Order.
And in responding to His Excellency's invitation, Their
Highnesses The Maharajahs of Gwalior and Indore also
laid stress upon the essential identity of interest between
the two halves of India. Lord Chelmsford carried the
system of conferences further by utilising them for the
purpose of discussing general questions affecting the States
as a whole; and His Highness the Maharaja Gaekwar in
welcoming the new development expressed the hope that
M''hat had by that time become an annual conference, would
develop into a permanent Council or Assembly of Princes.
Moreover the claim of the States to be heard in matters of
Imperial concern were signally recognised by the deputation
of His Highness the Maharaja of Bikaner to the meeting of
the Imperial Conference and the War Cabinet." (M, C.

Constitutional Investigations

Report). In 1918 His Highness the Maharaja of Patiala
was similar!}' deputed. In the Montagu-Chelmsford Report,
it is stated, "Looking ahead to the future, we can picture
India to ourselves as presenting the external semblance
of some form of federation. The provinces will ultimately
become self-governing units, held together by the Central
Government, which will deal solely with matters of
common concern to all of them. But the matters common
to the British Provinces are also to a great extent those
in which the Native States are interested — defence, tariffs,
exchange, opium, salt, railways, and posts and telegraphs.
The natural concentration of the Government of India upon
such matters will, therefore, make it easier for the States,
while retaining the autonomy which they cherish in internal
matters, to enter into closer association with the central
Government if they wish to do so. " *The constitution
of the Chamber of Princes was another step. The Procla-
mation of the 8th February 1921, contained the declara-
tion:— "In my former Proclamations I repeated the assurance
given on many occasions by My Royal Predecessors and
Myself, of My determination ever to maintain unimpaired

* Dicey wrote in 1914« thus, " Thirty years ago the
nature of Federalism had received in England very inadequate
investigation. In this, as in other matters, 1914 strangely
contrasts with 1884. The notion is now current that federalism
contains the solution of every Constitutional problem which

perplexes British Statesmanship FederaHsm in short

has at present the vague and therefore the strong and imagina-
tive charm which has been possessed at one time throughout
Europe by the Parliamentary Constitutionalism of England,
and at another by the revolutionary republicanism of France."

The Indian Constitution Ch. Ill

the privileges, rights^ and dignities of the Princes of India.
The Princes may rest assured that this pledge remains
inviolate and inviolable." The Indian States always get
the advantage of representation in the annual delegation to
the Assembly of the League of Nations. The Butler
Committee Report also stated "We have jeft the door open
to closer union. There is nothing in our proposals to pre-
vent the adoption of some form of federal union. " In
November, 1929, His Highness the Maharaja of Bikaner
said: — "The Princes have openly given expression to the
belief that the ultimate solution of the Indian problem and
the ultimate goal — whenever the circumstances are favourable
and the time is ripe for it — is Federation, which word has no
terrors for the Princes and the Government of the States."
It will thus be seen that the idea of some sort of union was
acceptable to public opinion for some time past, though
views might differ as to details regarding the powers to
be vested in the central government. Discussion was rang-
ing on the nature of the federal subjects and the seats due
to the States in the federal legislature.

The British Indian Delegates had known the difficulties
and complications of the problem of federation equally well,
as the work in the sub-committees had shown them. The
sub-committees examined questions relating to Federal
Structure, N.W. F. Provinces and other provinces, Franchise,
Services, Burma, Defence, Sind separation and Minorities.
So, they, on their return to India, impressed both on the
Government and on the Congress the necessity for arriving
at some agreement. As a result, on the 5-3-31, theGandhi-
Irwin Pact was concluded; the Congress decided to suspend
the Civil Disobedience Movement, and to participate

38.

CONSTITUTIONAI- INVESTIGATIONS

in the Second Round Table Conference. The pact was
ratified by the Karachi Congress, 1931.

Lord Irwin left India in April I93i,and was succeeded
by Lord Willingdon.

The Second R. T. C: — Mahatma Gandhi went to the
Second Round Table Conference as the sole representative
of the Congress. By that time, the Labour Party was out
of office in Britain ( September 1931 ), and so the Govern-
ment attitude was supposed to have 'stiffened a bit.' After
a series of meetings, especially of the Federal Structure Com-
mittee, the Conference dissolved as no solution could be arrived
at regarding the allocation of seats in the legislatui<e. Three
Committees were appointed to tour in India and submit
reports. They were (i) to investigate the revision of the
franchise and the constituencies, (2) to report on the reco-
mmendations of the Federal Finance Committee, and (3)
to examine financial and other problems relating to the
States and the Federation. Each State had its own indivi-
dual claims to put forward before the conditions of joining
the federation were finally settled.*

* There are 109 States of which the Rulers are members
of the Chamber of Princes in their own right, with a population
of 60 millions and a revenue of 43 Crores of rupees There are
126 States represented by 12 Rulers elected from among
themselves, with a population of 8 millions, and a revenue of
2 Crores of rupees in the aggregate. Besides these there are
the 300 Estates and Jagirs held on grants and Sanads. " It
includes also States economically, politically and administra-
tively advanced, and States, patriarchal or quasi — feudal in
character which still linger in mediaeval atmosphere: States
with varying political powers."

The Indian Constitution Ch. Ill

The Committees:-The 5'oar 1932 opened with a regular
programme by the Government for the vindication of law
and order by putting down the civil disobedience move-
ment in its disturbing features. From January 1932, the
North West Frontier Province was raised to the status of
a Governor's Province. In January 1932, a Consultative
Committee was constituted by the Government of India
for considering the recommendations of the Franchise
( Lothian ) Committee, Federal Finance I, Percy ) Committee
and the Indian States Enquiry ( Davidson ) Committee,
when their reports were published. But the meetings of
the Consultative Committee were twice postponed.

Communal Award:— On the 17th August 1932, the
Prime Minister decided the question of allotment of seats
by what came to be called the ' Communal Award '. The
importance of the problem can be seen from the figures
furnished in the Simon Report. In Bengal, the Muhamma-
dan population amounts to 25^ millions out of 47 millions;
in the Punjab ii| millions out of 20 millions; in Assam
the Muhammadans constitute 28% of the population; in
Bombay 19%; in U. P. 14%; in Bihar and Orissa 10%; in
Madras 6%; in C. P., they are half a million out of 14
millions; in N. W. F. P., they are 2 millions of 2 J millions;
in Indian States the total Hindu population is 53^-
millions, while the Muhammadans are 9^ millions; the
Hyderabad State has a population of 12^ millions out of
which 2 millions are Muhammadans. The Prime Minister
stated:—" We should only be too glad if at any stage
before the proposed Bill becomes law, the communities
can reach an agreement among themselves. But the Govern-
ment are convinced that no further negotiations will be of

CoNSTITUTIONAt INVESTIGATIONS

any advantage, and they can be no party to them. They
will, however, be ready and willing to substitute for their
scheme, an)' scheme whether in respect of any one or more
of the Governor's Provinces or in respect of the whole of
British India, that is generally agreed to and accepted by
all the parties concerned ".

There were differences of opinion regarding the grant
of separate electorates to the so-called ' Depressed Classes '.
They form 57% of the Hindu population in Bengal;
31% in U. P.; 42% in the Punjab; 33% in C. P.; 18% in
Madras; and 1 1 "^ in Bombay ( Simon Report). Mahatma
Gandhi, who was then in prison, resolved on a ' fast
unto death,' from the 20th September, 1932, unless the
scheme of separate electorates for these classes was
modified. After the strenuous efforts of the Hindu leaders
including Dr. Ambedkar, a pact which came to be known as
the Poona or Yervvada Pact was arrived at on the 25th
September, 1932, by which separate electorates were given
up. The Pact was accepted by the British Cabinet, who
modified the Communal Award accordingly. The Mahatma
gave up his fast on the 26th September.

The Third R. T. C: — In September, the Government
declared that it would be necessary to hold further dis-
cussions in London for settling the plans regarding an
All-India P^ederation, Responsibility at the Centre and
Provincial Autonomy, and that a small body of the repre-
sentatives of the States and British ladia would be invited
for the purpose. The Third R. T. C. held its sittings from
the 17th November, 1932, to the 24th December, 1932, and
was concerned mainly with the question of safeguards,
special responsibilities, and the consideration of the three

C.L. 6 4X

The Indian Constitution Ch. Ill

Reports of the Committees appointed after the Second
R. T. C. The Lothian Committee recommended the con-
ferment of the franchise on about 2^]% of the population.
The Percy Committee recommended the allocation of the
revenues between the centre and the federal units and
conferment of legislative powers therefor. The Davidson
Committee recommended the remission of cash contributions
by the States, that each State should be allowed to keep
for itself duties realised on goods imported through its own
ports, and compensation to States for the advantages given
up by them. Sir Samuel Hoare declared: — " I have made
it quite clear that all questions governed by that general
term ' paramountcy ' do not come into the federal
scheme." The Conference enabled the Government to
formulate their views on the methods for States' entry into
the federation, on the delimitation of subjects into federal
and non-federal, the creation of the Sind and the Orissa
Provinces, the Defence Budget, the Indianisation of the
Army, the policy regarding the employment of troops out-
side India, the Co-operation of the federal ministry, the
Defence Member, and other subjects. Sir Tej Bahadur
Sapru and Mr. Jayakar submitted an important memorandum
in which they pointed out that federation should not be
delayed, that central responsibility should come even if the
States did not join in large numbers, that the financial
stability of the federation was beyond the range of doubt,
that safe-guards should not go so far as to take away from
the central and provincial Governments the right to subsi-
dise and protect industries, that the special responsibility
of the Governor- General and the Governor should not
conflict with the powers of the Ministers, that there should
be a declaration of fundamental rights, and that the Council
of India might be abolished.

Constitutional Investigations

The White Paper:— In March 1933, the Government
pubh'shed the " White Paper" outlining their scheme of
Constitutional reforms for the Indian Federation of States
and Provinces. After examining the pros and cons of the
several problems in the light of the opinions expressed in
the conferences, memoranda, reports and representations, it
was framed in the form of a draft statute for the sake of con-
venience, and forms the basis of the Government of India Act
of 1935. The constitutional structure was discussed by the
Parliamentary Committee and passed with modifications.
The proposals in the "White Paper" fell under three main
heads commonly referred to as Provincial Autonomy,
Federation, and Responsibility at the Centre with details
on matters like the distribution of legislative powers,
Finance, the Services, Judiciary, Commercial discrimina-
tion, constituent powers, Reserve Bank, Railway Board,
India Council, Auditor-General, Advocate-General and
transitory provisions. ( See Appendix H for opinion of
Thompson and Garret.)

The J. P. C— On April 11, 1933, Parliament appointed
a Joint Select Committee of sixteen members from the
House of Commons and sixteen Peers to report on the
"White Paper". The Marquis of Linlithgow was elected
as the Chairman. The Indian Delegates from British India
and the Indian States acted as "assessors"; but they were not
entitled to vote on any issue, n©r to submit any report to
Parliament. Several witnesses appeared before the Com-
mittee to represent the various aspects of the constitutional
problem. Sir Samuel Hoare„the Secretary of State, himself
offered as a witness and ansx^^ered over 15,750 questions.
Along with other memoranda, the memorandum of Sir

The Indian Constitution Ch. Ill

Malcolm Haile}' on Federal Finance was also placed before
the J. P. C. An important contention of the British Indian
witnesses was that the goal of Dominion Status should be
distinctly enunciated in the Preamble. Reliance was placed
on the several announcements made on behalf of the.
Government, and on the Royal Proclamations issued by
His Majesty from time to time. In September, 1933,
Lord Willingdon said: — "It was the Government's policy
to rush with the reforms as hard as they could go, so as to
help India forward to Dominion Status and absolute equality
with the other Dominions."

It was attempted to explain away these declarations
by stating that they would not bind Parliament as
Parliament was not a party to these declarations.
But the point was answered thus by the Rt. Hon'ble Sir
Tej Bahadur Sapru in the course of an article in the
"Twentieth Century" of January 1935.;— "It may be a good
dialectical point in constitutional polemics to say that
Parliament is not bound by these pledges; but it is very
poor statesmanship to say so and act upon it" (See Appendix
H for the opinion of Dr. A. B. Keith).

The Aga Khan Memorandum:— Among the memo-
randa submitted to the J. P. C, the Joint Memorandum
submitted by the British Indian Delegates on the i7lh
November 1933, was the most representative. The modifi-
cations to the White Paper which they suggested, constituted
according to them, the minimum which must be granted
to India in order to satisfy the legitimate political aspira-
tions of the people. They pleaded for declaration of
Dominion Status as the goal, quoting besides other decla-
rations, the following extract from the Imperial Message

Constitutional Investigations

of February 1921. "For years, it may be for generations,
patriotic and loyal Indians, have dreamed of Swaraj for
their motherland. Today you have the beginnings of
Swaraj within my Empire, and widest scope and ample
opportunity for progress to the liberty which my other
Dominions enjoy." The Memorandum recommended that
a definite date might be fixed for the inauguration of the
Federation in the Constitution Act. They pointed out that
the White Paper proposals regarding the Indian control
over Army administration " actually make the constitu-
tional position worse than at present " and recommended
( I ) a definite programme of Indianisation with refe-
rence to a time-limit of twenty or twenty-five years,
( 2 ) the appointment of a non-official Indian, either an
elected member or a State representative in the Federal
Legislature, as Army Counsellor, ( 3 ) the continuance
of the present policy of the control by the Finance Depait-
ment of Military expenditure, (4) joint consultations between
the Ministers and the Counsellors of Reserved Subjects
( Defence, Foreign Affairs, and Ecclesiastical Department ),
on all subjects and questions relating to Army policy and
Army Budget Estimates, { 5 ) Consultation with the
Federal Legislature before the employment of the Indian
Army outside India, and ( 6 ) the reduction of military
expenditure and the constitution of the Statutory Committee
of Indian Defence. They pleaded for designating the
proposed Financial Adviser as one to the entire Govern-
ment. Regarding commercial discrimination, they said: —
" We must point out that if the clauses are drawn so widely
as to prevent legitimate discrimination, the Government
would be driven to State socialism as the only method by
which the provisions of the Act would be circumvented

■.Ki

The Indian Constitution Ch. Ill

We would, however, very strongly object to any draft

which makes it impossible for India to discriminate against
subjects of the Dominions and Colonies which impose
disabilities on Indian subjects." They stated that "a
friendly settlement by negotiation is by far the most appro-
priate and satisfactory method of dealing with the
complicated matter ( reciprocity with British commer-
cial community ) We see grave practical objection

to any constitutional provisions against administrative
discrimination." They pleaded for direct election to the
Legislature and for definite provision regulating the procedure
for the participation of States' members in matters of ex-
clusively British Indian interest. They opposed the crea-
tion of Second Chambers in Bengal, Bihar, and U. P. They
stated,: — "No part of the White Paper proposals has caused
more dissatisfaction in India than the provision relating

to the Public Services Very strong objection has been

taken in India to the scheme by which the Secretary of
State will continue to recruit on the present basis for the
two very important services, namely the Indian Civil
Service and the Indian Police." They recommended that
the Governors of Provinces should be selected from amongst
public men in Great Britain and in India. In conclusion
they stressed on incorporating provision for the automatic
growth of the constitution without the interposition of any
enquiry by a statutory commission like the Simon Commission
and " without involving Parliamentary legislation, except in
a few strictly limited cases." Lord Willingdon was on leave
in England from the i6th May to the i6th August 1934.

The J. P. C. Report :-The Joint Parliamentary Committee
submitted their report in October 1934, which was published

Constitutional Investigations

on November 23, 1934. The material available for the
Committee was indeed in the nature of a deluge. But the
recommendationa of the British Indian Delegates were not
accepted. The report stated that "a recognition of Indian
aspirations, while it is the necessary preface to any study
of Indian Constitutional problems, is an insufficient guide to
their solution. Responsible Government, to which those
aspirations are mainly directed toda)', is not an automatic
device which can be manufactured to specification." The
Committee approved of the abolition of dyarchy in the
Provinces as provincial autonomy was a natural develop-
ment, but recommended dyarchy in the centre as constitu-
tional development should be evolutionary. The idea of
central responsibility without States was not considered as
a solution of the problem of Indian federation. They asked
the Parliament to be resolute and decisive in choosing with-
out fear or favour the solution for the grave issues of the
Indian Constitutional problem.

On the details of the various proposals, they generally
accepted the scheme of the White Paper, the departures
from which were only a few, necessitated to make the repoit
acceptable to the more conservative section in Britain.
The Committee recommended second chambers for Bombay
and Madras also, indirect election for the federal Legis-
lature, the constitution of the Council of State on a more
permanent basis, the constitution of an Advisory Council for
the Secretary of State in the place of the India Council which
was recommended to be abolished, and strong and clear
conditions against commercial and other forms of discrimi-
nation and regarding other safeguards, and the continuan-ce
of the control of the Secretary of State over the key
services.

The Indian Constitution Ch. Ill

The Committee recommended that institutions similar
to the Council of Agricultural Research should be established
for Public Health and Education; that equality of chances
"should be extended as regards the holding of office under
the federal Government to subjects of Indian States;" that
strict and impartial principles of recruitment and promotion
in the public service should be adopted. As regards the
recruitment of High Court Judges it was suggested by some
politicians that one-fourth of the number of appointments
should go to Barristers, one-fourth to the members of the
Indian Bar, one-fourth to the Provincial Service men, and
one-fourth to the I. C. S. who should be eligible only if they
are also Barristers at law, and that Provincial Judicial
Officers should be eligible only if they were duly enrolled
at the Bar before their first appointment in the Judiciary.*

The Bill : — The first reading of the Bill framed by the
Government on the lines of the White Paper with the modi-
fication suggested by the J. P. C. Report took place in
Parliament in December 1934. The Bill received the Royal
Assent on August 2, 1935. (The Parliament ordered later
that the Act relating to India might be printed separately
from the portion relating to Burma ).

^Regarding the Ecclesiastical Department, Major Atlee and
his colleagues wrote: — "We think it would be very much better
to abolish this Department and include religious ministrations
as an integral part of the Army administration, ...We would go
further and propose that so long as we have an Army and
services in India whose spiritual needs are entirely different
from those of the peoples amongst whom they serve, it would
be a gracious act on our part if the necessary expenses were
placed on British instead of on Indian Revenues."

Chapter IV

THE NEW CONSTITUTION.

The Federation of India.

Introductory: — The Government of India Act, 1935,
provides for a Federal Constitution for India. The rights
and powers hitherto belonging to His Majesty and apper-
taining to the government of India are exercisable by
His Majesty, except in so for as may otherwise be provided in
the Act, or otherwise directed by His Majesty. The powers
of the Crown relating to Indian States in matters concerning
Paramountcy and those not coming within the P^ederal
sphere, shall be exercisable by His Majesty's Representa-
tive in that behalf. The Governor- General of India may
be appointed as such Representative also, though the office
of the Governor-General is distinct and separate from that
of the Representative for the exercise of the functions of
the Crown in its relations with Indian States, viz. the
Viceroy, There shall be a Commander-in-Chief of His
Majesty's Forces in India appointed under the Royal Sign
Manual. ( Sections. 2-4. )*

The Federal Units: — The units of the Federation are
I. The Governors' Provinces. 2. The Indian States acceding
to the Federation. The Chief Commissioners' Provinces
shall be included in the Federation so established. The

* The number of the relevant Sections of the Government
of India Act, 1935, is given to facilitate reference for interpre-
tation, and fur further elucidation of the matter summarised.

C.L.7 49

The Indian Constitution Ch. IV

Federation shall be brought into force on the issue of a
Proclamation by His Majesty. Such Proclamation may
be issued on an address being presented by each House of
Parliament, and when the Rulers entitled to choose 52
members of the Council of State and the aggregate popu-
lation of v/hose States amounts to at least one-half of the
total population of Indian States, have acceded to the
Federation. ( S. 5 )

Accession of 5tates:— If His Majesty has signified
his acceptance of an Instrument of Accession executed
by the Ruler of a State, such State shall be deemed to
have acceded to the Federation. The Instrument shall
declare that he accedes with the intention that all
Federal authorities, including legislative and judicial, shall
exercise in relation to the State functions vested in them
subject to the terms thereof, and for the purpose only of
the Federation. The Ruler thereby assumes the obligation
that the relevent provisions of the Act will be given effect
to in his State so far as they are applicable. The Instru-
ment shall state the extent to which and the subjects in
which the Federal Legislature shall enact laws for his
State; and there may be supplementary Instruments also.
The Instrument shall not be accepted if the terms thereof
are inconsistent with the scheme of Federation embodied
in the Act. After the Federation is established, the request
of a Ruler for Accession to the Federation shall be trans-
mitted to His Majesty through the Governor-General. If
the request is made 20 years after the establishment of the
Federation, the Governor-General shall not transmit it
unless an address for transmitting it is presented to him
by each Chamber of the Federal Legislature. A State

i50

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which has acceded shall be called a "Federated State" and
all Courts shall take judicial notice of all Instruments of
Accession and their acceptance. ( S. 6 )

The Executive:— The executive authority of the
Federation shall be exercised on behalf of His Majesty
by the Governor-General. His annual salary is Rs. 250,800.
The executive authority of the Federation extends to all
matters coming within the legislative competence of the
Federal Legislature, to the raising of military forces exerci-
sable by His Majesty, to the jurisdiction over tribal areas.
But executive inteiference in Provincial affairs or in a
Federated State is permissible only to the extent to which
it is otherwise provided in the Act and the Instrument of
Accession. Commissions in the Army shall be granted by
His Majesty as in the past. The executive authority of a
Ruler is restricted only to the extent to which the executive
authority of a Federation becomes exercisable by virtue of a
Federal Law. ( S. 8 )

Council of Ministersr—The Council of Ministers shall
consist of not more than ten to aid and advise the Governor-
General in matters except in so far as he is required to act
in his discretion or exercise his individual judgment under
the Act in which matters his jurisdiction shall depend on
his own interpretation. TheG.-G. may preside at the meetings
of the Council of Ministers. The Ministers shall hold office
at his pleasure, and he may act according to his discretion
regarding summoning and dismissal. A Minister shall
cease to hold office if he is not a member of either Chamber
of the Federal Legislature for six months; his salary shall
not be varied during his term of office.

The Indian Constitution Ch. IV

Reserved Subjects.— The functions of the Governor-
General regarding Defence, Ecclesiastical affairs, tribal
areas and external affairs (except relations between the
Federation and the Dominions ) shall be exercised in his
discretion; for this purpose he may appoint counsellors
not exceeding three to assist him. ( S. ii )

Q=Q's. Special Responsibilities: — The G-G has the

following responsibilities:— Prevention of grave menace to
the tranquillity of India; safe-guarding financial stability and
credit of the Federation; safe-guarding of the legitimate
interests of the minorities; safe-guarding of the right of Public
servants and their dependants; prevention of the misuse
of legislative discrimination; prevention of British or
Burmese action subjecting goods to discriminatory or penal
treatment; protection of rights of Indian States and of the
dignity of their Rulers; prevention of the obstacles to the
discharge of his functions in which he is required by the
Act to act in his discretion or to exercise his individual
judgment. In any matter involving his special responsi-
bility, he shall exercise his individual judgment. ( S. 12)

Instrument of Instructions:— The Secretary of State
shall place before Parliament the draft Instrument of Instru-
ctions to the G.-G. further proceedings on which shall
not be taken except on an address by both the Houses of
Parliament to His Majesty praying that the Instrument
may be issued. The Secretary of State shall have superin-
tendence and control in matters in which the G.-G. is
required by the Act to act in his discretion or exercise his
individual judgment. ( S. 14 )

To give advice to the Governor-General in the
discharge of his special responsibilty for safeguarding the

The New Constitution

financial stability of the Federation and to the P'ederal
Ministry in financial matters if consulted, the G-G shall
appoint a person to be his financial adviser, who shall
hold office during the G.-G's pleasure. In selecting the
adviser, except in making the appointment of the first
adviser, the G-G shall consult the ministers. For giving
legal advice and for performing other duties of a legal
character, if required, the G.-G in the exercise of his indi-
vidual judgment shall appoint an Advocate-General, who
must be a person qualified to be appointed a Judge of the
Federal Court, on such remuneration as the G.-G may think
fit. He shall have right of audience in all Courts in British
India, and in a case in which federal interests are concerned,
in all courts in any Federated State. In consultation with
the ministers, the G-G may frame rules for the allocation of
portfolios and conduct of business of the Federal Govern-
ment.

Federal Legislature: — The Federal Legislature shall
consist of His Majesty represented by the G-G. and two
Chambers, viz. The Council of State, and the Federal
Assembly. The Council of State shall consist of 156 repre-
sentatives of British India and not more than 104 represen-
tatives of Indian States. Out of 156 seats allotted to
British India, 150 will be filled up by election from the
Governors' Provinces, Chief Commissioners' Provinces
and Communities. The Council shall be a permanent body
not subject to dissolution, but one- third of the members
shall retire in every third year. The Assembly shall consist
of 250 members of British India, and not more than 125
representatives of Indian States. The normal duration of
the Assembly is five years, the expiration of which period
shall operate as a dissolution. The Chamber must irieet

The Indian Constitution Ch. IV

at least once in a year. The interval between the last
meeting of one session and the first meeting of the next
session must not be more than twelve months. The G-G
may in his discretion summon and prorogue the Chambers,
or dissolve the Assembly, and has the power to address
and send messages to the Chambers with respect to a
pending bill or otherwise; the matter referred to therein
shall be taken into consideration by the Chamber to which
the message is addressed.

Every minister, counsellor, and the AdvocatcGeneral
shall have the right to speak in and take part in the pro-
ceedings of the Chambers ( or committees thereof to which
they may be nominated ) but shall not be entitled to vote,
unless otherwise provided for. The Council has the right to
choose the President and the Deputy President who shall
vacate their offices on ceasing to be members of the House,
and may resign the offices, and may be removed by a
majority voting for the resolution for removal of which
fourteen days' previous notice is given. In the absence
of the President, the Deputy President shall preside.
Ifthe office of Deputy President is vacant, such member
as the G.-G may appoint, shall act. In the absence of
the Deputy President from any sitting, such person as
may be determined by the rules of procedure of the Council
shall preside. In the absence of such person, any person
determined by the Council shall act as President. The
President and Deputy President shall receive the salaries
fixed by Act of Federal Legislature. In the Assembly the
title of the person elected to preside is known as the
Speaker, and provision is made for a Deputy Speaker also.
The Law relating to the election, remuneration, filling up

The New Constitution

of vacancy of the Speaker and Uie Deputy Speaker, is the
same as the corresponding provision for the President and
the Deputy President of the Council of State respectively.
Matters before the Houses shall be decided by a majority of
votes of the members present and voting. The person
presiding has only a casting vote. The quorum for a
meeting is one- sixth of the total number of members.

Every member shall take the appropriate oath. No
person shall be a member of both the Chambers. A mem-
ber's seat shall become vacant by his resignation or by his
becoming subject to any of the disqualifications for member-
ship. A person shall be disqualified to be chosen as and
to be a member if he is an official (other than those holding
excepted offices), if he is of unsound mind, or is an undis-
charged insolvent, or is convicted for or found guilty of
illegal election practices, or has been sentenced to not less
than two years' imprisonment ( unless five years have
elapsed since his release), or has failed to duly lodge a
return of election expenses required by law (unless five
years have elapsed since the date on which the return was
due). A person serving a term of transportation or impri-
sonment for a criminal offence is ineligible. A person hold-
ing a ministership in the Federation or in a Province or in
a Federated State, though belonging to the regular service
in India shall not be deemed to be an official under the
Crown in India for the purpose of the provisions relating to
ineligibility noted above. If a member absents himself with-
out the permission of the Chamber for sixty days exclud-
ing periods of prorogation, the Chamber may declare his seat
vacant. Adjournments for more than four consecutive days
will be excluded from this computation. The penalty for

The Indian Constitution Ch. IV

sitting and voting when not qualified is rupees five hundred
which may be recovered as a debt due to the Federation.
The members have freedom of speech; no peison shall be
liable in respect of the publication by or under the authority
of either Chamber of any report, paper, votes or proceedings.
Until the privileges of the members are defined by Act of the
Federal Legislature, the existing privileges of the members
of the Indian Legislature shall be enjoyed by them.
Neither the Legislature nor any Committee thereof shall
have any punitive or disciplinary powers other than power
to remove or exclude persons infringing the rules or be-
having in a disorderly manner. Subject to the safe-
guarding of confidential matter from disclosure, a person
may be punished in a court for refusing to- give evidence
or produce a document on notice for production. Members
shall be entitled to receive allow^ances under the existing
rates until the Federal Legislature fixes the rates of allow-
ances and salaries of Members.

Legislative Procedure: — A bill may originate in
either Chamber. A pending bill shall not lapse due to
the prorogation of the chambers, or due to the dissolution of
the Assembly if the Council is considering the Bill which
has not been passed by the Assembly. A Bill pending in the
Assembly lapses on the dissolution of the Assembly. ( S. 30 )
if a Bill has not lapsed by the dissolution of the Assembly,
the Governor-General acting in his discretion by message
or notification, may call for a joint sitting of both Houses
if a Bill passed by one Chamber is rejected by the other, or
is kept by the other Chamber for more than six months, or
when the chambers disagree as to amendments to the Bill.
If the Bill relates to finance or matters in which he is

The New Constitution

required to act in his discretion or excercise his individual
judgment, the Governor-General may call fcr a joint sitting
to avoid delay in the passing of the Bill, even though six
months have not elapsed since its being passed by one
Chamber, or it is not finally rejected, or final disagreement
regarding amendments has not taken place. If at a joint sitting,
a Bill, with such amendments as are agreed to, is passed
by a majority, then it shall be deemed to have been passed
by the Indian Legislature. A joint session may be held though
adissolutionof the Assembly has intervened since the Gover-
nor-General's notification of his intention to summon a joint
sitting ( S. 31 ). When a bill is passed by the Chambers, the
Governor-General may declare either that he assents to the
Bill in His Majesty's name, or that he withholds assent
therefrom, or that he reserves the Bill for the signification
of His Majesty's pleasure, or return the Bill with a message
for reconsideration of specific provisions or considering the
desirability of introducing amendments. A Bill reserved
for signification of His Majesty's pleasure shall not become
an Act unless the Governor-General notifies His Majesty's
assent within twelve months after it is presented to the
Governor-General on having been passed by the chambers.
An act assented to by the Governor-General may be
disallowed by His Majesty within twelve months of the
G.-G's assent. ( S. 32 )

Financial matters:— The G-G shall cause the Annual
Financial statement to be laid before the Legislature. It
shall show distinctly the expenditure required for due
discharge of his responsibilities and expenditure charged
on Revenue accounts. The salary and allowances of the G-G's
Ministers, Counsellors, P^inancial adviser, Advocate-General,

The Indian Constitution Ch. IV

Chief Commissioners, Judges of the Federal Court, and
pensions of High Court Judges, debt charges for which the
Federation is liable, expenditure in connection with defence,
ecclesiastical affairs, external affairs ( as come within the
G-G's. discretion ), administration of tribal and excluded
areas, and functions of the Crown in its relations-with Indian
States, sums required for satisfying any decree or award
of Court or arbitral tribunal shall be charged on the
Revenues of the Federation ( S. 33 ). These are not
subject to the vote of the Legislature. But they may
be discussed in the Legislatures except the items under
salary and allowances of the Governor-General and expen-
diture for discharging the functions of the Crown in its
relation with Indian States. Items not charged on the
Revenues shown above, shall be submitted in the form of
demands for grants to the Federal Assembly and then to
the Council of State vrho may assent to, or refuse assent
to, or reduce, the amount. If the Assembly has refused
a demand, the demand shall not be submitted to the
Council unless the G-G. directs. If the Assembly has re-
duced the amount, only the reduced amount shall be sub-
mitted to the Council unless the G -G. otherwise directs.
If the chambers differ, there may be a joint sitting at the
instance of the G-G. The decision of the majority at the
joint meeting shall be deemed to be the decision of the
two chambers. No demand for grant shall be made except
on the recommendation of the G-G. ( S. 34 ) The G-G.
shall authenticate by his signature a schedule showing the
grants made by the chambers, the sum required for expen-
diture charged on the revenue, and sums certified by him
as required for the discharge of his special responsibilities
which were refused or reduced by the chambers. The

The New Constitution

schedule shall not be open to discussion by the Legislature.
Supplementary demands may also be made. A Bill for
imposing or increasing a tax or for borrowing, or declaring
or increasing the expenditure charged on revenues, shall
not be introduced in the Council of State. Such a Bill shall
not be introduced except on the recommendation of the
G-G. A Bill providing for the imposition of fines and

penalties, or for demand of license fees is not a Money Bill
for this purpose, A Bill which involves expenditure from
the revenues of the Federation shall not be passed unless
it is recommended for consideration by the Governor-General
to the Chambers.

General Procedure; — The G-G. shall, in hi's discretion,
make rules regulating the procedure in each Chamber after
consulting the Speaker or the President in relation to the
matters in which he has to act in his discretion or exercise
his individual judgment, or for securing the timely com-
pletion of financial business, or for prohibiting discussion
or interpellation on matters connected with any Indian
State other than those for which the Federal Legislature
can make laws for prohibiting discussion, except
w^th the G-G's consent, of Foreign relations, conduct of
Rulers of Indian States and Royal fiimilies, action of the
G-G. relating to the affairs of a Province or administration
of excluded and tribal areas other than for Budget Debate.
Otherwise the chambers can make rules for their own
procedure. The G-G. after consultation with the President
and the Speaker may make rules relating to joint sittings
and communications between the Chambers. The President
of the Council shall preside at a joint sitting of the two
chambers. The rules shall provide as to who must occupy

The Indian Constitution Ch. IV

the chair in the absence of the President at a joint sitting
(S. 38). The proceedings in the Federal Legislature shall
be conducted in the English language. If a member is
not sufficiently acquainted with the English language, the
rules may provide for his using another language. No
discussion shall take place in the Federal Legislature about
the conduct of any judge of the Federal Court or High
Court ( including High Courts in Federated States ) in the
discharge of his duties. The G-G. may, in his discretion,
certify that the discussion of any Bill would affect the peace
and tranquillity of India. On such certificate, further
proceedings regarding the measure will be stopped.
Courts have no jurisdiction to inquire into the regularity of
the proceedings in the Legislature. ( S. 41 j

Legislative Powers of the GoverorGeneral.

Ordinances: — The Governor- General has power to
issue ordinances when the Federal Legislature is not in
session. He shall exercise his individual judgment if
the measure would, under ordinary circumstances, have
required his previous sanction before being introduced as
a Bill. If it is of a nature, which, under ordinary circum-
stances, he would have reserved for the signification of His
Majesty's pleasure thereon, then he shall not promulgate
the ordinance on such a subject without instructions from
His Majesty. An ordinance has the same effect as a Federal
Act. But it shall have effect only for six weeks after
the reassembling of the Legislature. If within that period
resolutions disapproving of the ordinance are passed by
both Houses of the Legislature, the ordinance will become
inoperative after the second of the resolutions is passed. An
ordinance may be disallowed by His Majesty or withdrawn

The New Constitution

by the G-G. An ordinance would be void if legislates
on a subject beyond the legislative competency of the
Federal Legislature. ( S. 42)

The Governor-General may promulgate in his discre-
tion ordinances for enabling him to discharge his functions
in matters in which he is, under the Act, to act in his dis-
cretion or exercise his individual judgment. Ordinances
of this nature shall be in operation for six months and may
be extended for another six months. When such extension
is given, it shall be communicated to the Secretary of State,
who shall have it laid before Parliament. It shall be
subject to disallowance by His Majesty, or may be with-
drawn by the Qi-Q ( S. 43 )

Q-Q's Acts: — Instead of issuing an ordinance under
the last provision noted above, the G-G. may, after explain-
ing the circumstances in a message to the Legislature, either
enact a Governor-Generars Act or attach to the message
a draft Bill. One month after sending such draft, the
G-G may enact the measure, taking into consideration any
address presented to him by the Legislature. Such ■ Acts
shall be communicated to the Secretary of State to be laid
before Parliament, and are subject to disallowance by
His Majesty. These Acts can be enacted only for the
purpose of enabling him satisfactorily to discharge his
functions in which he has to act in his discretion, or exercise
his individual judgment. A Governor-General's Act would
be void if it legislates any provision which is beyond the
legislative competency of the Federal Legislature. (S. 44)

Safeguards Against Failure of Constitutional

Machinery.

When the Governor- General is satisfied ' that Govern-
ment cannot be carried on under the' Act, he may issue

The Indian Constitution Ch. IV

a Proclamation declaring his intention to act according to
his discretion, and assume all, or any of the powers vested
in any Federal body or authority except those of the
Federal Court, and issue incidental and consequential
provisions. The Proclamation may be varied or revoked
later on, and shall be laid before Parliament by the
Secretary of State to v^'hom it shall be communicated.
The Proclamation shall cease to operate after six months.
If and so often as a resolution approving of the continuance
of the Proclamation is passed by the Parliament, the
Proclamation shall continue for a further period of twelve
months. If, for a continuous period of three years, the
Government has been carried on under such Proclamation,
then it shall cease to have effect, and other provisions of
the Act may be used with suitable amendments made by
the Parliament for the government of the Federation. But
this shall not extend the power of Parliament to
make amendments in the Act without affecting the
secession of a State. Laws passed by the Governor-
General under the powers assumed by the Proclamation,
shall, unless repealed earlier, have effect for two years
after the date on which the Proclamation ceases to have

force (S. 45).

Provincial Governments.

Provinces :— The following are the Governors' Pro.
vinces:— Madras, Bombay, Bengal, U. P., the Punjab, Bihar,
C. P. and Berar, Assam, N. W. F. Province, Orissa, Sind
and such others as may be created. Burma shall cease to
be part of India. The sovereignty of Berar is with H. E. H.
the Nizam. But in contemplation of an agreement with
H. E. H. the Nizam » Berar and C. P. will continue to be
governed as one Governor's ProVlncU; except in th'e oath of

The New Constitution

allegiance, in all other matters, reference to British India
shall be deemed to include Berar.

Governors: — The Governor of a Province is appointed
by His Majesty by a Commission under the Royal Sign
Manual. The third schedule prescribes that the salaries
of the Governors of Madras, Bombay, Bengal, and the
U. P. shall be Rs. 1,20,000 per annum; of the Punjab and
Bihar Rs. 1,00,000 per annum; of the C. P. Rs. 72,000 per
annum; and of Assam, N.W.F.P.,Orissa and Sind Rs. 66,000
per annum. ( The schedule provides for allowances for
equipment and travelling, and during terms of office, for
customs privileges &c., for the G-G. and the Governor ).

Administration: — The Statutory provisions regarding
a Council of Ministers and their tenure are the same as those
of the Federal Council of Ministers. But there are no
Reserved Subjects in the Provinces. The special respon-
sibilities of the Governor are the same as those of the Gover-
nor-General except those of safe-guarding the financial
stability and credit of the Federal Government, of prevent-
ing action relating to discriminatory or penal treatment
(which is a federal subject), and of securing due administra-
tion of reserved subjects. In addition, the Governor has
special responsibility for the securing of the execution of
the orders of the Governor-General issued in his discretion.
The Governor of Central Provinces and Berar has special re-
sponsibility for securing that a reasonable share of the reve.
nues is spent for the benefit of Berar. A Governor of a Pro-
vince has a special responsibility regarding administration
of excluded areas, or of functions as Agent for the Gover-
nor-General. The Governor of Sind has a special responsibi-
lity regarding tho Llyod Barrage and Canal schemes. The

The Indian Constitution Ch. IV

same provision as in the case of the Governor-General
regarding the laying of the Instrument of Instructions is made
in the case of the Governor also. There is similar provision
for the Advocate-General of the Province, appointed by
the Governor as in the case of the Advocate-General of
India.

Special Provisions: — The Governor shall exercise
his individual judgment in making, amending, and approving
by virtue of powers vested in him, regulations and orders
relating to the police other than those affecting the organir
sation and discipline of that force. ( S. 56 ) If it appears
to the Governor that the peace or tranquillity is threatened
by attempt of conspiracy to overthrow the Government,
the Governor may direct that his functions shall, to that
extent, be exercised in his discretion. During such a period,
when he is acting in his discretion, the Governor may
authorise an official to speak and take part in the Legislature.
The Governor may make rules that no records or ( S. 57 )
information relating to the sources of information regarding
conspiracy or preparation shall be disclosed ( i ) by a
member of the Police to another member of the Police
except under the directions of the Commissioner or I. G. P.,
■or to any other person except under directions of the
Governor, ( 2 ) by any other official to any person except
in accordance with the Governor's directions. The provisions
relating to conduct of business in the Province are the same
as those for the Federal Government, and the Governor
can act in the same manner as the Governor-General.

The Provincial Legislature:— The Provinces of Madras,
Bombay, Bengal, United Provinces, Bihar, and Assam shall

.64

The New Constitution

have two Chambers, and the other Provinces one. The
legislative procedure, constitution of the legislatures, the
legislative powers of the Governor, and the provisions in the
case of failure of the constitutional machinery in the
Province, are similar to those noted above in respect of
the Federation. No Proclamation under the last of these
Items can be issued by the Governor without the concurrence
of the Governor-Gsneral.

Excluded Areas :— Specified areas may be excluded,
either partly or wholly, from the operation of the Act or
part thereof, for which the Governor may make Regulations.
The Regulations will not have legal force unless assented
to by the Governor-General.

Chief Commissioner's Provinces : — These shall be
administered by the G.-G. through a Chief Commissioner.
These Provinces are British Baluchistan, Delhi, Ajmer-
Merwara, Coorg, the Andamans and Nicobar Islands, and
Pant Piploda. Aden shall cease to be a part of India.

Legislative Powers.

Jurisdiction: —The Federal Legislature may make laws
for British India and Federated States, subject to the
Act and the Instrument of Accession. The extra-
territorial operation of any Federal Law, shall not
be ground for invalidating that Law in so for as it relates
to British subjects and servants of the Crown in India, to
British subjects of Indian domicile wherever they may be,
or to persons on ships or air-craft registered in British India
or Federated States, or to subjects of Federated States in
matters included by the Instrument of Accession. This
includes laws for the regulation and discipline of Naval,

c. L. 9 65

The Indian Constitution Ch. IV

Military, and Air Forces raised in British India, to persons
attached thereto wherever they may be. ( S. 99 )

Legislative Lists .—The Federal Legislature has
exclusive jurisdiction to make laws relating to matters
enumerated in the Federal Legislative List ( vide the
seventh Schedule ).

The Federal Legislature, and a Provincial Legislature
also, have power to make laws relating to matters enume-
rated in the Concurrent Legislative List.

The Provincial Legislature has exclusive jurisdiction
to make laws for a Province with respect to any of the
matters enumerated in the Provincial Legislative List.

The Federal Legislature has power to make laws with
respect to matters enumerated in the Provincial Legislative
List except for a Province or any part thereof. (S. 100)
The Instrument of Accession will govern the competency of
the Federal Legislature in legislating for States. (S. loi )

Emergency Legislation: — The Federal Legislature,
may, however, exercise legislative powers with the previous
sanction of the Governor-General, for Bills even in respect
of a Province, if the Governor-General has in his discretion,
declared by Proclamation that a grave emergency exists
threatening the security of India, whether by War or
internal disturbance. This power, however, lasts only while
the emergency lasts, and laws enacted by the Federal
Legislature in exercise of this power shall cease to h;ve
effect on expiry of six months after tbe Proclamation has
ceased to operate. If any provision of a Provincial Law,
which the Provincial Legislature has power to make, is

The New Constitution

repugnant to any provision of a Federal Law, which the
Federal Legislature has, under this emergency, power to
make, the Federal Law will prevail whether passed before
or after the Provincial Law, but the Provincial Law will
be void only so long as the Federal Law continues to have
effect. The Proclamation shall be forthwith communicated
to the Secretary of State who shall lay it before each House
of Parliament and shall have operation only for six months
unless approved by Parliament before the expiration of that
period. ( S. 102 )

The Federal Legislature has got power to legislate
for two or more Provinces if they consent. In such cases,
the Provincial Legislatures have got power to amend or
repeal such Act if it does not suit them.

The Governor-General in his discretion has got resi-
duary powers for empowering the Federal or Provincial
Legislature to enact a Law regarding any subject^ rn the
lists (vide Schedule), or to impose any tax which the
Federal or Provincial Executive shall extend to the admi-
nistration of the area under them.

The Federal Legislature may make the Naval Discip-
line Act applicable to Indian Naval Forces with suitable
modifications if necessary. The Naval Discipline Act shall,
without modification, apply to any part of the Indian
Navy deputed to be under the Admiralty.

The Federal Legislature can legislate in matters giving
effect to International agreements only with the consent of
the Governor or Ruler of a State as may be, if the Law is
to affect a Province or a State. (S. 106)

The Indian Constitution Ch. IV

In the case of inconsistency between Federal Laws
and Provincial Laws, the Federal Laws shall prevail.
(Section 107)-

Restrictions on Legislative Powers :— The previous }
sanction of the Governor-General is required for intro-
ducing Bills in the Federal Legislature and also
in the Provincial Legislatures on some matters, e. g.,
repealing or amending Acts of Parliament, Governor
or Governor-General s Act, affecting criminal proceedings
against European residents etc. (Section loS). The power
of the Parliament to legislate for British India remains
unaffected, and the Federal and Provincial Legislatures
cannot pass Laws affecting the Sovereignty of the Crown,
Succession to the Crown, Army Act, Air Force Act, Naval \
Discipline Act, Prize-Courts, Orders-in-Council, etc.,
(Section no).

ProviMon regarding Discrimination: — A British subject
domiciled in the United Kingdom is exempt from the
operation of F'^ederal or Provincial Law imposing any
restriction of right of entry into British India or any dis-
ability regarding travel, residence, holding of property etc.
by reference to place of birth, race, or descent. But this
exemption does not prevail wheie a similar disability is
imposed on Indians by the law of the United Kingdom.
Quarantine regulations are not discriminatory regulations
for this purpose, nor are rules governing deportation of
undesirable persons. The Governor-General or Governor
may suspend the provision against discriminations in view
of grave menace to tranquillity, or to comb.it crimes of
violence.

The New Constitution

Discriminations in taxation against Britibh subjects
domiciled in, or against companies incorporated in, the
United Kingdom or Burma, or against ships registered in
British India, or against air-craft, are forbidden. British
Companies -svill be treated on the same lines as Indian
companies in the matter of subsides, bounties, &c. These
are, ho^vever, subject to reciprocity by the huvs of the
United Kingdom. This exemption may be taken away
after a Convention between the Government in the United
Kingdom and the Federal Government meets after the
establishment of the Federation, and settles on similarity
of treatments to British subjects domiciled in India, and to
Companies incorporated there, and after the necessary
legislation is passed thereon. The previous sanction of the
Governor-General or Governor is necessary, for Federal or
Provincial legislation respectively, providing for the laying
dov/n of professional qualifications for the exercise of pro-
fessions or for imposing any disability or restriction in
connection therevrith. Such Bills should be reserved for
Royal Assent or the Governor-General's consideration as
the case may be. Such previous sanction shall not be
given if it affects persons who were already lawfully prac-
tising a profession, except when public interests require
any special debarring. Such regulations shall be published
at least four months before they are expressed to come
into operation. If within two months after the publication
thereof, complaint is made that the regulations will operate
unfairly against any class of persons, and if the Governor-
General or the Governor, to whom the complaint is made
considers it to be well-founded, the Governor-General or
Governor, may, by public notification, disallow thg
regulations.

The Indian Constitution Ch. IV

Medical Qualifications:— A British subject domiciled
in the United Kingdom or India, who is, or is entitled to
be, registered in the United Kingdom by virtue of a diploma
granted in the United Kingdom, shall not be excluded from
practising medicine, surgery or mid-wiferyby any Federal or
Provincial law except on the ground that the diploma does
not furnish sufficient guarantee of his possessing the requi-
site knowledge for such practice. He shall not be so
excluded unless the law provides that no proposal for such
exclusion shall be operative until the expiration of twelve
months after notice of the G-G. to the University or
body granting the diploma, and further provides that the pro-
posal shall be inoperative if the Privy Council, on enquiry,
decides that the diploma furnishes a sufficient guarantee of
knowledge. For this purpose, if the University or body grant-
ing the diploma, or any British subject holding the diploma,
feels aggrieved by a proposal for exclusion^ such body or
person may apply to the Privy Council, which, after giving
an opportunity to the necessary parties in British India and
the United Kingdom to tender evidence and written
representations, shall determine whether the diploma is a
sufficient guarantee for possession of knowledge and skill
for medical practice.

The aforesaid provision in the previous paragraph
is subject to the condition that British subjects domiciled
in India holding a medical diploma granted after examina-
tion in British India, shall not be excluded from practice
and registration in the United Kingdom except on the
ground that the diploma is not a sufficient guarantee of
possession of knowledge and skill; the provision is also
subject to the further condition that there shall be d,

The New Constitution

reference to the Privy Council for deciding about the
sufliciency of the diploma in such cases.

A medical practitioner entitled to prastice in British
India by virtue of a diploma granted in the United
Kingdom, or by virtue of a diploma granted in British India,
shall not be subjected to disability or restrictions to which
persons entitled to practise by virtue of diplomas granted
in the other country are not subject.

This shall not affect the power of any authority in
the United Kingdom or in British India to suspend or
debar a practitioner on the ground of misconduct. 'Diploma'
includes any certificate, degree, or fellowship granted to
persons passing examinations.

administrative relations between the federation,
Provinces, and States.

Administration:— The executive authority of every
Province and Federal State shall be so exercised as to
secure respect for Federal laws applicable to the Province
or State. Regard shall be had to the interests of the Province
or State in the exercise of the authority of the Federation
( S. 122). The Governor-General shall require the Governors
to discharge certain functions as his Agents in relation to
defence, ecclesiastical affairs, external affairs and tribal
areas. The Governor-General may entrust functions relating
to Federal matters to Provincial Government or the Ruler
of a Federated State with their consent. A Federal lav,-
may confer powers and impose duties on the ofllcers of
the Provincial Government or the Federated State. The
Federation shall pay the costs for such functions. If the

The Indian Constitution Ch. iV

parties do not agree as to the costs, an arbitrator appointed
by the Chief Justice may decide the amount of such extra
costs (S. 124). With respect to the administration of Federal
laws in States, agreements may be made with the Rulers of
Federated States, and shall be so made if so provided by
the Instrument of Accession, in which, provision shall also
be made for inspection, if necessary, regarding the admini-
stration of such laws and for the issue of directions by the
G-G ( S. i:?5 ). Tiie executive authority of a Province
shall not impede the exercise of Federal executive authority
which can give necessary directions to a Province among
others for the carrying into execution of the Federal laws
relating to matters specified in the Concurrent Legislative
List. A Bill relating thereto shall not be introduced in the
Federal Legislature without the previous consent of the
Governor-General. Directions shall be given for the cons-
truction and maintenance of communications of military
importance. The Federation had full power regarding
construction and maintenance of communications of stra-
tegic importance. If the Governor-General thinks that
effect has not been given to his directions, he ma}' issue
further directions. The Governor-General may also issue
orders to Governors as to the manner of the exercise of
executive authority for preventing grave menace to the peace
or tranquillity of any part of India. The Federation may ask
the Province to transfer land or to acquire land for the
Federation on the Federation paying the expenses.
Disputes as to the terms of transfer may be settled by an
arbitrator appointed by the Chief Justice of India. The
Federated State shall exercise its executive authority so as
not to impede tlie Federal authority exercisable in a
State. Failure to fulfil such obligations may be met by the

The New Constitution

issue of fresh directions by the Governor-General to the
State on considering the Ruler's representations, if an)'.
Differences as to the exercisability of a Federal law in a
State, shiill be settled by the Federal Court (S, 128).

Broadcasting: — The Federation shall not unreason-
ably refuse to entrust a Province or Federated State with
functions regarding the construction and use of transmitters
and levying fees therefor. But the Province or State
cannot interfere with Federal control over constructions
made by the Federation. The Federation cannot impose
conditions relating to the matter broadcast by a Province
01 Ruler, except that the Governor-General can interfere
to prevent grave meance to peace or tranquillity after
the due administration of Reserved Subjects, tribal areas and
for the exercise of his special responsibilities. The G.-G.
shall decide disputes between the Federal Government and
the Provinces and States regarding broadcasting.

Interference with Water Supplies : — The Province or
Ruler of a State may complain to the Governor-General
as to the interference with water supplies by another
Province or State. The Governor-General shall appoint a
Commission who shall report after inquiry. The G.-G. shall
announce the decision after the consideration of the Report.
Before such decision is given, the Province or State may
request the G-G to refer the matter to His Majesty in
Council for decision. No law shall be passed repugnant
to the decision of the G-G or His Majesty, as the case may
be. The decision shall be duly given effect to. Expenses
may also be decreed, and they may be enforced like an
ordei of the Federal Court. Similar provisions may apply
in the case of interference with water supplies of Chief

C.L. 10 73

The Inman Constitution Ch. IV

Commissioner's Provinces. The jurisdiction of Courts in these
matters is exchidecl. The Ruler of a Federated State may
cxckide, by the Instrument of A.ccession, the application of
the provisions regarding interference with water supply in
relation to his State. (S. 134)

Inter=Provincial Co=operation: — His Majesty may, on
representation from the Governor-General, establish an
Inter-Provincial Council with facilities for the States to
participate in the work, for settling inter-Provincial dis-
putes, for investigating subjects of common interest and
making recommendations for better coordination of policy
and action in relation thereto.

Finance, Property, Contracts and Suits.

Finance: — Distribution of Revenue between the Fede-
ration and Federal Units:-—

The Federation shall levy and collect duties in respect
of succession to property other than agricultural lard,
Stamp duties mentioned in the Federal Legislative List,
terminal taxes on goods or passengers carried by Railway
or air, and taxes on Railway fares and freights. The net
proceeds except proceeds attributable to Chief Commis-
sioners' Provinces, shall be assigned and distributed among
the Provinces and States. (S. 137) Taxes on income shall
be levied and collected by the Federation; and a prescribed
part of the net proceeds except those attributable to Chief
Commissioners' Provinces or in respect of Federal emolu-
ments, shall not form part of the Federal revenues, but
shall be assigned and distributed among the Provinces
and the Federated States. The percentage originally fixed
shall be continued. The Federal Legislature may levy a

The New CoNSTiTUTiOxsr •

a surcharge for being available for the Federal revenues.
Out of the moneys assigned by the Province, the Federation
may retain in each year of a prescribed period a certain
sum prescribed, and in each year of a further prescribed
period a reduced amount at making a sliding reduction in
each year that the amount to be retained in the last year of
the period may be equal to the amount of each such annual
reduction. The periods shall not be reduced by order in
Council. The Governor-General may, iPx consultation with
the Representatives of the Federal, Provincial and State
interests, extend the duration of the second prescribed
period to enable the Federation to retain in any year the
same amount as in the previous year during that
second period, i. e. without the reduction according
to the sliding scale. When surcharge is imposed by
the Federal Legislature, States in v/hich income-tax is
not levied, shall pay a contribution to the Federation equal
to the net proceeds which vrould have accrued if the sur-
charge were leviable in the State. Federal emoluments
mean emoluments and pensions payable by the Federation
or the Federal Railway Authority on which income-tax is
chargeable. (S 138 )

Corporation tax shall not be levied by the Federation
in any Federated State until ten years have elapsed after
the establishment of Federation. Any Federal law for
the levy of corporation tax shall make provision enabling
the Ruler of an}' Federated State to have the option of
paying the contribution to the Federal revenues in lieu
of the Corporation tax if he his unwilling to levy the tax
in the State. The contribution shall be equal to the net
proceeds which would have accrued if the tax was levied.

The Indian Constitution Ch. IV

The Ruler shall requisition information to be supplied
to the Auditor- General to enable him to determine the
amount of contribution. The Ruler may appeal to the
Federal Court if dissatisfied with the amount of contri-
bution in any financial year. The decision of the Federal
Court shall be final ie. non-appealable. (S. 139) Salt
duties, excise duties and export duties shall be levied
and collected by the Federation, The Federal Act may
provide for the distribution to Provinces or States to which
the Act imposing the duty extends, sums equivalent to
the whole or any part of the net proceeds of that duty on
principles formulated in that Act. One-half or greater
proportion, as His Majesty in Council may determine,
of the net proceeds of export duty on jute or jute products
shall be assigned to jute-growing Provinces or Federated
States in proportion to the amounts of jute grown therein.
(S. 141) The previous sanction of the Governor-General
is required for Bills affecting taxation in which the Provinces
are interested, or affecting the provisions and principles of
distribution between the Provinces and States, or varying the
meaning of the expression "Agricultural Income". Before
giving sanction, the G.-G. shall also consider other avenues
of taxation if any, and the remedies for balancing the
Federal Budget. (S. 141) His Majesty in Council may
fix subventions from the Federal Revenues to the Provinces.
Except in the case of the North-West Frontier Province,
the amount of subvention shall not be increased by a
subsequent order unless an address for increase is presented
by the Federal Lci^islature to the Governor-General for
submission to His Majesty. The duties or taxes levied in
any Federated State independently of the provision of the
Federal Legislature, will not be subject to any of the

The New Constitution

aforesaid provisions. Any taxes, cesses or fees levied by any
Provincial Government, Municipality or any other local
body under the laws existing on or before the ist January
1935) will continue to operate until provision to the contrary
is made by the Federation. Net proceeds means proceeds
minus the cost of collection as ascertained by the Auditor-
General of India, and his decision will be final. An Act
of the Legislature assigning proceeds or contributions, may
provide for the manner of calculation for financial adjust-
ments and for the ancillary and incidental matters.

The Crown and the States :— The Federation shall pay
the expenses of the Crown in connection with the functions
of the Crown in its relations with the Indian States includ-
ing the making of payments of customary allowances
to members of the family or servants of any former
Ruler of any territories in India. All cash contribu-
tions and payments in respect of loans from any
Indian State shall be received by His Majesty and
may be placed by His Majesty at the disposal of the
Federation. Nothing shall derogate from His Majesty's
rights to remit wholly or in part any contributions or pay-
ments. His Majesty may agree to remit any contributions
of a Federated State over a period not exceeding twenty
years from the date of Accessicn. But the remission shall
not take effect until the Provinces have begun to receive
monies from taxes on income. Remission shall be comp-
lete before the expiration of twenty years from the date
of Accession of that State or before the expiration of the
second prescribed period mentioned above in relation to
distribution of taxes on income, whichever occurs first.
In the the case of a voluntary cession of a territory befoiQ

The Indian Constitution Ch. IV

the passing of the Act by a Federated State, in return for
specific military guarntees or in return for discharge from
obh'gations to provide military assistance to the Crown,
His Majesty may direct the payment of reasonable sums
after taking into account the value of any privilege or
immunity to that State, subject to its waiving the said
guarantees. No contribution shall be remitted save in
so for as it exceeds the value of any privileges or immunity
enjoyed by the State. If the liability for contributions has
been discharged by payment of capital sums, they may
be returned in instalments or otherwise, as His Majesty may
direct. Such repayments shall be deemed to be remissions.
Cash contribution includes periodical contributions in
acknowledgment of the Sezerainty of His Majesty in
return for aid or protection, contributions in commuta-
tion of an obligation to provide military assistance, or in
return for special military forces or police, or expenses
of an agent, periodical contributions on restoration of
a State or a territory, and periodical contributions formerly
payable to another State but now payable to His I\Iajesty
by right of conquest, assignment or lapse. Privilege or
immunity refers to rights of levying sea customs, pro-
duction and sale of untaxed salt, sums receivable on
account of a surrender of a right of customs duties, and of
production of salt and other commodities or in lieu of
grants of free salt; it further includes the annual value to
the Ruler of any privilege or territory granted in respect of
any such right. Privileges in respect of free service stamps,
free carriage of State mails, right to issue currency notes, right
to get freedom from customs duties on goods imported by
sea and transported in bond to the State, also come under
this category. For the acceptance by His Majesty of

The New Constittttton

the Instrument of Accession of any State, all particulars
as regards privileges or immunity will have to be given in
the Instrument (Vide Section 147 ). Section 148 provides
that any payments made under Section 147 and payments
made heretofore to any State by the G-G. in council or
the Local Government shall be charged on the revenues of
the Federation or on the revenues of the corresponding
Province as the case may be. The value of privileges and
immunities will be set off against the share of taxes etc.,
assigned to Federated States.

Miscellaneous Financial Provisions.

No burden shall be imposed on the revenue of the
Federation or the Provinces except for the purposes of India.
The Federation or a Province may make grants for a pur-
pose though it is not within the Legislative competence of
the Federal or Provincial Legislature. The Governor-
General or the Governor exercising his individual judgment
may make rules for the revenues of the Federation or of
the Province respectively being paid to the public account,
and for custody and withdrawals thereof. The Governor-
General shall exercise his discretion in the appointment,
removal, approval, and fixing of salaries and tenure of
office of the Governor, Deputy Governor and officiating
Governor of the Reserve Bank, and while acting in super-
session of the Central Board of the Bank and in the
liquidation of the Bank. The Governor-General will exer-
cise his individual judgment in nominating and removing
the Directors of the Reserve Bank. The previous sanction
of the Governor-General acting in his discretion will be
necessary for Bills affecting the constitution or functions of
the Bank or its powers of coinage and currency. Property

The Indian Constitution Ch, IV

vested in His Majesty for the purpose of the Federation
can be exempt from all taxes imposed by a State or a
Province. But if the said property was subject to any tax
before the Act, it will continue to be so until a contrary
measure is passed. The Government of a Province and the
Ruler of a Federated State shall be free from Federal
taxation with respect to lands and buildings situated in
British India or income accruing or received in British
India. The trade or business and incomes therefrom of
any Province or a Federated State outside their territorial
jurisdiction, shall not be exempt from Federal taxation nor
the personal property of any Ruler including personal
income and lands and buildings. The right of the Ruler
of any State with respect to exemption from taxation in the
matter of Government securities shall be preserved if the
right existed before or at the commencement of this Act.
The expenses of any Court or Commission, or any pension
payable for Indian services under the Crown, shall be
adjusted after a consideration of the proportion of the services
rendered to the Province or the Federation; and the con-
tribution of each, shall be charged on the respective re-
venues. In default of agreement regarding the contri-
bution, an arbitrator appointed by the Chief Justice of India
shall decide the issue. The Secretary of State shall get
money from time to time from the Federation and the
Provinces to pay off liis liabilities and pensions payable in
the United Kingdom on behalf of the Federation or the
Provinces. His Majesty in Councial may make pro^
vision for regulating the relations of the monetary systems
of Burroa and India, and for granting relief from any
Federal tax on income; in respect of income taxed or tax-
able in Burma, Provision may be made by His Majesty

The New Constitution

by Order In Council regarding customs duties on Indo-Burma
trade and for safe-guarding the economic interests of Burma
during the period immediately after separation from India.

Borrowing: — The powers of borrowing vested in the
Secretary of State in Council shall cease from the intro-
duction of Provincial Autonomy. But this does not affect
the powers, under the Act, of the Secretary of State for
raising Sterling Loans, Both the Federation and the Provinces
have borrowing powers within limits fixed by the Federal
Legislature and the Provincial Legislature respectively.
The Federation may make loans to the Provinces and may
give guarantee for Piovincial Loans. A Province may not
borrow outside India without the consent of the Federation.
A Province may not borrow without such consent if there
is still any outstandings in the loan due to the Federation, if
any, or under any guarantee given on its behalf by the
Federation. Consent, guarantee and loan shall not be
unreasonably refused or withheld by the Federation. The
G-G's decision in disputes relating thereto shall be final.
Within the limits fixed by the Act, the Federation may give
loans to, or guarantee loans raised by, any Federated State.
Provision is made for the application of the Colonial Stock
Acts 1S77-1900 to the Stocks issued by the Federation.

Audit And Accounts:— There shall be an Auditor-
General of India appointed by His IMajesty. He shall be
removed from office on the same grounds and in lika
manner as a Federal Court Judge ( See later under the
heading "The Judicature"). He is ineligible for any
further office under the Crown in India. He shall act
according to the rules of the order in Council and the
modifications thereof made by the Legislature. A Bill

C.L.ll 81

Thf Inman Constitution Ch. IV

regarding the same sliall not be introduced without the
previous sanction of the Governor-General. Provision is
made for the appointment of Proyincial Auditors-General
if after two years from the introduction of Provincial
Autononi}', the Provincial Legislature passes an Act for
such appointment. A Provincial Auditor-General is eligible
for appointment as Auditor-General of India, but not for
any other office. Power is given to the Auditor-General
of India to give directions as to the keeping of Federal and
Provincial accounts which shall be duly given effect to. The
Audit Reports shall be laid before the respective Legislature.

There shall be an Auditor ofthe Indian Home Accounts
appointed by the Governor-General. His removal shall be
in like manner and on like grounds as a Judge of the
Federal Court. He shall exercise powers in relation to
transactions in the United Kingdom affecting the revenues
of the Federation, of the Federal Railway Authority or
of a Province. His Report shall be included in the Report
ofthe Auditor-General of India or ofthe Provincial Auditor-
General according as it affects the Federation or the
Province. He shall be subject to the general superintendence
of the Auditor-General of India. Audit of accounts relating
to the discharge of the functions ofthe Crown in relation
to Indian States, shall be done by the Auditor-General of
India or by the Auditor of Indian Home Accounts under
the former's general superintendence in respect of such
transactions in the United Kingdom. The Auditor-General
shall submit to the Secretary of State an annual report of

such accounts of transactions' relating thereto in India and
in England.

Property, Contracts, Liabilities and Suits — Property
situated in a Province and hitherto used for Provincial

The New Constitution

purposes, vest in His Majesty for the purposes of the
Government of that Province. If used for purposes which
thereafter will be Federal, or for the exercise of functions
in relation to State purposes, or intended to be so used,
the property will vest in the Crown for the Federation or for
the State relations respectively. The property outside India
vests in the Crown for the Federation. If the property is
used for the Department of the Secretary of State in Council,
then it vests in His Majesty's Government and is to be
under the management of the Commissioner for Works;
and the sale of such lands shall take place only with the
consent of the Governor-General. All other property shall
vest in His Majesty for the Federation, or for the exercise
of functions in relation to States, or for the Government
of a Province according to the respective purposes for
which the property was held before the introduction of
Provincial Autonomy. Property accruing by escheat or
lapse or as bona vacantia in a Province shall vest in His
Majesty for a Province. Otherwise, it will vest in His
Majesty for the Federation. Property in the possession of a
Government will vest in the Federation or the Province
according to the use to which it was put at the date when
the right accrued. The authority of the Federation in the
Province shall extend to the sale, grant, disposition, acquisi-
tion, and purchase of property and the making of contracts.
But the official residence of the Governor-General or the
Governor cannot be sold or changed except with the
concurrence of the Governor-General or the Governor respec-
tively. Property acquired for the Federation, or for a
Province, or for the exercise of functions in relation to
States, shall vest in His Majesty for those purposes. Neither
the G-G nor the Governor, nor the Secretary of State, nor

The Indian Constitution Ch. IV

any officer executing or making contracts on behalf of
Government shall thereby incur any personal liability.

Suits: — The Federation may sue or be sued by the
name of the Federation of India, and the Provincial Govern-
ment by the name of the Province. Where the Federation,
the Federal Railway Authority or a Province sue or are
sued in the United Kingdom, service of proceedings may
be effected on the High Commissioner or any other repre-
sentative of the Federation, Railway Authority or Province.
Existing contracts of the Secretary of State made before
the establishment of Provincial Autonomy shall devolve
on a Province if made for the Province, and in other cases
on the Federation. Liabilities in respect of loans, guarantees
and other financial obligations of the Secretary of State
in Council, existing at the time of introduction of Provincial
Autonomy and secured on the revenues of India, shall be
liabilities of the Federation secured on the revenues of the
Federation and of ail the Provinces; enactments relating
thereto shall continue to have effect. No deduction in
respect of taxation under any existing or future Indian
or Provincial Law shall be made from any payment of
principal or interest in respect of such securities where
interest is payable in sterling. Liabilities of Local Govern-
ment secured on Provincial revenues shall continue to be
the liabilities of the Province with that security. Legal
proceedings which might have been brought against the
Secretary of State in Council, but for this Act, arising
before the establishment of Provincial Autonomy, or under
any statute or contract passed or made before that date,
shall be brought against the Federation or Province accord-
ing to the subject-matter of the suit. Costs, damages etc.

The New Constitution

in that connection shall be paid out of the Federal or Pro-
vincial revenues as the case may be. At the option of the
person by whom the proceedings are brought, they may
be filed against the Secretary of State. Damages and costs
in such cases may be paid out of such revenues as the
Secretary of State may direct. The Secretary of State may
make a similar direction that costs etc, shall be paid out
of the revenues of the Federation or the Province in suits
brought against him in the United Kingdom arising out of
contracts made in respect of Provincial affairs after the
introduction of Provincial Autonomy. There is no liability
on the British Exchequer. In legal proceedings pending in
India or the United Kingdom against the Secretary of State
in Council- on the date of the introduction of Provincial
Autonomy, the Secretary of State shall be substituted for
the Secretary of State in Council. Contracts in connection
with functions of the Crown in its relation with Indian
States before the introduction of Provincial Autonomy,
shall, after that date, have effect as if they have been made
on behalf of His Majesty; and proceedings arising therefrom
shall be brought by or against the Secretary of State. In
proceedings pending on that date by or against the Secre-
tary of State in -Council, whether in the Unitd Kingdom
or in India, the Secretary of State shall be substituted for
the Secretary of State in Council. Contracts made in
connection with the said functions of the Crown in relation
to States, shall be enforceable by or against the Secretary
of State. Costs and damages to be paid, shall be deemed
to be sums required for the discharge of the functions of
the Crown on that behalf. The sums received by the
Secretary of State by virtue of such proceedings, shall be
paid or credited to the Federation.

Chapter V

THE NEW CONSTITUTION (Contd.)

The Federal Railway Authority.

Functions:— The Executive Authority of the Federa-
tion in respect of regulation, construction, maintenance and
operation of Railways, shall be exercised by a Federal
Railway Authority. Subject to the provisions of any Federal,
Provincial or existing Indian Law or Law of any Federated
State, the Authority shall make arrangements for all under-
takings by the Railways. The Federal Government may
order its officers to hold inquiries into causes of Railway
accidents, and perform other function? for the securing of
the safety of the public using the Railways.

Composition:— Not less than three-seventh of the
members of the Authority shall be appointed by the Gover-
nor-General in his discretion, which shall also be exercised
by him in appointing a miember of the Authority as the
President. The qualifications and conditions of service of
the members ot the Authority are prescribed in the VIII
Schedule of the Act ( Vide extracts below ).

Directions and Principles : — The Authority shall act
on business principles having regard to the interests of agri-
culture, industry, commerce, finance and the general public.
They shall be guided by the instructions of the Federal
Government on questions of policy. The Authority shall
exercise its functions in their discretion as if they were

Thf New Consttttition (Contd.)

special responsibilities^ or exercise individual judgment in
the very same way as the Governor-General would act in
those matters where special responsibility or discretion or
individual judgment is vested in him. The Governor-
General's directions to the Authority in matters which
involve his special responsibility or require his discretion
or exercise of individual judgment, shall be given effect to
by the Authority. The Governor-General may make rules
for the convenient conduct of business between the 'Railway
Authority and the Federal Government. The Chief Execu-
tive Officer of the Authority shall transmit, when required,
information to the Federal Government on Railway business
and shall bring to the notice of the Governor-General
Railway matters involving his special responsibility. Land
may be compulsorily acquired by the Federal Government
for the Authority. The Authority shall not acquire or
dispose off land except under regulations made by the
Federal Government. Contracts made by the Authority
shall not be enforceable by or against the Federation.
The Authority may sue and be sued as a Company. The
Authority may make working agreements with Indian
States.

Finauce:^— The Authority shall maintain and control
a Fund known as the Railway Fund, out of which expendi-
ture may be incurred for the discharge of their functions,
e. g. for working expenses, payments under contracts,
payments of pensions and contributions, repaying to the
Federation pension contributions, provision for maintenance,
improvements and depreciation, payment to the Federation
of interest due &c. Surpluses shall be apportioned between
the Federation and the Authority according to any settled

The Indian Constitution Ch. V

scheme. Provision from the Federation for the Authority
shall be shown in the estimate of expenditure laid before
the Legislature. For the obligations of the Railway
Authority to the Federation, the Authority shall pay
interest to the Federation and make payments in reduction
of the principal. Tlie Authority shall repay to the Federa-
tion sums defrayed by the Federation on account of
damages caused &c. in proceedings against the Federation
or the Secretary of State in respect of Indian Railways.
The Authority shall pay to Provinces or Indian States
expenses incurred by them for the Railway Police. The
Authority shall invest moneys in the Railway Fund or any
Provident Fund. Except for expenditure chargeable
against that particular Fund, the Authority cannot demand
the transfer to them, for investment, of the Railway
Depreciation Fund, Reserve Fund or Provident Fund held
by the Governor-General in Council. The annual accounts
of the Authority shall be audited by the Auditor-General of
India, and an Annual Report shall be published by the
Authority.

Railway Rates Committee : — The Governor-General
may appoint a Railway Rates Committee to give advice to
the Authority regarding disputes as to rates and traffic
facilities. Except on the recommendation of the Governor-
General, bills and amendments for regulating rates and
fares in Railways shall not be introduced in the Federal
Legislature. The Railway Authority and the Federated
States should afibrd mutual traffic facilities and avoid undue
discrimination by undue preference or uneconomic compe-
tition. Complaints in such matters may be made to the
[^Railway Tribunal by either party. The Governor-Gengral

The New Constitution (Contcl.)

in his discretion shall make rules for the construction and
reconstruction of Railways. Except where the Governor-
General certifies that for reasons connected with Defence,
effect should or should not be given to a proposal,
all other proposals to which objection is taken shall be
left to the decision of the Railway Tribunal.

Railway Tribunal: — The Railway Tribunal shall consist
of a President and two others to be selected by the Governor-
General from a panel of eight persons appointed by him in
his discretion, being persons with Railway administrative
or business experience. The President shall be a Federal
Court Judge appointed by the Governor-General in consulta-
tion with the Chief Justice. He shall hold office for five
years and shall be eligible for reappointment for a further
period up to five years. The President shall cease to be
such when he ceases to be a Federal Judge. The
Authority and the Federated States shall give effect to the
orders of the Tribunal. An appeal lies to the Federal Court
on questions of Law, but there is no further appeal from the
Federal Court. The Tribunal or the Federal Court, may,
on application, review its own previous order in view of
an alteration in circumstances. The President shall make
the necessary rules for proceedings before the Tribunal.
No other Court has jurisdiction in matters which are
cognisable by the Tribunal (S. 196). Provision is made for
the right of Railway Companies, to have recourse to
arbitration in respect of disputes if their contracts so
provide. His Majesty's Representative may entrust to
the Authority any functions relating to the Railways
in un-Federated States. The powers of the Secretary of
State with regard to the appointment of Directors and

g-L. 12 89

The Indian Constittttion Ch. V

Deputy Directors for Indian Railway Companies, shall be
exercised by the Governor-General in his discretion in
consultation with the Authority.

The Judicature.

The Federal Court

Constitution:— The Federal Court shall consist of a Chief
Justice of India and not more than six Puisne Judges, which
number shall not be exceeded unless an address is presented
by the Federal Legislature for an increase. A Judge is
appointed by His Majesty by Warrant under the Royal
Sign Manual. They can serve up to the age of sixty-five.
They may be removed on the Report of the Privy Council
on the ground of misbehaviour or bodily or mental infirmity.
A Federal Judge should have been a High Court Judge
in British India or a Federated State for five years, or a
Barrister, Scottish Advocate or High Court Pleader for
ten years. The Chief Justice must be a person who w^as,
when first appointed to Judicial office, a Barrister, Advocate,
or Pleader, and had fifteen years' standing at the Bar;
period spent in holding any Judicial Office will be included
in calculating the period of standing for this purpose. (S. 200)
Temporary appointments as Chief Justice may be made by
the Governor-General from among the Federal Judges till
the person appointed by His Majesty takes charge. The
Court shall sit at Delhi and such other places appointed
by the Chief Justice with the approval of the Governor-
General.

Jurisdiction: — The Court has original jurisdiction
on questions of legal right between the Federation, the

The New Constitution (Contd.)

Provinces and any of the Federated States. In the case of
a State, the dispute must concern the interpretation of the
Act or Order in Council or the Legislative or Executive
Authority of the Federation according to the Instrument of
Accession^ or the dispute must arise on the adminis-
tration in a State of a Law or under an agreement
between a State and the Federation giving jurisdiction to
the Court in any said dispute. If the jurisdiction is expressly
excluded, the Court cannot entertain the dispute. On a
certificate by the High Court that the dispute involves a
substantial question of Law, the Federal Court has appe-
llate jurisdiction from High Courts in British India. The
Federal Legislature can enlarge the Appellate jurisdiction
of the Court ( Sections 204 to 206 ). On practically ana-
logous grounds as the Appellate jurisdiction from
decisions of British Indian High Courts, the Federal Court
has appellate jurisdiction from High Courts in ^Federated
States. An appeal lies to the King in .Council from the
decisions of the Federal Court in its original jurisdiction
described above. In other matters, leave of the Court or
of the King in Council is required for appeals to His
Majesty in Council. ( Ss. 207 and 208 ) Provision is made
for the enforcement of the Decrees and orders of the Federal
Court throughout India and of orders as to discovery and
protection of documents and investigation and punishment
of any Court etc. In dealing with the High Courts in a
Federated State, the form of communication for these
matters shall be letters of request to the Ruler of the State
who shall cause such communication as may be necessary
to be made to the State High Court. The Law declared by
the Federal Court and the Privy Council is to be binding
on all Courts. ( Sections 210 to 212 ) On important questions

The Indian Constitution Ch. V

of Law, the Governor-General has power to consult the
P'ederal Court. The Federal Court, may, with the approval
of the Governor-General acting in his discretion, make rules
regarding legal practitioners, Court procedure, time of appeal,
cause, fees, summary disposal of frivolous, vexatious and
dilatory proceedings, and for constituting separate Division
Benches. The Chief Justice has authority to constitute
the Benches. Expenses of a Federal Court shall be a
charge on the Federal Revenues. His Majesty, may, after
communication with the Ruler of a Federated State, declare
the High Court in that State to be a High Court for the
aforesaid purposes.

Courts in British India

Constitution: — The existing High Courts and the
Chief Courts and the Judicial Commissioner's Courts in N.W.
Province and Sind, and any other Courts declared to be
such or constituted hereafter, shall be High Courts for the
purpose of this Act. The age-limit for High Court Judges
is sixty years. The number of Judges shall be such as may
be determined from time to time. The conditions of
appointment and of continuance of service are the same
as those for the Federal Judges. Besides the qualifications
of standing at the Bar fixed for Federal Judges, a person
shall also be eligible if he is a member of the I. C. S. for
ten years, of which three years were spent as a District
Judge, or if a person has served for five years in a Judicial
office not inferior to that of a Subordinate Judge or a Small
Cause Courts Judge. The Chief Justice must have been
a Barrister or Scottish Advocate or High Court Pleader
when first appointed to Judicial office or must have served
for at least three years as High Court Judge. ( Sections 219

The New Constitution (Contd.)

and 220 ). Temporary appointments of Acting Chief Justice
and Puisne Judges may be made by the Governor-General
in his discretion. The Acting Chief Justice must be selected
from one of the Judges of the Court. The Governor-
General may appoint Additional Judges for any term not
exceeding two years.

Jurisdiction: — The existing jurisdiction of the High
Court shall continue subject to the Act and Order in Council.
The High Court shall have administrative functions and
superentendence in administrative matters over subordinate
Courts including calling for returns, settling tables of fees,
issuing rules of practice and prescribing forms of accounts.
The High Court may transfer to itself from the subordinate
courts cases involving questions of validity of any Federal
Act Of Provincial Act on the application of the Federal
Advocate-General or Provincial Advocate-General respe-
ctively. Until otherwise provided, the High Court has no
other jurisdiction in revenue matters. The expenses of the
High Court shall be a charge on the Provincial revenues.
His Majesty, may, if the Legislature of a Province present
an Address in that behalf to the Governor of a Province for
submission to His Majesty, constitute a new High Court or
reconstitute or amalgamate existing High Courts for the
Province. On agreement between the Governments con-
cerned. His Majesty in Council may give a High Court
extra-territorial jurisdiction to any area in British India
outside the Province. ( S. 230 )

The Services of the Crown

Defence Services: — The pay and allowances of the
Commander-in-Chief are regulated by His Majesty in

The Indian Constitution Ch. V

Council. His Majesty in Councial may require that appo-
intments to offices connected with Defence shall be made
in any specified manner. Commissions may be granted by
His Majesty to persons lawfully enlisted or enrolled in the
Indian Naval, Military or Air Force. The Secretary of
State has got control with respect to conditions of Service
and possesses the the power of hearing appeals as before
the Constitution Act. The sons of persons who have served
in India in the Military or Civil Service of the Crown have
the same right to India Cadetships as heretofore.

Civil Services:— -The tenure of office of persons em-
ployed in India in civil posts is during His Majesty's
pleasure. Persons cannot be dismissed by any authority
subordinate to that by which they were appointed. Except
for dismissal or reduction due to coviction on a criminal
charge, no person shall be dismissed or reduced in rank
without being heard unless the competent authority records
in writing the reasons for denying a hearing to the Officer.
Appointments to the Federal Services shall be made by the
Governor -General and to the Provincial Services by the
Governor according to the conditions of service prescribed
and to rules regarding right of appeal on punishment or
censure, or on termination of appointment, or on interpre-
tation of conditions, except when the order is passed by
the Governor-General or the Governor. Similar rules shall
apply to Railways, Customs, Post and Telegraph Services
and officials of Courts. There maybe special provisions
as to the conditions of service of the Police Forces. The
association of the Anglo-Indian community v>ith the Rail-
way Services and the Governor-General's instructions for
securing to each community adequate representation therein,

The New Constitution (Contd.)

shall weigh with the Federal Authority in making
appointments. The Associntion oftha Anglo-Indian commu-
nity with the Customs, Postal and Telegraph Services shall
be considered in framing rules for the appointments to those
services. The rules for the Staff attached to the Federal Court
shall be made by the Chief Justice of India with the
approval of the Governor-General, while, for the Staff of a
F«de«*ivHigh Court, the Chief Justice of the High Court
may make rules with the approval of the Governor.

Recruitment by Secretary of State:— The Secretary of
State has the power to recruit for the Indian Civil Service,
the Indian Police Service and the Indian Medical Service
(Civil). He may make recruitments for the purpose of
securing suitable persons to fill civil posts for the functions
which the Governor-General has to discharge in the exer-
cise of his discretion. A statement of the appointments
made by him shall be laid by the Secretary of State before
Parliament every year. The Secretary of State, may,
for securing efficiency, recruit persons for civil posts cchi-
cerned with Irrigation. Reserved posts shall not be kept
vacant for more than three months without the previous
sanction of the Secretary of State. Postings shall be made
by the Governor-General or the Governor, Rules regarding
pay, leave, pension, etc. shall be made by the Secretary of
State and orders regarding officers holding Reserved Posts
shall be made by the Governor-General or the Governor
exercising his individual judgment, who are also bound to
hear appeals from such officers regarding any order affect-
ing their conditions of Service. Only the Governor-General
or the Governor has the right to pass an order of punishment
or censure or any adverse order on any memorial; and

•95

The Indian Constitution Ch. V

against such order, there is an appeal to the Secretary of
State. Compensations shall be paid by the Secretary of
State to any Officer who is adversely affected by the Act.
Similar provisions shall apply to persons appointed by the
Secretary of State in Council before the commencement of
Part 111 of the Act and to the Staff of the High Commis-
sioner and the Auditor of Indian Home Accounts.
Persons appointed before the commencement of Part HI
of the Act to the Staff of the High Commissioner, or of the
Auditor, shall continue to be such and retain the conditions
of service as before.

Judicial Officers:— The appointment of District Judges
shall be made by the Governor in consultation with the
High Court. For direct recruitment as a District Judge,
a person must have at least five years' standing as a
Barrister or Advocate of Scotland, or Pleader. District
Judge includes Joint, Additional or Assistant District Judge,
Small Cause Courts Judge, Chief Presidencj^ Magistrate,
Sessions Judge, Additional or Assistant Sessions Judge.
For appointment to the Subordinate Judicial Service, a list
of eligible candidates, shall, as a result of an examination,
be submitted by the Public Services Commission to the
Governor, who shall make the selection out of the list
having regard to the claims of the different communities
in the Province. The High Court has power regarding
posting, promotion and leave of members of the Subordinate
Judicial Service who have, however, a right of appeal
to the Governor.

Miscellaneous: — Special provision is also made as to the

Officers of the Political Department and for the protection

of existing Officers of Central Service Class 1, Central Service

The New Constitution (Contd)

Class II, Railway Service Class I, Railway Service Class II,
and to Officers serving in or before 1924 in the Superior
Services. The powers of the Secretary of State shall not
be exercised by him regarding the Services except with
the concurrence of his Advisers. The Secretary of State,
the Governor-General or the Governor acting in his discre-
tion, may declare the eligibility for office of certain persons
who are not British Subjects eg. the Ruler or subject of a
Federated State, or native of a Tribal area adjacent to India
(S. 262). The Provinces and the Federation may join
together for creating joint services.

Public Service Commissions.

Composition:— There shall be a Public Service Commis-
sion for the Federation and one for each of the Provinces.
The Provinces may agree to have a Commission for a group
of Provinces or for more than one Province. One-half of the
members shall be persons who have held ofiice for ten years
under the Crown. The Chairman of the Federal Commission
shall be appointed by the Governor-General and that of the
Province by the Governor, who shall also make rules
regarding the number of members, staft", etc. The Chairman
of a Provincial Commission may become the Chairman of
the Federal Commission or Chairman of any other
Commission. The Chairman of the Federal Commission
shall be ineligible for further appointment. The members
of the Federal and Provincial Commissions are ineligible
for any other posts without the consent of the Governor-
General and Governor respectively. ( S. 265 )

Functions : — The Commissions shall hold examina-
tions for recruitment to the Services and may be consulted

c. L. 13 97

The Indian Constitution Ch. V

on principles and methods of recruitment and promotion,
disciplinary matters, claims, pensions, etc. The functions
of the Public Service Commissions may be extended by the
Legislature, but not to include anything affecting the
Reserved Services except with the consent of the Secretary
of State. Previous sanction of the Governor-General or the
Governor is necessary for introducing Bills relating
thereto.

General : — Provision is made for indemnity for past
acts of Public Servants, for protection of Public Servants
againnt prosecutions and suits, for the defraying of costs of
litigation incurred by Public Servants, out of the revenues
if deemed fit, (Sections 270 and 271). Provision is also
made for payment of pensions and for exemption of those
pensions from taxation in India ami for the several Family
Pension Funds. Persons are not to be disqualified by sex
for holding ofiices unless so specified by general or special
order of the Secretary of State, or the Governor- General
or the Governor, whoever is the competent authority for
making the particular appointment.

The Secretary of State, his Advisers and
HIS Department.

AdvLsers:r-The old India Council is replaced by a
body of Advisers to the Secretary of State, not being less
than three and not more than six in number. One-half of
these should have served in India for ten years under the
Crown and have not last ceased to serve in India more than
two years before their appointment as Advisers. The
tenure of membership is five years and Ihey shall not be
eligible for reappointment. An Adviser cannot be a

The New Coi^stitution (Contd.)

Member of Paiiiament during his tenure of AJvisership.
The sahiry shall be / 1350 per annum, and persons with
Indian domicile shall get £ 600 in addition. An Adviser
may be removed by the Secretary of State if the Adviser is
unfit to hold office by reason of infirmity. (S. 278) Accounts
of the Secretary of State in Council with the Bank of Eng-
land shall be transferred to the Secretary of State, and the
Council of India shall be dissohed from that date.

Organisation . — The expenses of the salary of the
Secretary of State and his Department ihall be paid out of
moneys provided by Parliament, and the Federation shall
pay into the Exchequer such contribution as may be agreed
for the expenses incurred by the Secretary of State in the
discharge of his duties on behalf of the Federation. The
establishment of the Secretary of State in Council shall be
transferred to the Secretary of State and contributions for
their pensions, gratuities etc., for services so far rendered,
shall be paid by the Federation. This applies to the
Auditor of the Accounts of the Secretary of State in
Council and his Staff. Provision is also made for the
contribution from the Federation to the continuance of the
usual subscription paid previously or payable by the
Secretar)' of State in Council out of Indian revenues to
the Regular Widows' Fund, the Elder Widows' Fund and
the India Office Provident Fund to such extent as may be
necessary.

Miscellaneous and General.

The Crown and Indian States:— Nothing in the Act
affects the rights and obligations of the Crown in relation

THii Indian Constitution Ch. V

to any Indian State except in so far as a Federated State
is affected by the Instrument of Accession of that State.
(S. 285^ The Governor-General, shall, on the request for
assistance of His Majesty's Representative for relations with
Indian States, cause the necessary armed forces to be em-
ployed for the due discharge of the functions. The net
additional expenses in connection with the employment of
those forces shall be deemed to be expenses of His Majesty
incurred in discharging the said functions of the Crown.
(S. 286). Arrangements may be made between the said
Representative and the Governors of Provinces for the
Governors and Provincial Staff to assist him in discharging
his functions.

Aden : — S. 288 deals with the issuing of Order in
Council for the separation of Aden from British India.

New Provinces = — Since the passing of the Act, Sind
and Orissa have been constituted into separate Provinces.
His Majesty, may, by order in Council, create a new
Province, increase or diminish the area of a Province or
alter the boundaries thereof.

Franchise: — His Majesty in Council may make provision
with respect to the details of franchise and elections e. g.
delimitation of territorial constituencies, qualifications of
candidates and voters, the conduct of elections, election
disputes, expenses, corrupt practices at elections etc.

Legal Matters

Exisiing Law: — The existing law in India is to continue
in force until altered or repealed. His Majesty, may, by
order in Council, order the adaptation or modification of the

100

The New Constitution (Contd.)

existing Indian law as may be deemed expedient to bring
it into conformity with this Act, till a competent Legis-
lature passes the necessary Law.

Foreign Jurisdiction i— It is open to His Majesty,
in accepting the Instrument of Accession, to exclude any
area in a Federated State from the authority of the Federal
Executive or Legislature after previous notice to the Ruler;
otherwise, such authority will extend to the Federated
State by virtue of the Instrument of Accession. His Majesty
may, later on, relinquish such exclusion. His Majesty may
relinquish his jurisdiction in any State under the Foreign
Jurisdiction Act-1890 after the Accession of a State becomes
effective. ( S. 294 )

Miscellaneous: — The Governor' General has powers of
suspension, remission or commutation of death-sentence
passed by a British Indian Court. His Majesty, and by
delegation, the Governor-General, have the prerogative of
granting pardons, reprieves, respites and remissions of
punishments. No member of the Federal or Provincial
Legislature shall be a member of any Revenue Appellate
Court.

The Governor has power to constiutue tribunals in
special matters as before. No Provincial Legislature or
Government can pass Laws prohibiting or restricting
internal trade, or impose discriminatory tax on manufactures.
British Subjects domiciled in India are not to be subjected
to disability in holding or acquiring land, or in being
eligible for offices, or in carrying on any profession, on the
ground of religion (S. 29S) Restriction based on the
personal law and custom of persons, or restrictions on the

101

The Indian Constitution Ch. V

transfer of land from agricultural classes to non-agricultural
classes, shall, however, be given effect to. The Governor
and Governor-General, have, however, a special responsibility
to safe-guard the legitimate interests of the Minorities.
Compulsory acquisition of property for public purposes
shall be made only on payment of due compensation to the
owner. Provision is made for the protection of certain
rights, privileges and pensions granted on political consi-
derations or compassionate grounds, and of titles conferred
or other privileges granted. Previous sanction is required
for Bills relating to transference of land to public ownership.

High Commissioner: — There shall be a High Com-
missioner for India in the United Kingdom appointed by
the Governor-General exercising his individual judgment.
He shall perform on behalf of the Federation such functions
as directed by the Governor-General including the making
of contracts. He may perform functions on behalf of the
Province'with the approval of the Governor-General. (S.302)

General Provisions: — The Sheriff of Calcutta shall be
appointed annually by the Governor of Bengal (exercising
his individual judgment) from a panel of three persons
nominated by the High Court. The Sheriff shall hold office
during the pleasure of the Governor. Acting Governor-Gen-
eral and acting Governors shall have the same powers as the
Governor-General or Governor respectively. There is
personal immunity for the Governor, Governor-General
and Secretary of State and His Majesty's Representative
from any proceedings or process in any Court in India.
A suit may however be brought against the Federation, a
Province or the Secretary of State as a body-Corporate by
any person who feels aggrieved, as already provided.

102

The New Constitution (Cont.l.)

Without the sanction of His Majesty in Council, no pro-
ceeding shall lie in any Court in India for anything done
during his term of oflice, against the G-G, the Governor,
or the Secretary of State. Provision is made for the removal
of disqualifications on the occasion of the first election to
the Legislatures, by reason only of a person being a Minister
or a non-official Member of the Governor's or Governor-
General's Executive Council or of a person holding an office
which was not a whole-time office remunerated either by
salary or fees.

Constitutional Amendments:— The Federal Legi-
slature may pass resolutions recommending the am«nd-
ment of the provisions regarding the size and composi-
tion of the Chambers, or the metliod of election, or
qualification of members without interfering with the
proportion between the number of seats in the Council
and in the Assembly and the proportion between
British Indian seats and the seats allotted to Indian States.
The Provincial Legislatures may pass resolutions reco-
mmending amendment of the provisions relating to the
size and composition of the Provincial Legislature and the
method of choosing, or the qualifications of members. The
Legislatures generally can pass resolutions regarding the
qualification of voters. Such resohitions shall not be
passed by the respective Legislatnics witliin ten years after
the introduction of Provincial Autonomy or the establish-
ment of the Federation according as it is the Provincial
Legislature or the Federal Legislature respectively. The
Legislatures may pass resolutions, that in the case of women,
literacy shall be substituted for any higher educational
standard prescribed for franchise, or that they should, if

103

The Indian Constittttion Ch. V

duly qualified, be registered as voters without any applica-
tion by them. The motions for the resolution shall be
made at the instance of the Ministers. Addresses may be
presented to the Governor or Governor-General for sub-
mission to His Majesty praying for such resolutions being
communicated to Parliament by the Secretary of State
who shall place them before Parliament within six months
with a statement of action proposed to be taken. The
Governor-General or the Governor acting in his discretion
shall transmit a statement of their opinion in communica-
ting such resolutions. In particular the effect of the amend-
ment on the interests of the minority shall be stated, as also
the view of the minority community in the matter, and
whether the majority of the representatives of that minority
in the Federal or Provincial Legislature, as the case may
be, support the proposal. These statements shall also be
placed before Parliament by the Secretary of State. With
similar safe-guards for the interests of the minority and
similar statements regarding the opinion of the representa-
tives of the minority and after ascertaining the views of the
Governments and Legislatures affected by any proposals,
the necessary statements, and proposals for amendment
on matters of reform noted above may be laid before
Parliament by the Secretary of State in the form of draft
Orders in Council whether ten years have elapsed or not.
The number of State representatives in the Federal Legis-
lature shall not be altered without the consent of the Ruler
of the State affected thereby, (S. 308)

Orders in Council:— The Secretary of State shall lay
before Parliament drafts of Orders in Council which shall
be issued only after an address is presented to His Majesty

104

The New Constitution (Contd.)

by Parliament, When Parliament is not in Session, the
order in Council may be issued without this formality if
the Secretary of State is of opinion that the order should
be issued forthwith. But it shall cease to have effect at the
expiration of twenty-eight days from the date on which the
House of Commons first sits after the order unless the
order is approved within that period by the Resolutions of
Parliament. These provisions shall not apply in connection
with appeals to His Majesty in Council or to orders
sanctioning the taking of proceedings against a person who
was Governor-General or His Majesty's Representative
for relations with Indian States, or Governor or Secretary
of State. (S 309) His Majesty in Council may, by order in
council, make provision for dealing with difficulties in the
transition from the Old to the New Act by directing suit-
able adaptations of both the Acts for a limited period and by
other temporary provisions.

Definitions: — Section 311 deals with interpretation.
' Corporation Tax ' means any tax on so much of the income
of companies as does not represent agricultural income,
being a tax to which the enactments requiring companies to
make deductions in respect of income-tax from payment of
interest on dividends have no application."

Transitional Provisions : — Section 315 states that
between the establishment of Provincial Autonomy and the
establishment of the Federation, the Indian Legislature
shall exercise the powers of the Federal Legislature except
in imposing limits to the power of the Governor-General
in borrowing money. During such period the Executive
authority of the Governor-General in Council shall extend
to matters within the legislative competence of the Indian

C.L, 14 105

The Indian Constitution Ch. V

Legislature, to the raising of Naval, Military and Air
Forces and the governance thereof, and to make treaties.
But the said authority does not extend to matters within
the legislative competence of the Provincial Legislature or
to enlist in any Force any person other than a British subject
or a native of India. The provision as to previous sanction for
legislation, as to broadcasting, instructions to the Federal
Railway Authority and the Reserved Services shall have effect
in regard to defence, external affairs, ecclesiastical affairs
and tribal areas, as they have effect under the Act in
matters where the Governor-General is to exercise his
discretion and has special responsibilities. The general
control of the Secretary of State shall continue and he shall
not act except with the concurrence of his Advisers in
Revenue grants and appropriations during this period.

Provision is made for the continuance of certain
Sections of the Government of India Act of 1919 (Vide the
ninth Schedule). The Federal Public Services Commission,
the Federal Court, nnd the Federal Railway Authority
may come into existence and may function earlier than the
establishment of the Federation. The rights and liabilities
of the Governor-General in Council during the interim
perio-l, an 1 of tha Governor-in-Council till the intro.luction
of Provincial Autonomy, shall continue to be those of the
Federation. Similar provision is also made for the rights
and liabilities of the Secretary of State in Council as well.

Commencement and Repeal ; — The establishment of
Federation and the introduction of Provincial Autonomy
shall take place on dates appointed by His Majesty, The
Government of India Act, is repealed. But the repeal shall

106

The New Constitution (Contd.)

not affect the Preamble totheGovernment of India Act,i9i9,
nor shall it affect appointments made under any enactment
repealed in the tenth Schedule relating to repeals.

THE SCHEDULES.

Federal Legislature: — The First Schedule of the Act
deals with the composition of the Federal Legislature. The
representatives should be either British subjects or Rulers or
subjects of Federated States. For the Council of State, a
representative should be not less than thirty years of age,
and for the Federal Assembly not less than twenty-five
years of age. Out of 156 seats in the Council of State to
be filled in by representatives of British India, 150 shall
be filled by members elected by the constituencies in
British India, and 6 seats shall be filled by persons chosen
by the Governor-General in his discretion. The Provinces
shall be divided into territorial constituencies for election to
general seats, Sikh seats and Muhammadan seats for the
Council of State. Separate electoral colleges consisting of
such Anglo-Indians, Europeans and Indian Christians as
the case may be, as are members of the Council of any
Governor's Province or of the A.ssembly of such a Province,
shall elect members for the Anglo-Indian, European and
Indian Christian seats respectively.

Provision is made that of the persons first elected by
the general constituency for the Council of State, one-third
shall be chosen for three years, one-third for six years, and
one-third for nine years; and thereafter, in every third
year, persons shall be chosen to fill for nine years the seats
then becoming vacant, in consequence of this provision.
Of the seven persons elected for the European seats, three

107

The Indian Constitution

shall be for three years^ one shall be for six years,
and three for nine years. Out of the two Indian Christians,
one shall be for three years, and one for nine years.
Out of the six persons chosen by the Governor-General, two
shall be for three years, two for six years, and two for nine
years. The Anglo-Indian representative shall be for nine
years.

In the Federal Assembly, three seats not allotted to
any Provinces shall be filled up by the representatives of
Commerce and Industries, chosen by Chambers of Commerce
etc. and one by a representative of labour chosen by
labour organisation. The Hindu, Muhammadan and Sikh
seats will be filled by the representatives of those com-
munities in the Provincial Assemblies voting separately for
a prescribed number of communal seats. Seats allocated
to Europeans, Anglo-Indians, Indian Christians and women
are to be filled by the representatives of these groups in the
Provincial Assemblies voting in ad hoc electoral colleges.
In the case of a seat allotted to a Province which is to be
filled by a landholder, it shall be filled by landholders voting
in territorial constituencies.

States' Representatives: — The Rulers of States consti-
tuting a group of States to which a seat is allotted in the
Council of State, shall in rotation, appoint a person to fill
that seat. The Rulers of States constituting a group of
States to which a seat is allotted in the Federal Assembly,
shall appoint jointly a person to fill that seat. With the
approval of the Governor-General, such Rulers, may, by agree-
ment, appoint jointly a person to fill a seat in the
Council of State instead of by rotation (See extract from
Schedule for duration of membership).

108

The New Constitution (Contd.)

Regarding the establishment of Federation on the
Accession of a certain number of States, it is provided as
follows: —

1. If the Rulers of at least one-half of the States in-
cluded in any group to which one seat in the Council of State
is allotted, accede to the Federation, they shall be deemed
as being entitled to choose one member.

2. If, of the Rulers of States included in the groups
to be formed out of the States comprised in Division XVII
of the Table of Seats, sufficient accede to the Federation
to entitle them to appoint one member or two members of
the Federal Assembly, the Rulers so acceding shall be
reckoned as being entitled together to choose one member
of the Council of State and, if sufficient accede to entitle
them to appoint three or more members of the Federal
Assembly, the Rulers so acceding shall be reckoned as
being entitled together to choose two members of the
Council of State; and

3. The Population of a State shall be talien to be the
population attributed thereto in column five of the Table of
Seats or, if it is one of the States comprised in the said
Division XVI] of the Table, such figure as the Governor-
General may in his discretion determine, and the total
population of the State shall be the total stated at the end
of the Table.

Thi second Schedule gives the provisions of the x\ct
which may be amended without affecting the Accession
of a State. The third Sclicdule prescribes the salaries and
allowances of the Governor-General and the Governors.
The fourth Schedule gives the forms of Oath or affirmation.

109

The Indian Constitution

The subject of the Ruler of an Indian State appointed to
the Legislature has to swear that "saving the faith and

allegiance which 1 owe the Ruler of the State, his

heirs and successors, I will be faithful etc., etc, to His
Majesty the King-Emperor of India."

Provincial Legislatures: — The fifth Schedule deals with
the composition of the Provincial Legislatures. The age-
limit for members is the same as in the case of the Federal
Council and Assembly respectively; and the scheme for
election or representation is by territorial coDbtituencies
for the Provincial Assemblies. For reservation of seats for
members of the scheduled castes and for the seven seats
for the Marathas in Bombay, the scheme shall be such that
in each constituency there shall be at least one unreserved
seat. For seats reserved for scheduled castes, all members
of the caste entitled to vote in that constituency shall take
part in a primary election held for electing four candidates
for each such reserved seat, and no member not so elected
as a candidate at such an election shall be qualified to hold
that reserve seat, or any other seat if so prescribed. Women
shall be chosen according to territorial constituencies or
special constituencies for electing women members.

For election to the Legislative Councils also there
may be territorial constituencies for filling up General seats,
Mohammedan Seats, European Seats, Indian Christian
Seats and so on.

Franchise:— 7%£? sixth Schedule deals with Franchise.
Nobody can be a voter unless he is a British Subject or
Ruler or Subject of a Federated State or the Ruler or
Subject of any other Indian State under conditions that may

11.0

The Nf.w Constitution (Cont'L)

be prescribed. He must not be of unsound mind or
declared to be so by a competent Court. In a Sikh,
Mohammedan, Anglo-Indian or Indian Christian consti-
tuency, the voter must belong to the respective community.
Such voters shall not vote in the General constituency.

Except in Provinces where constituencies have been
specially formed for electing women members — in which
case a person can vote in the General constituency and in
the particular Women members constituency as may be
prescribed by the rules — no voter shall vote in more than
one territorial constituency. A person shall not be included
as a voter if he is disqualified on account of corrupt prac-
tices at elections or other election offences. Property held
in a fiduciary capacity shall be left out of account in
calculating the total property for acquiring the qualification
of a voter. The Schedule then gives the special qualifica-
tions in each of the Provinces.

The seventh Schedule gives the Legislative Lists ( See
extracts from Schedules below).

Federal Railway Authority :— The eighth Schednk
deals with the Federal Railway Authority. It shall consist
of seven persons appointed by the Governor-General. To
be a member, a person should have had experience in
Commerce, Industry, Agriculture, Finance or Administra-
tion or should be or should have been within twelve months
last preceding, a member of the Federal or any Provincial
Legislature or in the service of the Crown in India or a
Railway official in India. Of the first members three shall
be appointed for three years at the expiration of which
they are eligible for reappointment for a further term of
three years or five years. In other cases, the term shall

The Indian Constitution

be for five years with the eligibility for appointment
for another five years. Matters coming up before the
Authority shall be decided by a majority of the members
present. The person presiding shall have a second or
casting vote in the case of equality of votes. Any person
concerned in any Railway contract shall not take part in
a discussion of that subject and shall make a full disclosure
of all the facts. At any meeting persons deputed by the
Governor-General to represent him may attend and speak
but not vote. The Head of the Executive Staff of the
Authority shall be a Chief Railway Commissioner who
shall be experienced in Railway administration. He shall
be appointed by the Governor-General exercising his
individual judgment after consultation with the Authority.
The Chief Commissioner shall be assisted by a Financial
Commissioner appointed by the Governor-General and by
Additional Commissioners with experience in Railway
administration appointed by the Authority on the recom-
mendation of the Chief Railway Commissioner. The Chief
Commissioner shall not be removed from ofifice except by the
Authority with the approval of the Governor-General. The
Financial Commissioner shall not be removed from office
except by the G-G. The Chief Commissioner and the
Financial Commissioner have the rieht to attend meetings
of the Authority. The Financial Commissioner may require
any matter relating to finance to be referred to the Autho-
rity, The Authority shall not be liable to pay Indian income-
tax or super-tax on its income, profits or gains. The
Reserve Bank of India shall be entrusted v/ith all the
moneys of the Authority on the same lines as the Bankers
for all the transactions of the Authority and on the same lines
as the Bank holds moneys of the Federal Government.

ai2

The New Constitution (Contd.)

The 7imth Schedule gives the Sections of the Govern-
ment of India Act 1919 which are continued in force with
amendments until the establishment of the Federation.
They are Sections 36-43 dealing with the members of the
Governor-General's Executive Council and meetings;
Sections 63, 63-A, 63-B, 63-C, 63-D, 63-E, 64, 67, 67-A,
67-B, 6'^, 69, & ']2 dealing with the composition and
functions of the Indian Legislature and the assent of the
G-G to Bills, power of the Crown to disallow Acts and the
power to make Ordinances in case of emergency; Sections
85, 86, 87, 89, 92, 93 dealing with salaries, allowances,
leave of absence, vacation of office, temporary or acting
appointments of the Governor-General and members of the
Executive Council; and Section 129-A which is supple-
mental providing for the making of rules under the Act.

The tenth Schedule contains the List of enactments
repealed. It is stated that the extent of the repeal of the
Government of India Act 1919 relates to the whole Act
except the Preamble and sub-section i of Section 47.

C. L. 15 113

Chapter VI^
the government of india act, 19 35.

PART I.
INTRODUCTORY,

1. Short title,

2. Qovernment of India by the Crown :--(i) All rights,

authority and jurisdiction heretofore belonging to His
Majesty the King, Emperor of India, which appertain or
are incidental to the government of the territories in India
for the time being vested in him, and all rights, authority
and jurisdiction exercisable by him in or in relation to any
other territories in India, are exercisable by His Majesty,
except in so far as may be otherwise provided by or under
this Act. or as may be otherwise directed by His Majesty.

Provided that any powers connected with the exercise
of the functions of the Crown in its relations with Indian
States shall in India, if not exercised by His Majesty, be
exercised only by, or by persons acting under the authority
of, His Majesty's Representative for the exercise of those
functions of the Crown,

* Only the more important Sections of the Act are
reprinted in extonso. To several of them explanatory notes are
also given. In other cases, only the number and headings of
Sections are printed to facilitate reference. Students would do
well to consult the summary given for the corresponding
portions in previous chapters.

X14

The Government of India Act, 19^5.

(2) The said rights, authority and jurisdiction shall
include any rights, authority or jurisdiction heretofore
exercisable in or in relation to any territories in India
by the Secretary of State, the Secretary of State in Council,
the Governor-General, the Governor-General in Council,
any Governor or any Local Government, whether by
delegation from His Majesty or otherwise.

NOTES :— Regarding the legal basis of the ne-v Cunsti-
tutioD, the J P. C. Report stated :—

*' We apprehend, therefore, that the legal basis of a
reconstituted Government of India must be, first, the resump-
tion into the hands of the Crown of all rights, authority, and
jurisdiction in and over the territories of British India,
T^'hetber they are at present vested in the Secretary of State,
the Governor-General in Council, or in the Provincial Govern-
ments and Administrations; and second their redistribution in
such manner as the Act may prescribe (Paragraph 153).

But the Crown also possesses rights, authority and juris-
diction elsewhere in India, including those rights which are
comprehended under the name of Paramountcy. All these are
at present exercised on behalf of the Crown, under the general
control of the Secretary of State, by the Governor-General in
Council, and it will be necessary that they should also be

resumed in their entirety into the hands of the Crown

Outside the federal sphere, the States' relations will be exclu-
sively with the Crown the right to tender advice to the

Crown in this regard will lie with His Majesty's Government."
(Paragraph 158).

"( See the White Paper (Paragraph 9 ), and notes to
S. 285 below ).

115

The Indian Constitution Ch. VI

The proviso to Section 2 (1) is new and did not find a
place in the Bill. Sir Samuel Hoare in his Memorandum
stated: — " It is not iutondod that special powers in relation to
the State should, if not exercised by His Majesty himself, be
delegated to any other authority than the Viceroy as the
Crown's representative, and an amendment to make this plain
will be considered." The proviso was accordingly inserted.

3. The Qovernor-Qeneral o( India and His Majesty's
Representative as regards relations with Indian States:-(l)The
Governor-General of India is appointed by His Majesty by
a Commission under the Royal Sign Manual and has —

(a) all such powers and duties as are conferred or
imposed on him by or under this Act; and

(b) such other powers of His Majesty, not being
powers connected with the exercise of the
functions of the Crown in its relations with
Indian States, as His Majesty may be pleased
to assign to him.

(2) His Majesty's Representative for the exercise of
the functions of the Crown in its relations with Indian
States is appointed by His Majesty in like manner and
has such powers and duties in connection with the exercise
of those functions (not being po\vers or duties conferred or
imposed by or under this Act on the Governor-General) as
His Majesty may be pleased to assign to him.

(3) It shall be lawful for His Majesty to appoint one
person to fill both the said offices.

4. The Commander-in-Chief in India:— There shall be
a Comniandcr-in*Chief of His Majesty's Forces in India
appointed by Warrant under the Royal Sign Manual.

116

The Government of India Act, 1935.

Notes:-The J. P. C. lieport stated;- "Although the execu-
tive authority of the Federation vested in the Governor-General
as the King's representative includes the superintendence, direc-
tion and control of the Military Government, the command of
the Forces in India will be exercised by a Commander-in-Chief
to be appointed by His Majesty,

PART II.
THE FEDERATION OF INDIA.

CHAPTER I.

Establishment of Federation and Accession of Indian States.

5. Proclamalion of Federation of India:— (i) It shall
be lawful for His Majesty, if an address in that behalf has
been presented to him by each House of Parliament and
if the condition hereinafter mentioned is satisfied, to
declare by Proclamation that as from the day therein
appointed there shall be united in a Federation under the
Crown, by the name of the Federation of India, —

(a) the Provinces hereinafter called Governors' Pro-
vinces; and

(b) the Indian States which have acceded or may
thereafter accede to the Federation;

and in the Federation so established there shall be inclu-
ded the Provinces hereinafter called Chief-Commissioners'
Provinces.

( 2 ) The condition referred to is that States—

(a) the Rulers whereof will, in accordance v/ith the
provisions contained in Part II of the First
Schedule to this Act, be entitled to choose not

117

The Indian Constitution Ch. Vl

less than fifty-two members of the Council of
State; and

(b) the aggregate population whereof, as ascertained
in accordance with the said provisions, amounts
to at least one-half cf the total population of
the States as so ascertained,

have acceded to the Federation.

Notes:— See sumoiary of Schedule 1 (page 109) regarding
the computation of the nuruber of members under sub^section
2(a).

6. Accession of Indian 5tatcs:— ( i ) A State shall be
deemed to have acceded to the Federation if His Majesty
has signified his acceptance of an Instrument of Accession
executed by the Ruler thereof, whereby the Ruler for him-
self, his heirs and successors —

(a) declares that he accedes to the Fedenition as
established under this Act, with the intent that
His Majesty the King, the Governor-General of
India, the Federal Legislature, the Federal
Court and any other Federal authority establish-
ed for the purposes of the Federation shall, by
virtue of his Instrument of Accession, but sub-
ject always to the terms thereof, and for the
purposes only of the Federation, exercise in
relation to his State such fimctions as may be
vested in them by or under this Act; and

(b) assumes the obligation of ensuring that due
effect is given within his State to the provisions
of this Act so far as they are applicable therein
by virtue of his Instrument of Accession:

118

The Government of India Act, 1935.

Provided that an Iiistrnraent of Accession may be
executed conditionally on the establishment of the Federa-
tion on or before a specified date, and in that case the State
shall not be deemed to have acceded to the Federation
if the Federation is not established until after that date.

( 2 ) An Instrument of Accession shall specify the
matters which the Ruler accepts as matters with respect
to which the Federal Legislature may make laws for his
State, and the limitations, if any, to which the power of
the Federal Legislature to make laws for his State, and
the exercise of the executive authority of the Federation in
his State, are respectively to be subject.

( 3 ) A Ruler may, by a supplementary Instrument
executed by him and accepted by His Majesty, vary the
Instrument of Accession of his State by extending the
functions which by virtue of that Instrument are exercis-
able by His Majesty or any Federal Authority in relation
to his State.

( 4 ) Nothing in this section shall be construed as re-
quiring His Majesty to accept any Instrument of Accession
or supplementary Instrument unless he considers it proper
so to do, or as empowering His Majesty to accept any such
Instrument if it appears to him that the terms thereof are
inconsistent with the scheme of Federation embodied in
this Act:

Provided that after the establishment of the Federa-
tion, if any Instrument has in fact been accepted by His
Majesty, the validity of that Instrument or of any of its
provisions shall not be called in question and the provisions
of this Act shall, in relation to the State, have effect subject
to the provisions of the Instrument.

119

Jhe Indian Constitution Ch. VI

( 5 ) It shall be a term of every Instrument of Acce-
ssion that the provisions of this Act mentioned in the Second
Schedule thereto may, without affecting the accession of
the State, be amended by or by authority of Parliament,
but no such amendment shall, unless it is accepted by the
Ruler in a supplementary Instrument, be construed as
extending the functions which by virtue of the Instrument
are exercisable by His Majesty or any Federal authority in
relation to the State.

( 6 ) An Instrument of Accession or supplementary
Instrument shall not be valid unless it is executed by the
Ruler himself, but, subject as aforesaid, references in this
Act to the Ruler of a State include references to any persons
for the time being exercising the powers of the Ruler of the
State, whether by reason of the Ruler's minority or for any
other reason.

( 7 ) After the establishment of the Federation the
request of a Ruler that his State may be admitted to the
Federation shall be transmitted to His Majesty through
the Governor-General, and after the expiration of twenty
years from the establishment of the Federation the Gov-
ernor-General shall not transmit to His Majesty any such
request until there has been presented to him by each
Chamber of the Federal Legislature, for submission to
His Majesty, an adrress praying that His Majesty may
be pleased to admit the State into the Federation.

( 8 ) In this Act a State which has acceded to the
Federation is referred to as a Federated State, and the
Instrument by virtue of wiiich a State has so acceded,
construed together with any supplementary Instrument
executed under this section, is referred to as the Instrument
of Accession of that State.

120

The Government of India Act, 1935.

( 9 ) As soon as may be after any Instrument of
Accession or supplementary Instrument has been accepted
by His Majesty under this section, copies of the Instrument
and of His Majesty's Acceptance thereof shall be laid
before Parliament, and all courts shall take judicial notice
of every such Instrument and Acceptance.

Notes : — See Appendix G for the Draft Instrument of
Accession. The J. P. C. Report stated : — "The rights, authority
and jurisdiction which will be conferred by the Crown on the
new Central Government will not extend to any Indian State.
It follows that the accession of an Indian State to the Federa-
tion cannot take place other than by the voluntary act of its
Ruler. The Constitution Act cannot itself make any Indian
State a member of the Federation (Paragraph 154). It would,
we think, be very desirable that the Instruments of Accession

should in all cases be in the same form but there can be

no obligation on the Crown to accept an accession, where the
exceptions or reservations sought to be made by the Ruler are
such as to make the accession illusory or merely colourable."
(Paragraph 156).

The clause in the Government of India Bill was the
subject of considerable comment. "The Princes have all along
looked upon the treaties of Accession as the really operative
instruments binding them to the Federal Constitution, and not
the Constitution Act, 'which, as an Act of Parliament, they
cannot be expected to accept as binding on them or as applica-
ble to their States and their subjects These treaties of

Accession were intended to be bilateral in character creating
rights and imposing reciprocal obligations both on the Rulers
of Indian States and on the Crown." ( Vide Note attached to

C.L.16 121

The Indian Constitution Ch. VI

the letter His Excellency the Viceroy by Their Highnesses the
Maharaja of Patiala, the Nawab of Bhopal, andthe Maharaja
of Bikaner, dated the 27th February 1935).

In the same Kote Their Highnesses wrote : — " The
documents of 1818, by which several States parted with their
external and foreign relations in consideration of their being
adequately protected from both foreign aggression and internal
upheaval, were regarded as treaties of mutual friendship, amity
and alliance. The proposed documents of 1935, by which the
States are asked further to transfer some of their internal
sovereignty as well to His Majesty the King as a result of
proposals regarding Federation, are only to be Treaties of
Accession. The Princes are asked to execute and sign these
Instruments of Accession without regard to the derogation of
their position from allies and absolute rulers in their own

territories This undermining process is to be kept up and

strengthened under the force of judge-made laws and new
political theories, while re.inforcing the claims of paramountcy
by the same device. It is very natural that the Princes should
have serious objections to the process of gradual decline in
their political status. The Princes had only agreed to federate
in the interests of the Empire. In conclusion it would be well
to remember that the Princes had originally accepted the
invitation to federate out of their anxious desire to be of
service to the Empire. The structure of the Treaty of Accession

ought to be well in keeping with the spirit that had

induced the States to accept the federal scheme. " It is only
natural to expect that this aspect will be given due weight and
importance when the reasonable reservations in the Instrument
of Accession come up for examination.

Sir Samuel Iloare wrote iu his Memorandum to the
Government of India dated the 4th March 1935: — "So far as

122

The Government of India Act, 1935.

regards the States, the Bill, when it has become law will pro-
vide the machinery whereby the Indian States may severally
accept that Constitution and thus become part of the Federa-
tion, not because the Act is an Act of Parliament, but because
it embodies a Constitution to which they have of their own

volition acceded That the Constitutional structure must

be accepted as a whole seems obvious It is contended that not

only ought each Kuler to be able to specify those sections of
the Act which he is willing to accept, but also that the Federal
Constitution as regards each State is to be looked for exclusively
in the Intrumont of Accession of that State Such a con-
ception of Federation would imply the possibility not only of
different Constitutions for the States and for British India,
but even of a variety of Constitutions among the States them-
selves Their Highnesses lay stress on what they describe

as the bilateral nature of the Instruments of Accession. These
Instruments are bilateral in so far as they have no binding
force until His Majesty has signified his acceptacce of them;
but His Majesty's Government cannot on that ground accept the
view that they are to be described as ' treaties". Though the
word 'treaty' is not used in S. 6 and only the words "Instru-
ment of Accession" are used, the suggestions were partly ao-
cepted; and Clause 6 of the Bill was modified by the subsitutiou
of the words "accedes to the Federation as established under
this Act" instead of the words "accepts this Act as applicable
to his State and to his subjects." Again the words "by virtue
of his Instrument of Accession, but subject always to the terms
thereof, and for the purposes only of the Federation" are addi-
tions in Section 6 [1] (a); and the words " to the provisions of
the Act so far as they are applicable therein by virtue of his
Instrument of Accession " instead of " to this Act " used in
the Bill are also additions in Section 6 (1) (b) to make the
meaning clear. Sub-section (4) is also now.

123

The Indian Constitution Ch. VI

CHAPTER II.
The Federal Executive.*
The Governor-General.
7. — Functions of Governor=Qeneral.

8.— Extent of executive authority of the Federation: —

( I ) Subject to the provisions of this Act, the executive
authority of the Federation extends —

(a) to the matters with respect to which the Federal
Legislature has power to make laws;

(h) to the raising in British India on behalf of His
Majesty of naval, military and air forces and
to the governance of His Majesty's forces borne
on the Indian establishment;

(c) to the exercise of such rights, authority and
jurisdiction as are exercisable by His Majesty
by treaty, grant, usage, sufferance, or otherwise
in and in relation to the tribal areas:

Provided that —

(i) the said authority does not, save as expressly
provided in this Act, extend in any Province
to matters with respect to which the Pro-
vincial Legislature has power to make laws;

*Constitutional Governments are classified as Parliamen-
tary or Presidential. Under the former the Executive is
responsible to the Legislature and liable to be dismissed by it.
Under the latter, the Chief of the Executive is elected directly
by the people or their representatives for a fixed period and is
not responsible to the Legislature,

124

The Government of India Act, 1935.

(ii) the said authority does not, save as expressly
provided in this Act, extend in any Federated
State save to matters with respect to which
the Federal Legislature has power to make
laws for that State, and the exercise thereof
in each State shall be subject to such limita-
tions, if any, as may be specified in the
Instrument of Accession of the State;

(iii) the said authority does not extend to the
enlistment or enrolment in any forces raised
in India of any person unless he is either a
subject of His Majesty or a native of India
or of territories adjacent to India; and

(iv) commissions in any such force shall be granted
by His Majesty save in so far as he may be
pleased to delegate that power by virtue of
the provisions of Part I of this Act or other-
wise,

(2) The executive authority of the Ruler of a Federated
State shall, notwithstanding anything in this section,
continue to be exercisable in that State with respect to
matters with respct to which the Federal Legislature
has power to make laws for that State except in so far as
the executive authority of the Federation becomes exercis-
able in the State to the exclusion of the executive authority
of the Ruler by virtue of a Federal law.

Notes:— Tho words "subject to the provisions of this Act"
at the commencement of sub-section (1) require a word of

125

The Indian Constitution Ch. VI

explanation. Sir Samuel Hoars wrote in bis Memorandum:—
"Whore administration of a subject bas, in virtue of an agree-
ment attached to tbe Instrument of Accession, been under-
taken by tbe Ruler of a State, tbe executive authority of tbe
Federation cannot itself undertake such administration, though
it has appeared unnecessary to make any express provision to
this effect in view of tbe opening words of clause 8 "Subject
to the provisions of this Act."

Sub-Section (2) is an addition in the Act not found in
the Bill; tbe second proviso to sub-section (1) c makes tbe
meaning clearer. Sir Samuel Hoare wrote, "Since by clause 8,
tbe executive authority of tbe Federation is correlated to tbe
legislative power, it follows ( and indeed it is expressly so
provided) that a Ruler can to the same extent exclude tbe
exercise of tbe executive authority in his State or qualify it
by corresponding conditions of limitations. But His Majesty's
Government recognize that in a few instances the Bill does
confer an executive authority on the Federation which is not
related to an item in tbe Federal Legislative List and it
is undoubtedly the case that, as the Bill stands at present,
a Ptulor could not by bis Instrument of Accession exclude or
qualify the executive authority of the Federation in respect

of these matters His Majesty's Government are, however,

willing to make it clear that the executive authority of tbe
State would continue in respect of its own laws, being laws
not inconsistent with any Federal law applying to the State;
and that tbe executive authority of the State would only be
superseded by the executive authority of the Federation when
the latter is exercised in virtue of a Federal Law." Subsection
(2) was added, as also proviso (ii) to subsection. (1) (c).in its
clear and new form.

12'G

The Government of India Act, 1935.
Administraiion of Federal Affairs.

*9. Council of ministers.— ( I ) There shall be a
council of ministers, not exceeding ten in number, to aid
and advise the Governor-General in the exercise of his
functions, except in so far as he is by or under this Act
required to exercise his functions or any of them in his
discretion:

Provided that nothing in this subsection shall be con-
strued as preventing the Governor-General from -exercising
his individual judgment in any case where by or under this
Act he is required so to do.

( 2 ) The Governor-General in his discretion may pre-
side at meetings of the council of ministers.

( 3 ) If any question arises whether any matter is or
is not a matter as respects which the Governor- General is
by or under this Act required to act in his discretion or to
exercise his individual judgment, the decision of the Gover-
nor-General in his discretion shall be final, and the validity
of anvthinsf done bv the Governor-General shall not be
called in question on the ground that he ought or ought
not to have acted in his discretion, or ought or ought not
to have exercised his individual judgment.

* The J. P. C. Report stated :-^ "There will, therefore,
be centripetal as well as centrifugal forces, and it seems to us
conceivable that, until the advent of a new hitherto unknown
alignment of parties, a Central Executive such as we have
described may even come to function, as we believe that the
Executive of the Swiss Confederation functions as a kind of
business committee of the Legislature.''

127

The Indian Constitution Ch. VI

Notes : — Some sort of dyarchy is introduced in the
Central Executive. The J. P. C. Report stated; — "It is then
proposed that there shall be a Council of Ministers, chosen and
summoned by the G-G and holding office during his pleasure,
to aid and advise him in the exercise of the powers conferred
on him by the Constitution Act other than his powers relating
to (1) defence, external affairs and ecclesiastical affairs, and
(2) matters left by the Act to the Governor-General's discre-
tion "We assume therefore that they will not be entitled

to advise him in the exercise of any prerogative powers of the
Crown which may be delegated, presumably in the Letters
Patent constituting the office. We are of opinion that this
is a proper distinction to draw; that ministers should not, for
example, have the right to advise him on the exercise of
such a prerogative of His Majesty as the grant of honours "

10. Other provisions as to ministers: — ( i ) The Gov-
ernor-General's ministers shall be chosen and summoned by
him, shall be sworn as members of the council, and shall
hold office during his pleasure.

( 2 ) A minister who for any period of six consecutive
months is not a member of either Chamber of the Federal
Legislature shall at the expiration of that period cease to
be a minister.

( 3 ) The salaries of ministers shall be such as the
Federal Legislature may from time to time by Act deter-
mine and, until the Federal Legislature so determine, shall
be determined by the Governor-General:

Provided that the salary of a minister shall not be
varied during his term of office.

1^8

The Government of India Act, 1935.

(4) The question whether any and, if so, what
advice was tendered by ministers to the Governor-General
shall not be inquired into in any court.

( 5 ) The functions of the Governor-General with
respect to the choosing and summoning and the dismissal
of ministers, and with respect to the determination of their
salaries, shall he exercised bv him in his discretion.

11. Provisions a^ to defence, ecclesiastical affairs,
external affairs, and the tribal areas: — ( i ) The funct-
ions of the Governor-General with respect to defence and
ecclesiastical affairs and with respect to external affairs,
except the relations between the Federation and any part
of His Majesty's dominions, shall be exercised by him in
his discretion, and his functions in or in relation to the
tribal areas shall be similarly exercised.

( 2 ) To assist him in the exercise of those functions
the Governor-General may appoint counsellors, not excee-
ding three in number, whose salaries and conditions of
service shall be such as may be prescribed by His Majesty
in Council.

Notes; — On the subjects of defence and foreign relations
the Note of Their Higlmesse", referred to ah'eady, stated; —
"Tlie States liavo, however, every right to expect that when the
time arrives for transferring them to the Federal Government,
the States would be fully consulted and adequate measures
taken to have their own rights and privileges taken Into
consideration. Until that time has arrived, however, the
States desire that, so far as they are concerned, the existing
arrangements should continue, and no further obligations on
account of foreign relations should be undertaken without their
previous consent,''

C.L.17 129

tHE Indian Constitution Ch. VI

Regarding the constitution of Advisory Committees the
J. P. C. Report stated: — "An advisory body similar to that of
the Committee of Imperial Defence, constituted at the G-G's

discretion, might, we think, have many advantages

and provided that the extent and methods of consultation are
clearly understood to rest in the discretion of the G.-G., we see
no objection to the formation of any committee or committees
that the Federal Government and Legislature may consider
useful.'' In another connection the Report stated ; — " We
assume that the Department of External Affairs will maintain
a close contact with the Department of Trade and Commerce."

The words " except the relations between the Federation
and any part of His Majes-ty's Dominions" in the Section may
be noted.

12. — Special responsibilities of QovernoroOeneral: — (i)

In the exercise of his functions the Governor-General
shall have the follovring special responsibilities, that
is to say, —

(a) the prevention of any grave menace to the peace
or tranquillity of India or any part thereof;

(^) the safeguarding of the financial stability and
credit of the Federal Government;

( c ) the safeguarding of the legitimate interests of
minorities;

(d) the securing to, and to the dependants of,
persons who are or have been members of the
public services of any rights provided or pre-
served for them by or under this Act and the
safeguarding of their legitimate interests;

(e) the securing in the sphere of executive action of
the purposes which the provisions of chapter in

130

The Government of India Act, 1935.

of Part V of this Act aie designed to secure
iu relation to legislation;

(f) the prevention of action which would subject
goods of United Kingdom or Burmese origin
imported into India to discriminatory or penal
treatment;

{g) the protection of the rights of any Indian State
and the rights and dignity of the Ruler thereof;
and

(h) the seeming that the due discharge of his func-
tions with respect to matters with respect to
which he is by or under this Act required to act
in his discretion, or to exercise his individual
judgment, is not prejudiced or impeded by any
course of action taken with respect to any other
matter.

( 2 ) If and in so fiir as any special responsibility of
the Governor-General is involved, he shall in the exercise
of his functions exercise his individual judgment as to the
action to be taken.

NoTRs: — In discharging his functions in which the G-G
is of opinion that any one of bis responsiV)iIities is involved,
"he will bo at liberty to act in such manner as he judges
requisite for the fulfilment of that special responsibility, even
though this may be contrary to the advice ■which his Ministers
have tendered." Sub-section 2 says that he shall then exercise
his individual judgment; and Section 14 later on provides for
the superintendence of the Secretary of State in matters where
the G -G is required to act in his discretion or to exercise his
individual judgment.

131

The Indian CoNSTitutioN Ch. VI

Regarding sub-clause (g) of the corresponding clause in
the Government of India Bill, the Princes' Note contained the
follownjj^ — "Protection should be extended not only to the vital
and legitimate interests of the Indian States but also to the
privileges and dignity of the Rulers. They should continue
to enjoy the recognised privileges of Sovereign Rulers." Item
(g) has been accordingly recast in the Act.

Regarding item (h) the J. P. C. Report stated : — "It is
plain that the G-G must be free to exercise his own judgment
in any m atter which affects the administration of any of the
reserved departments, even though it arises primarily within
tho ministerial sphere."

Sir Samuel Hoare wrote about special responsibilities
thus:-- '"The special responsibilities relate only to his relations
which his Ministers ii^ the process of arriving at a decision as
to action to be taken in tho exercise of the executive autho-
rity of the Federation. The first special responsibility would
not enable tho G.-G to take J^ny action in a State which the
Federal Government was not otherwise coinpetsnt to take in
virtue of clause 8 (now section 8) read with the provision in
the Legislative Lists, and subject, in relation to any State, to
any conditiois and limitations attached by the Ruler to
acceptance of items in the Federal List. No power of interven-
tion in a State by the G.-G. in a non-federal matter Tould flow
from this clause."

13. Provisions as to Instrument of InstructiOns^^^

( I ) The Secretary of State shall lay before Parlia-
ment the draft of any Instrument of Instructions
( including any Instrument amending or revoking an
Instnimont previously issued ) which it is proposed to re-
commend His Majesty to issue to the Governor-General,

1^2 ;

The Government of India Act, i935'

and no further proceedings shall be taken in relation there-
to except in pursuance of an address presented to His
Majesty by both Houses of Parliament praying that the
Instrument may be issued.

( 2 ) The validity of anything done by the Governor-
General shall not be called in question on the ground that
it was done otherwise than in accordance with any Instru-
ment of Instructions issued to him.

Notes: — The Instrument of Instructions may bo the
medium for setting up certain conventions. For instance, the
J. P. 0. Report stated: — "We understand the intention of His
Majesty's Government to be that the principle of joint deli-
beration (between the Counsellors and the Ministers) shall be
recognised and encouraged by the G-G's Instrument of Instruc-
tion." In another connection the Report stated: — "Under

the White Paper proposals, tl^e G-G is to be directed by his
Instrument of Instructions to include "so far as possible" in
his Ministry, not only members of important minority commu-
nities, but also representatives of the States which accede to
the Federation." It is submitted that though several matters
in which the States are interested cannot be legally put in as
reservations in the Instrument of Accession, yet they can
apply for the same to be included in the Instrument of In-
structions as items in which some constitutional conventions
may be set up for safeguarding the interests and claims of
the States.

14. Superintendence of Secretary of State:— (i) In

so far as the Governor-General is by or under this Act
required to act in his discretion or to exercise his individual
judgment, he shall be under the general control of, and
comply with such particular directions, if any, as may

The Indian Constitution . Ch. Vl

from time to time be ^iven to him by, the Secretary of
State, but the validity of anything done b}' the Governor-
General shall not be called in question on the ground that
it was done otherwise than in accordance with the provisions
of this section.

15 Financial adviser to Qovernor-Qeaeral : — (i)

The Governor-General may appoint a person to be his
financial adviser.

( 2 ) It shall be the duty of the Governor-General's
financial adviser to assist by his advice the Governor-General
in the discharge of his special responsibility for safeguarding
the financial stability and credit of the Federal Govern-
ment, and also to give advice to the Federal Government
upon any matter relating to finance with respect to which
ho may be consulted.

( 3 ) The Governor-General's financial adviser shall
hold office during the pleasure of the Governor-General,
and the salary and allowances of the financial adviser and
the numbers of his staff and their conditions of service, shall
be such as the Governor-General may determine.

( 4 ) The powers of the Governor-General with respect
to the appointment and dismissal of a financial adviser,
and with respect to the determination of his salary and
allowances and the numbers of his staff and their conditions
of service, shall be exercised by him in his discretion:

Provided that, if the Governor-General has determined
to appoint a financial adviser, he shall, before making any
appointment other thin the first appointment, consult his
ministers as to the person to be selected.

134

The Government of India Act, 1935.

Notes:— The J. P. C. Report stated; -"We think that the
Financial Adviser must be regarded technically as the G-O's
adviser, Viut his advice ought to be available to Ministers
and we hope that they will freely consult him."

1 6 Advocatfi-Qeneial for Federation: — ( i ) The Gov-

ernor-Gereral shall appoint a person, being a person quali-
fied to be appointed a judge of the Federal Court, to be
Advocate-General for the Federation.

( 2 ) It shall be the duty of the Advocate-General to
give advice to the Federal Government upon such legal
matters, and to perform such other duties of a legal
character, as may be referred or assigned to him by the
Governor-General, and in the performance of his duties he
shall have right of audience in all courts in British India
and, in a case in which federal interests are concerned^ in
all courts in any Federated Stat 3.

( 3 ) The Advocate-General shall hold office during
the pleasure of the Governor-General, and shall receive such
remuneration as the Governor-General may determine.

(4) In exercising his powers with respect to the
appointment and dismissal of the Advocate General and
with respect to the determination of his remuneration, the
Governor-General shall exercise his individual judgment.

NoTE3: — It is submitted that under the rule-making
powers conferred on the Federal Court by S. 214, reciprocal
rights of audience in the Federal Court should be given to the
Advocate General of a Federated State or his substitute in
cases in which the interests of the State are concerned.

The J. P. C. r».eport stated: — " We think it essential
that the Advocate-General should hold his office on a settled

185

The Indian Constitution Ch. VI

tenure and should have no political associations with the
Federal Ministry. ''

17. — Conduct of business of Federal Government.

CHAPTER III
The Federal Legislature

Gcnernl.

18. — Constitution of the Federal Legislature. — (i)

There shall be a Federal Legislature which shall consist
of His Majest}^ represented by the Governor-General, and
two Chambers, to be known respectively as the Council of
rState and the House of Assembly (in this Act referred to as
"the Federal Assembly").

(2) The Council of State shall consist of one hundred
and fifty-six representatives of British India and not
more than one hundred and four representatives of the
Indian States, and the Federal Assembly shall consist of
two hundred and fifty representatives of British India and
not more than one hundred and twenty-five representatives
of the Indian States.

(3) The said representatives shall be chosen in accord-
ance with the provisions in th-^t behalf contained in the
First Schedule to this Act.

(4) The Council of State shall be a permanent body
not subject to dissolution, but as near as may be one-third
of the members thereof shall retire in every third year in
accordance with the provisions in that behalf contained
in the said First Schedule. ^

13$

The Government of India Act, 1935.

(5) Every Federal Assembly, unless sooner dissolved,
shall continue for five years from the date appointed for
their first meeting and no longer, and the expiration of
the said period of five years shall operate as a dissolution
of the Assembly,

Notes: — Legislatures are either unicameral or bicameral
according as the legislature consists of a single chamber or double
chambers respectively. Sir John Marriot saysr-'-'The world has
decided with rare uniformity in favour of the bicameral form
of legislature. Experiments in unicameralism have been few
and unimportant, and have invariably resulted in demonstrating

the necessity of a second chamber The necessity of a

counterpoise to democratic fervour; the safety that lies in
sober second thoughts; the advisability of a check on hasty
and ill-considered legislation; the value of an appeal from
Philip drunk to Philip sober; the liability of a second Chamber
to violent gusts of passion, — these are arguments for second
Chambers. But "to devise a good Second Chamber, to discover
for it a basis which shall be at once intelligible and differenti-
ating, to give it powers of revision without powers of control,
to make it amenable to permanent public sentiment and yet
independent of transient public opinion; to erect a bulwark
against revolution without interposing a barrier to reform — this
is a task which has baffled the ingenuity of Constitution-
mongers from time immemorial." It is argued that the bicam-
eral system is essential to the successful working of a genuine
federal system. A federal second chamber is a ready and
convenient means of satisfying the Centrifugal sentiments
of the federal units.

1 9. Sessions of the Legislature, prorogation and dis=
solution:— (i) The Chambers of the Federal Legislature
shall be summoned to meet once at least in every year,

g.L,18 137

The Indian Constitutioi^ Ch. VI

and twelve months shall not intervene between their last
sitting in one session and the date appointed for their first
sitting in the next session.

20. Right of Qovernor=Qeneral to address, and send
messages to, Chambers.

21. Rights of ministers, counsellors and Advocate-
General as respects Chambers.

22. Officers of Chambers.:— ( i ) The Council of
State shall as soon as may be choose two members of the
Council to be respectively President and Deputy-President
thereof and, so often as the office of President or Deputy-
President becomes vacant, the Council shall choose another
member to be President or Deputy-President, as the case
may be.

( 2 ) A member holding office as President or Deputy-
President of the Council of State shall vacate his office if
he ceases to be a member of the Council, may at any time
resign his office by writing under his hand addressed to
the Governor-General, and may be removed from his office
by a resolution of the Council passed by a majority of all
the then members of the Council; but no resolution for the
purpose of this subsection shall be moved unless at least
fourteen days' notice has been given of the intention to
move the resolution.

( 3 ) While the office of President is vacant, the
duties of the office shall be performed by the Deputy-
President, or, if the office of Deputy-President is also
vacant, by such member of the Council as the Governor-
General may in his discretion appoint for the purpose, and
during any absence of the President from any sitting of the

13$

The Government of India Act, 1935.

Council the Deputy-Prebident or, if he is also absent, such
person as may be determined by the rules of procedure of
the Council, or, if no such person is present, such other
person as may be determined by the Council, shall act as
President.

( 4 ) There shall be paid to the President and the
Deputy-President of the Council of State such salaries as
may be respectively fixed by Act of the Federal Legislature,
and, until provision in that behalf is so made, such salaries
as the Governor-General may determine.

( 5 ) The foregoing provisions of this section shall
apply in relation to the Federal Assembly as they apply in
relation to the Council of State with the substitution of the
titles "Speaker" and- "Deputy-Speaker " for the titles
" President " and " Deputy-President" respectively, and
with the substitution of references to the , Assembly for
references to the Council:

Provided that, without prejudice to the provisions of
subsection ( 2 ) of this section as applied by this subsection,
whenever the Assembly is dissolved, the Speaker shall not
vacate his office until immediately before the first meeting
of the Assembly after the dissolution.

23. Voting in Chambers, power of Chambers to act
notwithstanding vacancies, and quorum. ( I ) Save as
provided in the last preceding section, all questions at any
sitting or joint sitting of the Chambers shall be determined
by a majority of votes of the members present and voting,
other than the President or Speaker or person acting as
such.

ia9

The Indian Constitution Ch. Vi

The President or Speaker or person acting as such
shall not vote in the first instance, but shall have and exer-
cise a casting vote in the case of an equality of votes.

Provisions as to Members of Legislature.

2 4. Oath of members.

2 5 Vacation of seats.

26. Disqualifications for membership:— (i) A person
shall be disqualified for being chosen as, and for being, a
member of eif.her Chamber —

{a) if he holds any office of profit under the Crown
in India, other than an office declared by Act
of the Federal Legislature not to disqualify
its holder;

{b) if he is of unsound mind and stands so declared
by a competent court;

{d) if, whether before or after the establishment of
the Federation, he has been convicted, or has,
in proceedings for questioning the validity or
regularity of an election, been found to have
been guilty, of any offence or corrupt or illegal
practice relating to elections which has been
declared by Order in Council or by an Act of
the Federal Legislature to be an offence or
practice entailing disqualification for member-
ship of the Legislature unless such period has
elapsed as may be specified in that behalf
by the provisions of that Order or Act.

The Government of India Act, 1935.

( c ) if, whether before or after the establishment of
the Federation, he has been convicted of any
other offence by a court in British India or in a
State which is a Federated State and sentenced
to transportation or to imprisonment for not
less than two years, unless a period of five
5'ears, or such less period as the Governor-
General, acting in his discretion, may allow
in any particular case, has elapsed since his
release;

(/) if, having been nominated as a candidate for the
Federal or any Provincial Legislature or having
acted as an election agent of any person so
nominated, he has fLiiled to lodge a return of
election expenses within the time and in the
manner required by any Order in Council made
under this Act or by any Act of the Federal or
the Provincial Legislature, unless five years
have elapsed from the date by which the return
ought to have been lodged or the Governor-
General, acting in his discretion, has removed
the disqualification:

Provided that a disqualification under paragraph (/)
of this subsection shall not takfe effect until the expiration
of one month from the date by which the return ought to
have been lodged or of such longer period as the Governor-
General, acting in his discretion, may in any particular
case allow.

(2) A person shall not be capable of being chosen a
member of either Chamber while he is serving a sentence
of transportation or of imprisonment for a criminal offence,

^m^im^mfimmti»h^: •^% i^xmt, met hes^ome

^MMSi tsf f^ss&ii ^ tU^ 4miimWi^simt tM& three mmBti»

hsme ^hfsM frmn the ds&e HSmsse^ m, H withm ttuee

1sifmi0d.mfe$^Ji6^tiie€6imfkXi6n m the netOeme, nmtll
tka. »f^fie^ <sir peiMkm U4h!^^meii^,h«t,dmin^zstfft^hd
^tafmg wlnidlt \m messlbesMf h pfsserr^ hj Urn §tt^

:/j. he deemfni v^ yM- ^m ^Mce ^ ^nsHt wiHsg the C^',-vn
^ f t!&rl^ hf tesmni 6^tj ihst^

f<«>' hi h z ttmsMei ^M^«c h( tka ?v: •-•>:•,.',.■. -,:'--

'^'-^ '^f five ietnfj^ '.'■ . \. ',Tni m Ind^ and

"^r^nltA-- i I H I nail *» ii44itHT6i ff>v "hif»

■y- r- . . - ...... . . -1

o > t- - . .> - > ' • - • ■■•-'• ^ • >

lii

The Govekxment of India Act. io;5.

this Act with rejspect to financial Bills, a Bill may orij^inato
in either Chamber.

( ^ ) Subject to ihe provisions oi iho ne-\t succeeding
section, a Bill shall not be deemevi to have been passed by
the Chambers ot the l.e^^islature unless it has been a^r^^d
to by both Chambeis. either without amendment or
with such amendments cnlv as .\re as^iecvl to bv both
Chambers.

i, 5 ) A Bill pendin^:; in the Le^jislature shall not laps©
by reason of the prorc^^ation of the Chamber:

IS,

( 4 1 A rui pendinii in the Council ol State which has
not been passed by the Federal Assembly shall not lapse on
a dissolution ot the Assembly.

^ 5 ) A Bill which is pending in the Fevleral Assembly
or which bavins: ho^n passevi by the Federal Assembly is
pendins: in the Council of State shall, subject to the pro-
visions of the next sucvvelins: section, lapse on a dissolution
of the AssombK-

^ I. Joint sittinji* ot both ch.irnber* in cert.iin caseAr*
(i) If after a Bill has been passevi by one Chamber and
transmitted to the other Chamber —

^ .} the l^ill is leiected bv the other Chamb<*r; or

( .' ) the Chambeis have tinally disas^reevl as to the
amendments to be made in the Bill: or

(c) more than six months elapvSe from the date af
the reception ot the Bdl by the other Chan\l>er
without the Bill bein< presented to the C>Ov<?rno»^
<.»cneral tor his assent,

The Indian Constitution Ch. VI

the Governor-General may, unless the Bill has lapsed by
reason of a dissolution of the Assembly, notify to the
Chambers, by message if they are sitting or by public
notification if they are not sitting, his intention to summon
them to meet in a joint sitting for the purpose of deliberating
and voting on the Bill:

Provided thnt, if it appeals to tlie Governor-General
that the Bill relates to finance or to any matter which
affects the discharge of his functions in so far as he is by or
under this Act required to act in his discretion or to
exercise his individual judgment, he may so notify the
Chambers notwithstanding that there has been no rejection
of or final disagreement as to the Bill and notwithstanding
that the said period of six months has not elapsed, if die is
satisfied that there is no reasonable prospect of the Bill
being presented to him for his assent without undue
delay.

In reckoning any such period of six months as is
referred to in this subsection, no account shall be taken of
any time during v*diich the Legislature is prorogued or
during which both Chambers are adjourned for more than
four days.

( 2 ) Where the Governor-General has notified his
intention of summoning the Chambers to meet in a joint
sitting, neither Chamber shall proceed further with the Bill,
but the Governor-General may at any time in the next
session after the expiration of six months from the date
of his notification summon the Chambers to meet in a joint
sitting for the purpose specified in his notification and, if
he does so, the Chambers shall meet accordingly:

144

The Government of India Act, 1935.

Provided that, if it appears to tho Governor-General
that the Bill is such a Bill as is mentioned in the proviso
to subsection ( i ) of this section, he may summon the
Chambers to meet in a joint sitting for the purpose aforesaid
at any date, whether in the same session or in the next
session.

( 3 ) The functions of the Governor-General under the
provisos to the two last preceding subsections shall be
exercised by him is his discretion.

( 4 ) If at the joint sitting of the two Chambers the
Bill, with such amendments, if any, as are agreed to in
joint sitting, is passed by a majority of the total number of
members of both Chambers present and voting, it shall be
deemed for the purposes of this Act to have been passed by
both Chambers:

Provided that at a joint sitting-
fa j if the Bill, having been passed by one Chamber,
has not been passed by the other Chamber with
amendments and returned to the Chamber in
which it originated, no amendment shall be
proposed to the Bill other than such amendments
( if any ) as are made necessary by the delay
in the passage of the Bill;

( ^ ) if the Bill has been so passed and returned,
only such amendments as aforesaid shall be
proposed to the Bill and such other amendments
as are relevant to the matters with respect to
which the Chambers have not agreed,

C.L 19 145

tnE Indian Constitution Ch. VI

and the decision cf the person presiding as to the amend-
ments which are admissible under this subsection shall be
final.

( 5 ) A joint sitting ma}' be held under this section
and a Bill passed thereat notwithstanding that a dissolution
of the Assemby has intervened since the Governor-General
notified his intention to summon the Chambers to meet
therein.

3 2. Assent to Bills and power of Crown to disallow
Acts: — (0 When a Bill has been passed by the Chambers,
it shall be presented to the Governor-General, and
the Governor-General shall in his discretion declare
either that he assents in His Majesty's name to the
Bill, or that he witliholds assent therefrom, or that he
reserves the Bill for the signification of His Majesty's
pleasure :

Provided that the Governor-General may in his
discretion return the Bill to the Chambers with a message
requesting that they will reconsider the Bill or any specified
provisions tliereof and, in particular, will consider the
desirability of introducing any such amendments as he may
recommend in his message, and the Chambers shall recon-
sider the Bill accordingly.

(2) A Bill reserved for the signification of His
Majesty's pleasure shall not become an Act of the Federal
Legislature unless and until, within twelve months from
the day on which it was presented to the Governor-General,
the Governor-General makes known by public notification
that His Majesty has assented thereto.

140

The Government of India Act, 1935.

(3) Any Act assented to by the Governor-General
may be disallo^^'ed by His Majesty within twelve months
from the day of the Governor-General's assent, and
where any Act is so disallowed the Governor-Gent ral
shall forthwith make the disallowance known by public
notification, and as from the date of the notification the
Act shall become void.

Procedure in Financial matters.

iZ. Annual financial statement:— (i) The Governor-
General shall in respect of every financial year cause to
be laid before both Chambers of the Federal Legislature
a statement of the estimated receipts and expenditure of
the Federation for that year, in this Part of this Act
referred to as the ''annual financial statement."

(2) The estimates of expenditure embodied in the
annual financial statement shall show separately —

{a) the sums required to meet expenditure des-
cribed by this Act as expenditure charged upon
the revenues of the Federation; and

{b) the sums required to meet other expenditure
proposed to be made from the revenues of the
Federation,

and shall distinguish expenditure on revenue account
from other expenditure, and indicate the sums, if any,
which are included solely because the Governor-General
has directed their inclusion as being neces.-^ary for the due
discharge of any of his special responsibilities.

(3) The following expenditure shall be expenditure
charged on the revenues of the Federation :—

'O"

The Indian Constitution Ch. VI

(a) the salary and allowances of the Governor-
General and other expenditure relating to his
office for which provision is required to be
made by Order in Council;

{b) debt charges for which the Federation is liable,
including interest, sinking fund charges and
redemption charges, and other expenditure
relating to the raising of loans and the service
and redemption of debt;

(c) the salaries and allowances of ministers, of
counsellors, of the financial adviser, of the
advocate-general, of chief commissioners, and
of the staff of the financial adviser;

{d) the salaries, allowances, and pensions payable
to or in respect of judges of the Federal Court,
and the pensions payable to or in respect of
judges of any High Court;

(f) expenditure for the purpose of the discharge
by the Governor-General of his functions with
respect to defence and ecclesiastical affairs, his
functions with respect to external affairs in so
far as he is by or under this Act required in the
exercise thereof to act in his discretion, his
functions in or in relation to tribal areas, and
his functions in relation to the administration
of any territory in the direction and control of
which he is under this Act required to act in
his discretion: provided that the sum so charged
in any year in respect of expenditure on
ecclesiastical affairs shall not exceed forty-two
lakhs of rupees, exclusive of pension charges;

148

The Government of India Act, 1935.

(/) the sums payable to His Majesty under this Act
out of the revenues of the Federation in respect
of the expenses incurred in discharging the
functions of the Crown in its relations with
Indian States ;
(g) any grants for purposes connected with the
administration of any areas in a Province which
are for the time being excluded areas;

(h) any sums required to satisfiy any judgment,
decree or award of any court or arbitral tribu-
nal;

(t) any other expenditure declared by this Actor
any Act of the Federal Legislature to be so
charged.

( 4 ) Any question whether any proposed expenditure
falls within a class of expenditure charged on the revenues
of the Federation shall be decided by the Governor-General
in his discretion.

34. Procedure In Legislature with respect to esti^

mates:~( I ) So much of the estimates of expenditure as
relates to expenditure charged upon the revenues of the
Federation shall not be submitted to the vote of the Legis-
lature, but nothing in this subsection shall be construed
as preventing the discussion in either Chamber of the
Legislature of any of those estimates other than estimates
relating to expenditure referre I to in paragraph (a) or
paragraph (/) of subsection ( 3 ) of the last preceding
section.

( 2 ) So much of the said estimates as relates to other
expenditure shall be submitted in the form of demands

149

The Indian CoNSTixutioN Ch. Vl

for grants to the Federal Assembly and thereafter to the
Council of State, and either Chamber shall have power to
assent or to refuse to assent to any demand, or to assent
to any demand subject to a reduction of the amount
specified therein:

Provided that, where the Assembly have refused to
assent to any demand, that demand shall not be submitted
to the Council of State, unless the Governor-General so
directs and, where the Assembly have assented to a
demand subject to a reduction of the amount specified there-
in, a demand for the reduced amount only shall be sub-
mitted to Councial of State, unless the Governor-General
otherwise directs; and where, in either of the said cases, such
a direction is given, the demand submitted to the Council
of State shall be for such amount, not being a greater
amount than that orignally demanded, as may be specified
in the direction.

( 3 ) If the Chambers differ with respect to any
demand the Governor- General shall summon the two
Chambers to meet in a joint sitting for the purpose of
deliberating and voting on the demand as to which they
disagree, and the decision of the majority of the members
of both Chambers present and voting shall be deemed to be
the decision of the two Chambers.

( 4 ) No demand for a grant shall be made except on
the recommendation of the Governor-General.

3 5. Authentication of schedule of authorised expendi""
ture.

36. Supplementary statement;) of expenditure.

150

The Government of India Act, 1935.

37. special provisions as to financial Bills: — (l) A Bill

or amendment making provision —

{a) fox imposing or increasing any tax; or
{b) for regulating the borrowing of money or the
giving of any guarantee by the Federal
Government, or for amending the law with
respect to any financial obligations under-
taken or to be undertaken by the Federal
Government; or

(c) for declaring any expenditure to be expenditure
charged on the revenues of the Federation, or
for increasing the amount of any such expen-
diture,

shall not be introduced or moved except on the recom-
mendation of the Governor-General, and a Bill making
such provision shall not be introduced in the Council of State.

(2) A Bill or amendment shall not be deemed to make
provision for any of the purposes aforesaid by reason
only that it provides for the imposition of fines or other
pecuniary penalties, or for the demand or payment of
fees for licences or fees for services rendered.

(3) A Bil! which, if enacted and brought into
operation, VN*ould involve expenditure from the revenues
of the Federation shall not be passed by either Chamber
unless the Governor-General has recommended to that
Chamber the consideration of the Bill.

Procedure Ge7ieraUy.

38. Rales of procedure:— (i) Each Chaniber of the
Federal Legislature may make rules for regulating, subject

151

The Indian Constitution Ch. VI

to the provisions of this Act, their procedure and the
conduct of their business :

Provided that as regards each Chamber the Governor-
General shall in his discretion, after consultation with
the President or the Speaker, as the case may be, make
rules —

(a) for regulating the procedure of, and the conduct
of business in, the Chamber in relation to any
matter which affects the discharge of his func-
tions in so far as he is by or under this Act

required to act in his discretion or to exercise
his individual judgment;

((^) for securing the timely completion of financial
business;

( c) for prohibiting the discussion of, or the asking
of questions on, any matter connected with any
Indian State, other than a matter with respect
to which the Federal Legislature has power to
make laws for that State, unless the Governor-
General in his discretion is satisfied that the
matter affects Federal interests or affects a
British subject, and has given his consent to the
matter being discussed or the question being
asked;

(d) for prohibiting, save with the consent of the
Governor-General in his discretion, —

( i ) the discussion of, or the asking of
questions on, any matter connected with re-
lations between His Majesty or the Governor-
General and any foreign State or Prince; or

152

The Government of India Act, 1935.

(ii) the discussion, except in relation to
estimates of expenditure, of, or the asking
of questions on, any matter connected with
the tribal areas or the administration of any
excluded area; or

(iii) the discussion of, or the asking of
questions on, any action taken in his dis-
cretion by the Governor-General in relation
to the aflairs of a Province; or

(iv) the discussion of, or the asking of
questions on, the personal conduct of the
Ruler of any Indian State, or of a member
of the ruling famil}' thereof;

and, if and in so far as any rule so made by the Governor-
General is inconsistent with any rule made by a Chamber,
the rule made by the Governor-General shall prevail.

(2) The Governor- General, after consultation with
the President of the Council of State and the Speaker of
the Legislative Assembly, may make rules as to (he pro-
cedure with respect to joint sittings of, and communica-
tions between, the two Chambers.

The said rules shall make such provision for the
purposes specified in the proviso to the preceding sub-
section as the Governor-General in his discretion may
think fit.

( 3 ) Until rules are made under this section, the
rules of procedure and standing orders in force immediately
before the establishment of the Federation with respect to
the Indian Legislature shall have effact in relation to the

C.L,2Q X53

The Indian Constitution Ch. VI

Federal Legislature subject to such modifications and
adaptations as may be made therein by the Governor-
General in his discretion.

(4) At a joint sitting of the two Chambers the
President of the Council of State, or in his absence such
person as may be determined by rules of procedure made
under this section, shall preside.

Notes: — The fourth proviso in Subsection ( 1 ) ( d ) is
new, when compared to the Bill.

3 9. English to be used in the Federal Legislature.

4 0. Restrictions on discussion in the Legislature.

4 1. Courts not to inquire into proceedings of the

Legislature — ( i ) The validity of any proceedings in the

Federal Legislature shall not be called in question on the
ground of any alleged irregularity of procedure.

( 2 ) No officer or other member of the Legislature
in whom powers are vested by or under this Act for regu-
lating procedure or the conduct of business, or for main-
taining order, in the Legislature shall be subject to the
jurisdiction of any court in respect of the exercise by him
of those pov/ers.

CHAPTER IV.

Legislative Powers of Governor-General.

4 2, Power of Qovcrnor=Qeneral to promulgate Ordi-
nances during recess of Legislature: — ( i ) If at any time
when the Federal Legislature is not in session the Governor-
General is satisfied that circumstances exist which render

The Government of India Act, 1935.

it necessary for him to take immediate action, he may
promulgate such ordinances as the circumstances appear
to him to require:

Provided that the Governor-General —

( a) shall exercise his individual judgment as re-
spects the promulgation of any ordinance under
this section if a Bill containing the same provi-
sions would under this Act have required his
previous sanction to the introduction thereof
into the Legislature; and

(d) shall not, without instructions from His Majesty
promulgate any such ordinance if he would
have deemed it necessary to reserv^e a Bill
containing the same provisions for the signi-
fication of His Majesty's pleasure thereon.

( 2 ) An ordinance promulgated under this section
shall have the same force and effect as an Act of the
Federal Legislature assented to by the Governor-General,
but every such ordinance—

( a ) shall be laid before the Federal Legislature and
shall cease to operate at the expiration of six
weeks from the re-assembly of the Legislature,
or, if before the expiration of that period
resolutions disapproving it are passed by both
Chambers, upon the passing of the second of
those resolutions; *'

{b) shall be subject to the provisions of this Act
relating to the power of His Majesty to dis-
allow Acts as if it were an Act of the Federal

155

tHE Indian Constitution Ch. VI

Legislature assented to by the Governor-
General; and

(3) If and so far as an ordinance under this section
makes any provision which the Federal Legislature would
not under this Act be competent to enact, it shall be
void.

Notes : — The following Bills should be reserved for the
signification of His Majesty's pleasure: —

{a) any Bill the provisions of which would repeal or be
repugnant to the provisions of any Act of Parliament
extending to British India;

{b ) any Bill which would, if it became law so derogate
from the powers of the High Court of any Province
as to endanger the position which these Courts are
by the said Act designed to fill;

(c) any Bill passed by a Provincial Legislature and
reserved for his consideration which vpould alter the
character of the Permanent Settlement;

{<^) any Bill regarding which doubt may be felt by the
Governor-General whether it does or does not offend
against the purposes of Chap III, Part V of the
Government of India Act (re. provisions against
discrimination). Vide draft Instrument of Instruc-
tions to the G-G.

4 3. Power of Qovernor=Qeneral to promulgate ordi-
nances at any time witii respect to certain subjects:— (1)

If at any time the Governor-General is satisfied that circum-
stances exist which render it necessary for him to take

156

The Government of India Act, 1935.

immediate action for the purpose of enabling him satisfac-
torily to discharge his functions in so far as he is by or
under this Act required in the exercise thereof to act in his
discretion or to exercise his individual judgment, he may
promulgate such ordinances as in his opinion the circum-
stances of the case require.

(2) An ordinance promulgated under this section shall
continue in operation for such period not exceeding six
months as may be specified therein, but may by a subse-
quent ordinance be extended for a further period not
exceeding six months.

(3) An ordinance promulgated under this section shall
have the same force and effect as an Act of the Federal
Legislature assented to by the Governor-General, but every
such ordinance—

{a) shall be subject to the provisions of this Act
relating to the power of His Majesty to disallow
Acts as if it were an Act of the Federal Leds-
lature assented to by the Governor-General;

{b) may be withdrawn at any time by the Cover*
nor-General; and

{c) if it is an ordinance extending a previous ordin-
ance for a further period, shall be communi-
cated forthwith to the Secretary of State and
shall be laid by him before each House of
Parliament.

(4) If and so far as an ordinance under this section
makes any provision which the Federal Legislature would
not under this Act be competent to enact, it shall be
void,

157

The Indian Constitution Ch. Vi

(5) The functions of the Governor-General under this
section shall be exercised by him in his discretion.

4 4. Power of Qovernor-General in certain circunio
stances to enact Acts:— (r) If at any time it appears to the
Governor-General that, for the purpose of enabling him
satisfactorily to discharge his functions in so far as he is by
or under this Act required in the exercise thereof to act in
his discretion or to exercise his individual judgment, it is
essential that provision should be made by legislation, he
may by message to both Chambers of the Legislature
explain the circumstances which in his opinion render
legislation essential, and either —

(a) enact forthwith, as a Governor-General's Act, a
Bill containing such provisions as he considers
necessary; or

(b) attach to his message a draft of the Bill which
he considers necessary.

(2) Where the Governor-General takes such action as
is mentioned in paragraph {b) of the preceding subsection,
he may at any time after the expiration of one month
enact, as a Governor-General's Act, the Bill proposed by
him to the Chambers either in the form of the draft com-
municated to them or with such amendments as he deems
necessary, but before so doing he shall consider any address
which may have been presented to him within the said
period by either Chamber with reference to the Bill or to
amendments suggested to be made therein.

(3) A Governor General's Act shall have the same
force and effect, and shall be subject to disallowance in

158

The Government of India Act, 1935.

the same manner, as an Act of the Federal Legislature
assented to by the Governor-General and, if and in so far
as a Governor-General's Act makes any provision M-hich
the Federal Legislature would not under this Act be com-
petent to enact, it shall be void.

(4) Every Governor-General's Act shall be communi-
cated forthwith to the Secretary of State and shall be laid
by him before each House of Parliament.

(5) The functions of the Governor-General under this
section shall be exercised by him in his discretion

Note;- Subsection ( 1 ) ( a ) is new (not in the Bill.)

CHAPTER V.

Provisions in cage of Failure of Constitutional Machinery.

4 5. Power of Qovernor-Qeneral to issue Proclam-
ations:— (i) If at any time the Governor-General is satisfied
that a situation ha? arisen in which the government
of the Federation cannot be carried on in accordance with
the provisions of this Act, he may by Proclamation —

(a) declare that his functions shall to such extent as
may be specified in the Proclamation be exer-
cised by him in his discretion;

(b) assume to himself, all or any of the powers
vested in or exercisable by any Federal body or
authority,

and any such Proclamation may contain such incidental and
consequential provisions as may appear to him to be nece-
ssary or desirable for giving effdct to the objects of the
Proclamation, including provisions for suspending in whole
or in part the oparation of any provisions of this Act relating
to any Federal body or authority:

109

The Indian Constitution Ch. VI

Provided that nothing in tliis subsection shall autho-
rise the Governor-General to assume to himself any of the
powers vested in or exercisable by the Federal Court or to
suspend, either in whole or in part, the operation of any
provision of this Act relating to the Federal Court.

( 2 ) Any such Proclamation may be revoked or varied
by a subsequent Proclamation.

( 3 ) A Proclamation issued under this section —

(a) shall be communicated forthwith to the Secre-
tary' of State and shall be laid by him before
each House of Parliament;

(b) unless it is a Proclamation revoking a previous
Proclamition, shall cease to :)perate at the expi-
ration of six months:

Provided that, if and so often as a resolution approv-
ing the continuance in force of such a Proclamation is
passed by both Houses of Parliament, the Proclamation
shall, unless revoked, continue in force for a further period
of twelve months from the date on which under this sub-
section it would otherwise have ceased to operate.

( 4 ) If at any time the government of the Federation
has for a continuous period of three years been carried on
under and by virtue of a Proclamation issued under this
section, then, at the expiration of that period, the Procla-
mation shall cease to have effect and the government of
the Federation shall be carried on in accordance with the
other provisions of this Act, subject to any amendment
thereof which Parliament may deem it necessary to make,
but nothing in this subsection shall be construed as extend-
ing the power of Parliament to make amendments in this
Act without affecting the accession of a State.

160

The Government of India Act, 1935.

( 5 ) If the Governor-General, by a Proclamation
under this section, assumes to himself any power of the
Federal Legislature to make laws, any law made by him in
the exercise of that power shall, subject to the terms there-
of, continue to have effect until two years have elapsed
from the date on which the Proclamation ceases to have
effect, unless sooner repealed or re-enacted by Act of the
appropriate Legislature, and any reference in this Act to
Federal Acts, Federal laws, or Acts or laws of the Federal
Legislature shall be construed as including a reference to
such a law.

( 6 ) The functions of the Governor-General under
this section shall be exercised by him in his discretion.

Subsectioii { i) and ( 5 ) are new. The Hydari Committee
Report dated the 2l3t February 1935 stated:— "While the
States are willing to accede to the Federation for the purpose
of obtaining a Constitution giving responsible Government at
the Centre, it is not obviously intended that if such responsi-
bility has become impossible of attainment, the powers handed
over by the Federated States should still be subtracted from
them. " Their Highnesses' Note stated; — " It was understood
that in the event of a breakdown of the Federal Constitution
or an amendment without the consent of the States, beyond
such minor changes in respect of which previous consultation
may not be necessary by agreement, the trust would be deter-
mined and the powers transferred would revert to States."
" Regarding the break-down, Sir Samuel Hoare wrote: — " His
Majesty's Government, however, see no objection to meeting
any apprehensions that may be felt about this clause by in-
serting a time-limit on its operation. " Subsection 4 was
accordingly inserted.

C,L.2I X61

Chapter VII

THE GOVERNMENT OF INDIA ACT, 193 5. (Contd ).

PART III.

*THE GOVERNORS' PROVINCES,

CHAPTER I.

The Provinces.

4 6 Governors* Provinces: — (i) Subject to the provi-
sions of the next succeeding section with respect to Berar,
the following shall be Governors' Provinces, that is to say,
Madras, Bombay, Bengal, the Unitea Provinces, the Punjab,
Bihar, the Central Provinces and Berar, Assam, the North-
West Frontier Province, Orissa, Sind, and such other
Governors' Provinces as may be created under this Act.

4 7. Provisions as to Berar.

CHAPTER II,

The Provincial Executive.

The Governor.

4 8. Appointment of Qovernor:~(i) The Govarnor
of a Province is appointed by His Majesty by a Commission
under the Royal Sign Manual.

*NoTE. — The sections relating to the Provincial Executive,
Legislatures, Legislative Procedure, provision in case of failure
cf constitutional machinery etc. are practically similar to the
corresponding sections noted above dealing with the respective
subjects under Part II "Federation of India."

162

The Government of India Act, 1935. (Contd.)
49, Executive authority of Province-

Administration of Provincial Affairs.

5 0. Council of ministers.

5 1 . Other provisions as to ministers.

52, Special responsibilities of Qovernor.--(i) In the

exercise oi his functions the Governor shall have the
folio vving special responsibilities, that is to say: —

{a) the prevention of any grave menace to the
peace or tranquillity of the Province or any part
thereof;

{b) the safeguarding of the legitimate interests of
minorities;

(<:) the securing to, and to the dependants of,
persons who are or have been members of the
public services of any rights provided or
preserved for them by or under this Act, and
the safeguarding of their legitimate interests;

{d) the securing in the sphere of executive action
of the purposes which the provisions of chapter
III of Pari V of this Act are designed to secure
in relation to legislation;

{e) the securing of the peace and good government
of c.reas which by or under the provisions of
this: Part cf this Act are declared to be partially
excluded f.reas;

(/) th3 prote^ition of the rights of any Indian State
and the rights and dignity of the Ruler thereof;
and

163

The Indian Constitution Ch. Vll

(g) the securing of the execution of orders or direc-
tions lawfully issued to him under Part VI of
this Act by the Governor-General in his
discretion.

5 3. Provisions as to Instrument of Instructions.

54. Superintendence of QovernoroQeneral.

5 5. Advocate>Qeneral for Province-

5 6. Provisions as to police rules:— Where it is pro-
posed that the Governor of a Province should by virtue
of any powers vested in him make or amend, or approve
the making or amendment of, any rules, regulations or
orders relating to any police force, whether civil or military,
he shall exercise his individual judgment Mn"th respect to
the proposal, unless it appears to him that the proposal
does not relate to or affect the organisation or discipline
of that force.

B7. Provisions as to crimes of violence intended to
overthrow Government: — (i) If it appears to the Governor of
a Province that the peace or tranquillity of the Province
is endangered by the operations of any persons committing,
or conspiring, preparing or attempting to commit, crimes
of violence which, in the opinion of the Governor, are inten-
ded to overthrow the government as by law established,
the Governor may, if he thinks that the circumstances of
the case require him so to do for the purpose of combating
those operations, direct that his functions shall, to such
extent as may be specified in the direction, be exercised
by him in his discretion and, until otherwise provided by

164

tHfi Government of India Act, 1955. (Contd.)

a subsequent direction of the Governor, those functions
shall to that extent be exercised by him accordingly.

(2) While any such direction is in force, the Governor
may authorise an official to speak in and otherwise take
part in the proceedings of the Legislature, and any official
so authorised may speak and take part accordingly in the
proceedings of the Chamber or Chambers of the Legislature,
any joint sitting of the Chambers, and any committee of
the Legislature of which ho may be named a member by
the Governor, but shall not be entitled to vote.

(3) The functions of the Governor under this section
shall be exercised by him in his discretion.

(4) Nothing in this section affects the special res-
ponsibility of the Governor for the prevention of any grave
menace to the peace or tranquillity of the Province or any
part thereof.

5 8. Sources of certain information not to be disclosed—

The Governor in his discretion shall make rules for securing
that no records or information relating to the sources from
which information has been or may be obtained with
respect to the operations of persons committing, or conspi-
ring, preparing, or attempting to commit, such crimes as
are mentioned in the last preceding section, shall be dis-
closed or given —

( a ) by any member of any police force in the
Province to another member of that force
except in accordance with directions of the
Inspector-General of Police or Commissioner
of Police, as the case may be, or to any other

165

The Indian CoNSTiTutioN Ch. Vll

person except in accordance with directions of
the Governor in his discretion; or

( * ) by any other person in the service of the Crown
in the Province to any person except in accor-
dance with directions of the Governor in his
discretion.

5 9. Conduct of business of Provincial Qovernment.

CHAPTER HI,

The Provincial Legislature.

Ge7ieral.

60 Constitution of Provincial Legislatures: — (i)

There shall for every Province be a Provincial Legislature
which shall consist of His Majesty, represented by the
Governor, and —

( a ) in the Provinces of Madras, Bombay, Bengal,
the United Provinces, Bihar and Assam, two
Chambers;

( ^ ) in other Provinces, one Chamber.

( 2 ) Where there are two Chambers of a Provincial
Legislature, they shall be known respectively as the
Legislative Council and the Legislative Assembly, and
where there is only one Chamber, the Chamber shall be
known as the Legislative Assembly.

Notes;— The J. P. C. Keport stated:— "It is also proposed
that after a period of ten years, a bicameral Legislature may
abolish its Legislative Council, and that a unicameral Legisla-
ture may present an address to the Crown praying for the
establishment of a Legislative Council.

166

The Government of India Act, 1935. (Contd.)

6 1. Composition of Chambers of Provincial Legis-
latures.

62. Sessions of the Legislature, prorogation and dis*
solution.

6 3. Right of Qovernor to address, and send messages
to, Chambers.

6 4. Rights of ministers and Advocate^Qeneral as
respects Chambers.

6 5. Officers of Chambers

6 6- Voting in Chambers, power of Chambers to act
notwithstanding vacancies, and quorum.

Provisiofis as to Members of Legislatures,
6 7. Oath of members.

6 8. Vacation of seats:— ( I ) No person shall be a
member of both Chambers of a Provincial Legislature, and
rules made by the Governor exercising his individual judg-
ment shall provide for the vacation by a person who is
chosen a member of both Chambers of his seat in one
Chamber or the other.

( 2 ) No person shall be a member both of the Federal
Legislature and of a Provincial Legislature and if a person
is chosen a member both of the Federal Legislature and
of a Provincial Legislature, then, at the expiration of such
period as may be specified in rules made by the Governor
of the Province exercising his individual judgment, that
person's seat in the Provincial Legislature shall become
vacant, unless he has previously resigned his seat in the
Federal Legislature.

69. Disqualifications for membership.

167

The Indian Constitution Ch. VII

70. Penalty for sitting and voting when not quaiitied,
or when disqualified.

71. Privileges, &c. of members.

72. Salaries and allowances of members.

Legislative Procedure.

7 3. Introduction of Bills, &c.

74. Passing of Bills in Provinces having Legislative
Councils.

7 5. Assent to Bills.

76. Bills reserved for consideration.

7 7. Power of Crown to disallow Acts.

Procedure in Financial ?natters.

7 8. Annual financial statement.

7 9. Procedure in Legislature with respect to estimates.

80. Authentication of schedule of authorised expen-
diture.

8 1 . Supplementary statements of expenditure.

82. Special provisions as to financial Bills.

8 3. Provisions with respect to certain educational
grants.

Procedure generally,

84, Rules of procedure.

8 5, English to be used In Provincial Legislatures.

86. Restrictions on discussion in the Legislature.

8 7. Courts not to inquire into proceedings of the
Legislature-

1^8

The Government of India Act, 1935. (Contd.)

CHAPTER IV.
Legislative Powers of Goveroor.

8 8- Power of QoverBor to promulgate ordinances
during recess of Legislature.

89. Power of Governor to promulgate ordinances at
any time with respect to certain subjects.

90. Power of Governor in certain circumstances to
enact Acts.

CHAPTER V.

Excluded Areas and Partially Excluded Areas.

9 1. Excluded areas and partially excluded areas: —

( I ) In this Act the expressions " excluded area " and
'* partially excluded area " mean respectively such areas as
His Majesty may by Order in Council declare to be exclu-
ded areas or partially excluded areas.

The Secretary of State shall lay the draft of the Order
which it is proposed to recommend His Majest)' to make
under this subsection before Parliament within six months
from the passing of this Act.

( 2 ) His Majesty may at any time by Order in
Council —

(a) direct that the whole or any specified part of an
excluded area shall become, or become part of,
a partially excluded area;

(b) direct that the whole or any specified part of a
partially excluded area shall cease to be a

C,L. 22 169

The Indian Constitution Ch. VII

partially excluded area or a part of such an
area;

(d) on any alteration of the boundaries of a Pro-
vince, or the creation of a new Province,
declare any territory not previously included
in any Province to be, or to form part of, an
excluded area or a partially excluded area,

and any such Order may contain such incidental and
consequential provisions as appear to His Majesty to
be necessary and proper, but save as aforesaid the Order
in Council made under subsection (i) of this section shall
not be varied by any subsequent Order.

92. Administration of excluded areas and partially
excluded areas.

CHAPTER VI,
Provisions in case of Failure of Constitutional Machinery.

9 3. Power of Governor to issue Proclamations.

PART IV.
THE CHIEF COMMISSIONERS' PROVINCES.

9 4. Chief Commissioners' Provinces'. — (O The

following shall be the Chief Commissioners' Provinces, that
is to say, the heretofore existing Chief Commissioners'
Provinces of British Baluchistan, Delhi, Ajmer-Merwara,
Coorg and the Andaman and Nicobar Islands, the area

170

The Government of India Act, 1935. (Contd,)

known as Panth Piploda, and such other Chief Commis-
sioners' Provinces as may be created under this Act.

( 2 ) Aden shall cease to be part of India.

( 3 ) A Chief Commissioner's Province shall be admi-
nistered by the Governor-General acting, to such extent as
he thinks fit, through a Chief Commissioner to be appointed
by him in his discretion.

9 5, British Baluchistan.

96. The Andaman and Nicobar Islands.

9 7. Coorg.

9 8. Provisions as to police rules &c. and as to crimes
of violence intended to overthrow the Qovernment.

PART V

LEGISLATIVE POWERS.

CHAPTER I.
Distribution of Powers-

9 9. Extent of Federal and Provincial laws: — (l)

Subject to the provisions of this Act, the Federal Legis-
lature may make laws for the whole or any part of British
India or for any Federated State, and a Provincial Legislature
may make laws for the Province or for any part thereof.

( 2 ) Without prejudice to the generality of the powers
conferred by the preceding subsection, no Federal law shall,
on the ground that it would have extra territorial operation,
be deemed to be invalid in so far as it applies — \

(a) to British subjects and servants of the Crown
in any part of India; or

171

The Indian Constitution Ch. Vll

( ^ ) to British subjects who are domiciled in any
part of India wherever they may be; or

(d) in the case of a law with respect to a matter
accepted in the Instrument of Accession of a
Federated State as a matter with respect to
which the Federal Legislature may make laws
for that State, to subjects of that State wherever
they may be; or

(e) in the case of a law for the regulation or disci-
pline of any navi^l, military, or air force raised
in British India, to members of, and persons
attached to, employed with or following, that
force, wherever they may be.

Notes : — " The effect of a Federal Act upon a British
subject in a State, if the Act relates to a matter in respect to
which the State had not federated, would not, by virtue of the
Act, impose any duty on the S-tate."

100. Subject metier of Federal and Provincial laws: —

( I ) Notwithstanding anything in the two next succeeding
subsections, the Federal Legislature has, and a Provincial
Legislature has not, powder to make laws with respect to
any of the matters enumerated in List I in the Seventh
Schedule to this Act ( hereinafter called the " Federal Legis-
lative List" ).

(2) Notwithstanding anything in the next succeeding
subsection, the Federal Legislature, and, subject to the
preceding subsection, a Proviijcial Legislature also, have

172

The Government of India Act, 1935. (Contd.)

power to miike laws with respect to any of the matters
enumerated in List III in the said Schedule ( hereinaj'ter
called the " Concurrent Legislative List" ).

(3) Subject to the two preceding subsections, the
Provincial Legislature has, and the Federal Legislature has
not, power to make laws for a Province or any part tliereof
with respect to any of tlie matters enumerated in List II
in the said Schedule ( here-iujifter called the 'Proviu-.ial
Legislative List" ).

(4) The Federal Legislature has power to make l;- ws
with respect to matters enumerated in the Provincial Le ;is-
lative List except for a Province or any part thereof.

101. Extent of power to legislate for States: — Noth-
ing in this Act shall be construed as empowering the
Federal Legislature to make laws for a Federated SLite
otherwise than in accordance with the Instrument of
Accession of that State and any limitations contained therein.

102. Power of Federal Legislature to legislate R an
emergency is proclaimed: — (r) Notwithstanding anythiiir in
the preceding sections of this chapter, the Federal Legislature
shall, if the Governor-GeneraJ has in his discretion declared
by Proclamation ( in this A«t referred to as a " Proclama-
tion of Emergency " ) that a grave emergency exists whore-
by the security of India is threatened, whether by war or
internal disturbance, have poN^'^r to make laws for a I'ro-
vince or any part thereof with respect to any of the matters
enumerated in the Provincial Legislative List:

Provided that no Bill or amendment for the purposes
aforesaid shall be introduced or moved without the pre-

173

The Indian Constitution Ch. Vll

vious sanction of the Governor- General in his discretion,
and the Governor-General shall not give his sanction
unless it appears to him that the provision proposed to be
made is a proper provision in view of the nature of the
emergency.

(2) Nothing in this section shall restrict the power of
a Provincial Legislature to make any law which under this
Act it has power to make, but if any provision of a Provincial
law is repugnant to any provision of a Federal law which
the Federal Legislature has under this section power to
make, the Federal law, whether passed before or after the
Provincial law, shall prevail, and the Provincial law shall
to the extent of the repugnancy, but so long only as the
Federal law continues to have effect, be void.

(3) A Proclamation of Emergency —

(a) may be revoked by a subsequent Proclamation;

{b) shall be communicated forthwith to the Secre-
tary of State and shall be laid by him before
each House of Parliament; and

(c) shall cease to operate at the expiration of six
months, unless before the expiration of that
period it has been approved by resolutions of
both Houses of Parliament.

(4) A law made by the Federal Legislature which
that Legislature would not but for the issue of a Proclama-
tion of Emergency have been competent to make shall
cease to have effect on the .expiration of a period of six
months after the Proclamation has ceased to operate, except
as respects things done or omitted to be done before the
expiration of the said period.

174

The Government oe India A.ct, 1935. (Contd.)

103. Power of Federal Legislature to legislate for two
or more Provinces by consent.

104. Residual powers of legislation:— (i) The Gov-
ernor-General may by public notification empower either
the Federal Legislature or a Provincial Legislature to enact
a law with respect to any matter not enumerated in any of
the Lists in the Seventh Schedule to this Act, including a
law imposing a tax not mentioned in any such list, and the
executive authority of the Federation or of the Province,
as the case may be, shall extend to the administration of
any law so made, unless the Governor-General otherwise
directs.

(2) In the discharge of his functions under this sec-
tion the Governor-General shall act in his discretion.

10 5. Application of Naval Discipline Act to Indian
naval forces.

10 6. Provisions as to legislation for giving effect to
international agreements.— (i) The Federal Legislature
shall not by reason only of the entry in the Federal Legis-
lative List relating to the implementing of treaties and
agreements with other countries have power to make any
law for any Province except with the previous consent of
the Governor, or for a Federated State except with the
previous consent of the Rulei thereof.

(2) So much of any law as is valid only by virtus of
any such entry as aforesaid may be repealed by the
Federal Legislature and may, on the treaty or agreement
in question ceasing to have effect, be repealed as respects
any Province 01 State by a law of that Province or State,

The Indian Constitution Cn. VII

(3) Nothing in this section applies in relation to any
lav; which the Federal Legislature has power to make for
a Frovince or, as the case may be, a Federated State, by
virLue of any other entry in the Federal or the Concurrent
Legislative List as well as by virtue of the said entry.

107. inconsistency between Federal laws and Pro-
vif cial, or State, laws.— (1) l^ any provision of a Provincial
la\-:' is repugnant to any provision of a Federal law which
the Federal Legislature is competent to enact or to any
provision of an existing Indian law with respect to one of
tho matters enumerated in the Concurrent Legislative List,
thon, subject to the provisions of this section, the Federal
law, whether passed before or after the Provincial law, or,
as the case may be, the existing Indian law", shall prevail
and the Provincial law shall, to the extent of the repug-
nancy, be void.

(2) Where a Provincial law with respect to one of
th»3 matters enumerated in the Concurrent Legislative List
ccatains any provision repugnant to the provisions of an
earlier Federal law or an existing Indian law with respect
to that matter, then, if tlie Provincial law, having been
rofcerved for the consideration of the Governor-General
or for the signification a£ His Majesty's pleasure, has
received the assent of the Governor-General or of His
Majesty, the Provincial laW shall in that Province prevail,
bit nevertheless the Federal Legislature may at any
time enact further legislation with respect to the same
m itter:

Provided that no Bill or. amendment for making any
provision repugnant to any Provincial law, which,

17^

The Government of India Act, 1935. (Contd.)

having been so reserved, has received the assent of the
Governor- General or of His Majesty, shall be introduced
or moved in either Chamber of the Federal Legislature
without the previous sanction of the Governor-General in
his discretion.

(3) If any provision of a law of a Federated State is
repugnant to a Federal law which extends to that State,
the Federal law, whether passed before or after the law
of the State, shall prevail, and the law of the State shall,
to the extent of the repugnancy, be void.

CHAPTER II.

Restrictions on Legislative Powers.

10 8. Sanction of Governor=General or Qevernor re-
quired for certain legislative proposals: — (i) Unless the
Governor-General in his discretion thinks fi: to give his
previous sanction, there shall not be introduced into, or
moved in, either Chamber of the Federal Le^^islature, any
Bill or amendment which —

(a) repeals, amends or is repugnant to any provi-
sions of any Act of Parliament extending to
British India; or

( I) ) repeals, amends or is repugnant to any Governor-
General's or Governor's Act, or i.ny ordinance
prouiulgated in his discretion by the Governor-
Gensral or a Governor; or

(c) affects matters as respects which :he Governor-
General is, by or under this Act, required to
act in his discretion; or

C.L.23 177

The Indian Constitution Ch. VII

( d) repeals, amends or affects any Act relating to
any police force; or

(^ ) affects the procedure for criminal proceedings
in which European British subjects are con-
cerned; or

(/) subjects persons net resident in British India to
greater taxation thin persons resident in British
India or subjects L^ompanies not wholly con-
trolled and managed in British India to greater
taxation than companies wholly controlled and
managed therein; or

(^) affects the grant of relief from any Federal tax
on income in respect of income taxed or taxable
in the United Kingdom.

(2) Unless the Governor-General in his discretion
thinks fit to give his previous sanction, there shall not be
introduced into, or moved in, a Chamber of a Provincial
Leoislature anv Bill or amendment which —

(rt) repeals, amends, 0; is repugnant to an)' provi-
sions of any Act of Parliament extending to
British India; or

(b) repeals, amends or is repugnant to any Governor-
General's Act, or any ordinance promulgated in
his discretion by t!ie Governor-General; or

(c) affects matters as respects which the Governor-
General is by or under this Act, required to act
in his discretion; or

( d) aflects the procedure for criminal proceedings
in which European British subjects are con-
cerned;

The Government oP india Act, 1935. (ConUt.)

and unless the Governor of th3 Province in his discretion
thinks fit to give his previous sanction, there shall not be
introduced or moved any Bill or amendment which —

( i ) repeals, amends or is repugnant to any Gover-
nor's Act, or any ordinance promulgated in his
discretion by the Governor; or

(ii) repeals, amends cr affects ?ny Act relating to
any police force.

( 3 ) Nothing in this section affects the operation of any
other provision in this Act which requires the previous
sanction of the Governor-General or of a Governor to the
introduction of any Bill or the moving of any amendment.

109. Requirements as to sanctions and recommenda-
tions to be regarded as matter^; of procedure only.

1 1 0. Savings. — Nothing in this Act shall be taken —

(a) to affect the power of Parliament to legislate
for British India, or any part thereof; or

(^) to empower the Federal Legislature, or any
Provincial Legislature —

( i ) to make any law affecting the Sovereign or
the Royal Family, or the Succession to the
Crown, or the sovereignty, dominion or
suzerainty of the Crown in any part of
India, or the law of British nationality, or
the Army Act, the Air Force Act, or the
Xaval Discipline Act, or the law of Prize
or Prize courts; or

179

The Indian Constitution Ch. VII

( ii ) except in so far as is expressly permitted by
any subsequent provisions of this Act, to
make any law amending any provision of
this Act, or any Order in Council made
thereun der, or any rules made under this
Act by the Secretary of State, or by the
Governor-General or a Governor in his
discretion, or in the exercise of his indi-
vidual judgment; or

(iii) except in so far as is expressly permitted
by any subsequent provisions of this Act,
to make an}' law derogating from any
prerogative right of His Majesty to grant
special leave to appeal from any court.

CHAPTER HI.

Provisions with respect to Discrimination, &c-

111 British subjects domiciled in the United Kingdom.

1 1 2. Taxation:— ( i ) No Federal or Provincial law
which imposes any liability to taxation shall be such as
to discriminate against British subjects domiciled in the
United Kingdom or Burma or companies as incorporated,
whether before or after the passing of this Act, by or under
the laws of the United Kingdom or Burma, and any law
passed or made in contravention of this section shall, to
the extent of the contravention, be invalid.

113. Companies incorporated in the United King-
dom:— ( I ) Subject to the following provisions of this
chapter, a company incorporated, whether before or after
the passing of this Act, by or under the laws of the United

180

The Government of India Act, 1935. (Contd.)

Kingdom, and the members of the governing body of any-
such company and the holders of its shares, stock, debentures,
debenture stock or bonds and its officers, agents, and servants,
shall be deemed to comply with so much of any Federal
or Provincial law as imposes in regard to companies carry-
ing on or proposing to carry on business in British India
requirements or conditions relating to or connected wilh^

{a) the place of incorporation of a company or the
situation of its registered office, or the currency
in which its capital or loan capital is expressed;
or

( b ) the place of birth, race, descent, language,
religion, domicile, residence or duration of
residence members of the governing body of a
company, or of the holders of its shares, stock,
debentures, debenture stock or bonds, or of its
officers, agents or servants:

Provided that no company or person shall by virtue
of this section be deemed to comply with any such
requirement or condition as aforesaid if and so long as a like
requirement or condition is imposed by or under the law
of the United Kingdom in regard to companies incorporated
by or under the laws of British India and carrying on or
proposing to carry on business in the United Kingdom.

( 2 ) It and in so far as any total or partial exemption
from, or preferential treatment in respect of, taxation
imposed on companies by or under any Federal or Pro-
vincial law depends on compliance v/ith conditions as to
any of the matters mentioned in subsection (i) of this
section, any company incorporated by or under the laws

181

The Indian Constitution Ch. Vll

of the United Kingdom carrying on business in British
India shall be deemed to satisfy those conditions and
be entitled to the exemption or preferential treatment
accordingly, so long as the taxation imposed by or under
the laws of the United Kingdom on companies incorporated
by or under the laws of British India and carrying on busi-
ness in the United Kingdom does not depend on compliance
with conditions as to any of the matters so mentioned.

114. Companies incorporated in India-

lis. Ships and aircraft.

116- Subsidies for the encouragement of trade or
Industry.

117. Supplemental.

I 1 8. Power to secure reciprocal treatment by conven"
tion.

119. Professional and technical qualifications in
general.

120. Medical qualifications.

121. Officers of Indian Medical Service, &c.

PART VI.

ADMINISTRATIVE RELATIONS BETV/EEN FEDERATION,
PROVINCES AND STATES.

General.

122. Obligation of uniis and Federation: — ( i ) The

executive authority of every Province and Federated State
shall be so exercised as to secure respect for the laws of
the Federal Legislature which apply in that Province or
State.

\%Z

The Government of India Act, 1935 (Contd.)

( 2 ) The reference in subsection (i) of this section to
laws of the Federal Legislature shall, in relation to any
Province, include a reference to any existing Indian law
applying in that Province.

( 3 ) Without prejudice to any of the other provisions
of this Part of this Act, in the exercise of the executive
authority of the Federation in any Province or Federated
State regard shall be had to the interests of that Province
or State.

Note : — Subsection (3) is an addition in the Act.

12 3. Qovernor-Qeneral may require Governors to
discharge certaif) functions as his agents.

Note : — This section is an addition in the Act.

124. Power of Fedeiation to confer powers, «S:c. on
Provinces and States in certain cases: — ( i ) Notwith-
standing anything in this Act, the Governor General ma}',
with the consent of the Government of a Province or the
Ruler of a Federated State, entrust either conditionally or
unconditionally to that Government or Ruler, or to their res-
pective officers, functions in relation to any matter to which
the executive authority of the Federation extends.

( 2 ) An Act of the Federal Legislature may, notwith-
standing that it relates to a matter with respect to which
a Provincial Legislature has no power to make laws,
confer powers and impose duties upon a Province or officers
and authorities thereof.

( 3 ) An Act of the the Federal Legislature which
extends to a Federated State may confer powders and impose

183

The Indian Constitution Ch. VII

duties upon the State or officers and authorities thereof to
be designated for the purpose by the Ruler.

(4) Where by virtue of this section powers and duties
have been conferred or imposed upon a Province or Fede-
rated State or officers or authorities thereof, there shall be
paid by the Federation to the Province or State such sum
as may be agreed, or, in default of agreement, as may be
determined by an arbitrator appointed by the Chief Justice
of India, in respect of any extra costs of administration
incurred by the Province or State in connection with the
exercise of those powers and duties.

12 5- Administration of Federal Acts in Indian States:-

( I ) Notwithstanding anything in this Act, agreements
may, and, if provision has been made in that behalf by the
Instrument of Accession of the State, shall, be made between
the Governor-General and the Ruler of a Federated State
for the exercise by the Ruler or his officers of functions in
relation to the administration in his State of any law of the
Federal Legislature which applies therein.

(2) An agreement made under this section shall
contain provisions enabling the Governor-General in his
discretion to satisfy himself, by inspection or otherwise,
that the administration of the law to which the agreement
relates is carried out in accordance with the policy of the
Federal Government and, if he is not so satisfied, the
Governor-General, acting in his discretion, may issue snch
directions to the Ruler as he thinks fit.

(3) All courts shall take judicial notice of any agree-
ment made under this section.

184

The Government of India Act, 1935, (Contd.)

126, Control of Federation over Province io certain
cases.

12 7. Acquisition of land for Federal purposes

128. Duty of Ruler of a State as respects Federal sub-
jects:—(0 The executive authority of every Federated
State shall be so exercised as not to impede or prejudice
the exercise of the executive authority of the Federation
so far as it is exercisable in the State by virtue of a law of
the Federal Legislature which applies therein.

(2) If it appears to the Governor-General that the
Ruler of any Federated State has in any way failed to fulfil
his obligations under the preceding subsection, the Govern-
or-General, acting in his discretion, may after considering
any representations made to him by the Ruler issue such
directions to the Ruler as he thinks fit :

Provided that, if any question arises under this section
as to whether the executive authority of the Federation
is exercisable in a State with respect to any matter or as
to the extent to which it is so exercisable, the question may,
at the instance either of the Federation or the Ruler, be
referred to the Federal Court for determination by that
Court in the exercise of its original jurisdiction under this
Act.

Notes on Sections 124 to 128: — The Act provides th©
follo-vring methods of Local Administration; (1) It may be
entrusted conditionally or unconditionally to the Ruler or his
Officers by the Governor-General with the Ruler's consent (2) An
Act of the Federal Legislature may confer powers and impose
duties on officers and authorities of the State to be designated

C.L.24 18^

The Indian Constitution Ch. VII

for the purpose by the Ruler. The Act may very likely proT.de,
if necessary, for the v ithdrawal of such OflScers from the control
of the State unless otherwise provided for (3) "Provision mar be
made by agreement. Agreements may, and if provision has been
made in the Instrument of Accession shall, be made between
the G~G and the Ruler regarding administration." In such
cases, there is a provision for inspection. Unless there U a
high standard of administrative efficiency, local administraT.ion
cannot generally be claimed by the States (4) The last method
is under Section 6 (2) by which reservations of executive
authority may be made.

In the Princes' Note it was stated:-"Accepting the sugges-
tion of the Joint Select Committee with regard to the Pedaral
Court, clause 201 has provided that the Federal Court, ii: it
requires the aid of the civil or judicial authorities in a Fode-
rated State, shall cause a letter of request in that behalf to be
sent to the Ruler of that State. Cannot a similar letter of
request be also sent to the Ruler whose system of administration
may be inadequate for the federal objects in view? If diploma-
tic action or friendly persuasion has been known till now to
have achieved its end, there is little justification to substitute
in their place the sending of directions and instructions for
the improvement of the administration of a State, even in a
department dealing with a non-federal subject, simply becp.use
the exercise of the executive authority of the Federation is felt
to be impeded or prejudicially affected."

To this, Sir Sao u el Hoare replied;— "Theprocedure which
the Note suggests of "Letters of Request" does not appear
suitable. That method was adopted in clause 201 in order to
meet the special relations in which the Federal Court stands
towards a State Hi^ h Court, which find no parallel In the
relations of the Gcve nor-General to the Ruler of a State." -

The Government of India Act, 1935. (Contd.)

The words "in accordance with the policy fit" in

Section 125 (2) are additions in the Act as also 125 (3). The

words "so far as it is there n" in Section 128 n)

anc the proviso in 128 (2), are additions in the Act. In the
Act, the words "or has failed to maintair a system of adminis-
tration adequate for the purposes of an} Act of the Federal
Loj;islature, the administration of which has been entrusted to
him or to his officers" were used in the Bill in the correspond-
ing clause with reference to the Ruler of a Federated Stats
under the duty of a State as respects Federal subjects in what
has now become law under Section 128 (2). But the Act has
omitted the words found originally in the Bill.

Broadcasting,
129. Broadcasting.

Interference with Water Supplies.
13 0, Complaints as to interference with water supp-

lies.

13 1. Decision of complaints.

132. Interference with water supplies of Chief Com»
missioner's Province.

133. Jurisdiction of Courts excluded.

13 4, Ruler of State may exclude application of pro-
visions as to water supply: — The provisioi s contained in this
Part of this Act with respect to interference with water supp-
lies shall not apply in relation to any Federated State the
Ruler whereof has declared in his Instrument of Accession
that those provisions are not to apply in relation to his
State.

187

The Indian Constitution Ch. VII

Inter-Provincial Co'Operation.

13 5. Provisions with respect to an luter-Provinclai
Council.

PART VII
FINANCE, PROPERTY, CONTRACTS AND SUITS.

CHAPTER I.

Finance.

Disinbiitio7i of Revenues between the Federation
and the Federal Units.

13 6. Meaning of " revenues of Federation '' and " re<^
venues of Province."

13 7. Certain succession duties. Stamp duties, termi-
nal taxes and taxes on fares and freights;— Duties in respect
of succession to property other than agricultural land, such
stamp duties as are mentioned in the Federal Legislative
List, terminal ta.^es on goods or passengers carried by
railway, or air, and taxes on railway fares and freights,
shall be levied and collected by the Federation, but the net
proceeds in any financial year of any such duty or tax,
except in so far as those proceeds represent proceeds attri-
butable to Chief Commissioners' Provinces, shall not form
part of the revenues of the Federation, but shall be assigned
to the Provinces and to the Federated States, if any, within
which that duty or tax is leviable in that year, and shall be
distributed among the Provinces and those States in accor-
dance with such principles of distribution as may be for-
mulated by Act of the Federal Legislature:

188

The Government of India Act, 1935. (Contd.)

Provided that the Federal Legislature may at any
time increase any of the said duties or taxes by a sur-
charge for Federal purposes and the whole proceeds of any
such surcharge shall form part of the revenues of the Fede-
ration.

1 3 8. Taxes on income:-(i) Taxes on income other than
agricultural income shall be levied and collected by the
Federation, but a prescribed percentage of the net proceeds
in any financial year of any such tax, except in so far as
those proceeds represent proceeds attributable to Chief
Commissioners' Provinces or to taxes payable in respect of
Federal emoluments, shall not form part of the revenues
of the Federation, but shall be assigned to the Provinces
and to the Federated States, if any, within which that tax
is leviable in that year, and shall be distributed among
the Provinces and those States in such manner as may be
prescribed:

Provided that—

{a) the percentage originally prescribed uuder this
subsection shall not be increased by any subse-
quent Order in Council;

{b) the Federal Legislature may at any time in-
crease the said taxes by a surcharge for Federal
purposes and the whole proceeds of any such
surcharge shall form part of the revenues of the
Federation.

(2) Notwithstanding anything in the preceding su1>
section, the Federation may retain out of the moneys
assigned by that subsection to Provinces and States —

189

The Indian CoNsxitutioN Ch. Vil

(a) in each year of a prescribed period such sum as
may be prescribed; and

( ^ ) in each year of a further prescribed period a
sum less than that retained in the preceding
year by an amount, being the same amount in
each year, so calculated that the sum to be
retained in the last year of the period will be
equal to the amount of each such annual re-
duction:

Provided that —

( i ) neither of the periods originally prescribed
shall be reduced by any subsequent Order in
Council;

(ii) the Governor-General in his discretion may in
any year of the second prescribed period direct
that the sum to be retained by the Federation
in that year shall be the sum retained in the
preceding year, and that the second prescribed
period shall be correspondingly extended, but
he shall not give any such direction except after
consultation with such representatives of Fede-
ral, Provincial and State interests as he may think
desirable, nor sliall he give any such direction
unless he is satisfied that the maintenance of
the Federal Government requires him so to
do.

(3) Where an Act of the Federal Legislature imposes
a surcharge for Federal purposes under this section, the Act
shall provide for the payment by each Federated State in
which taxes on income are not leviable by the Federation

190

The Government of India Act, 1935. (Contd.)

of a contribution to the reveniios of the Federation assessed
on such bapis as may be presc ribed with a view to secur-
ing that 1he contribution sliall be the equivalent, as
near as may be, of the net proceeds which it is estimated
would resu't from the surcharge if it were leviable in that
State, and llie State shall become liable to pay that con-
tribution accordingly.

(4) In this section-^

" taxes on income " does not include a corporation tax;

" prescribed " means prescribed by His Majesty in
Council; and

" Federal emoluments " includes all emoluments and
pensions payable out of the revenues of the Fede-
ration or of the Federal Railway Authority in
respect of which income-tax is chargeable.

13 9. Corporation tax:— (i) Corporation tax shall
not be levied by the Federation in any Federated State until
ten years have elapsed from the establishment of the
Federation.

( 2 ) Any Federal law providing for the levying of
corporation tax shall contain provisions enabling the Ruler
of any Federated State in which the tax would otherwise
be leviable to elect that the tax shall not be levied in the
State, but that in lieu thereof there shall be paid by the
State to the revenues of the Federation a contribution as
near as may be equivalent to the net proceeds which it is
estimated would result from the tax if it were levied in
the State.

191

The Indian Constitution Ch. VII

( 3 ) Where the Ruler of a State so elects as aforesaid,
the officers of the Federation shall not call for any infor-
mation or returns from any corporation in the State, but
it shall be the duty of the Ruler thereof to cause to be
supplied to the Auditor-General of India such information
as the Auditor-General may reasonably require to enable
the amount of any such contribution to be determined.

If the Ruler of a State is dissatisfied with the determi-
nation as to the amount of the contribution payable by
his State in any financial year, he may appeal to the
Federal Court, and if he establishes to the satisfaction of
that Court that the amount determined is excessive, the
Court shall reduce the amount accordingly and no appeal
shall lie from the decision of the Court on the appeal.

14 0. 5alt duties, excise duties and export duties: — (t)

Duties on salt, Federal duties of excise and export duties
shall ba levied and collected by the Federation, but, if an
Act of theFederal Legislature so provides, there shall be paid
out of the reveneus of the Federation to the Provinces and
to the Federated States, if any, to which the Act imposing
the duty extends, sums equivalent to the whole or any part
of the net proceeds of that duty, and those sums shall be
distributed among the Provinces and those States in accord-
ance with such principles of distribution as may be formu-
lated by the Act.

( 2 ) Nothwithstanding anything in the preceding sub-
section, one-half, or such greater proportion as His Majesty
in Council may determine, of the net proceeds in each year
of any export duty on jute or jute products shall not form
part of the revenues of the Federation, but shall be assigned

The Government of India Act, 1935. (Contd.)

to the Provinces or Federated States in which jute is grown
in proportion to the respective amounts of jute grown
therein.

14 K Prior sanction of Qovernor=QeneraI required to
Bills affecting taxation in which Provinces are interested^ —

(i) No Bill or amendment which imposes or varies any tax
or duty in which Provinces are interested, or which varies
the meaning of the expression " agricultural income " as
defined for the purposes of the enactments relating to Indian
income tax, or which affects the principles on which under
any of the foregoing provisions of this chapter moneys are
or may be distributable to Provinces or States, or which
imposes any such federal surcharge as is mentioned in the
foregoing provisions of this chapter, shall be introduced or
moved in either Chamber of the Federal Legislature except
with the previous sanction of the Governor-General in his
discretion.

(2) The Governor-General shall not give his sanction
to the introduction of any Bill or the moving of any amend-
ment imposing in any year any such Federal surcharge
as aforesaid unless he is satisfied that all practicable
economies and all practicable measures for otherwise in-
creasing the proceeds of Fe.leral taxation or the portion
thereof retainable by the Federation would not result in the
balancing of Federal receipts and expenditure on revenue
account in that year,

14 2. Grants from Federation to certain Provinces,

14 3. Savings.

14 4. Calculation of "net proceeds", &c.

Notes on Sections 136-144 : — The Ministers' Committee
Report stated, "The Committee realise that the general and

CL. 25 193

The Indian Constitution Ch. VII

fundamental condition of a balanced budget in the case of the
Central and Provincial Governments cannot be specifically en-
acted in the Statute, liut they wish to urge with emphasis that
the other two conditions precedent to the adhesion of the States
to the financial scheme already specified should be so incorpo-
rated Some States like Kashmir, Bhopal and Indore

have definitely declined to accept the liability to pay the corpo-
ration tax or an equivalent."

The Princes' Note stated, "The Princes have, for instance,
from the very outset set their face against any direct tax, and
have only agreed to be suVijeetcd to certain modes of indirect

taxation as their contribution to tlio Federal fisc

The Bill ought to make clear distinction between ordinary
financial stress and emergencies like wars or years of continu-
ous and chronic financial deficits. To meet the former occasion
no State ought to be called on to pay any surcharge or surplus
taxes or cash contributions of any kind, Such occasions of
stress ought to be bridged over liy temporary adjustments and
stringent retrenchment of expenditure."

As regards emergency, the States' Delegation had stated,
" Jf at any time even during the period of the first 10 years
the financial position becomes such that the Federal expenditure
cannot be met from the sources of revenues permissible to the
Federal Government after all possible economies had been
effected and the sources of indirect taxation open to the
Federation exhausted, and the return of income-tax to the
Provinces suspended, a state of emergency will be held to have
come into being, when all Federal units will make contributions
to the Federal fisc on an equitable and prescribed basis."

The Princes' iiote stated, " The States would prefer to
have cash contributions left to the free volition of the States.
Such voluntary aid from Indian Rulers has not failed in the

194

The Government of India Act, 1935. (Contd.)

pist during wars and other occasions of service tu the Empire.
If, hort-ever, such voluntary contributions are held to be
insuthcient for the safety of financial forecasts, the Princes
would prefer enhancement in the incidence of permissible taxes
as, for instance excise duties on articles like sugar, matches
and tobacco, and other commodities manufactured in the
country, to be oar-marked for meeting occasions of grave finan-
cial stress. The States had agreed to excises on tobacco and
matches as Federal sources of revenue permissible in severe
emergencies. No provision has been made in the Bill in
in regard to them as such."

To this Sir Samuel Hoare replied, "The States' accession
to the subject of Corporation tax would, of course, be subject
to conditions or limits to bo expressed in the Instrument of
Accession." After referring to the provision regarding commu-
tation, and the expiration of 10 years now found embodied
in the Act, he wrote, "Any further conditions could be consi-
dered in connection with the negotiations for the Instruments
of Accession."

''Apart form this qualification and subject to the special
provisions relating tu surcharge or taxes on income, no provi-
Rion is made for the imposition of direct taxation by the
Federation in a State, unless at some future date some States
may desire to accede to taxation entries within items 46-56 of
the Federal Legislative List (i. e. items i8 to 51 and 53 to 59
of the List in the Act). This is admittedly an unlikely devel-
opment at any near date, but if in future any State should
desire to take such a course, there is no reason why provision
should not be made of admitting it to corresponding benefits...

The question of attachment of conditions to acceptance

of item i3 of the Federal Legislative List ( i. e, item -iS of the
List in the A^ct) can, as in other instances, be considered in

195

The Indian Constitution Ch. Vll

connection with the negotiation of the terms of the Instrument
vi Accession; but neither in the White Paper nor in the
recommendations of the Joint Select Committee can any
support be found fur tlio proposal that federal excises should
be regarded as in the nature of emergency taxes."

As regards internal customs dutie?, the J. P. C. Report
stated, "It is greatly to be desired that States adhering to the
Federation, should, like other Provinces, accept the principle
of internal freedom fur trade in India and that the Federal
Government alone should have the power to impose tariffs and
other restrictiuns on trade. Many States, however, derive
substantial revenues from customs duties levied at their
frontiers on gotds entering the State from other parts of India

We recognize that it is impossible to deprive

States of revenue upon which they depend for balancing their
budgets and that thoy must be free tu alter existing rates of
duty to suit varying conditions. But internal customs barriers
are in principle inconsistent with the ^freedom of interchange
of a fully developed Federation and we are strongly of ihe
opinion that every effort should be made to substitute other
forms of taxatiun for these internal customs. The change
must, uf course, be left to the discretion of the States concerned
as alternative sources of revenue become available. But in
any case we consider that the accession of a State to the Fede-
ration should imply its acceptance of the principle that it will
not set up a barrier to free interchange so formidable as to
constitute a throat to the future of the Federation; and, if there
should be any danger of this, wo think that the powers entrust-
ed to the Governor-General in his discretion would have to be
brought to boar upon the States.

The Crown and the Sinks,

i4S. Expenses of Ihc Crown in connection with Indian
States.

106

The Government of India Act 1935. (Contd.)

146. Payments from or by Indian States.

Note:- This refers to cash contributions and payments in
respect of loans.

14 7. Rembsion of States contributions: — (i) Subject
to the provisions of subsection (3) of this section, His
Majesty may, in signifying his acceptance of the Instrument
of Accession of a State, agree to remit over a period not
exceeding twenty years from the date of the accession of
the State to the Federation any cash contributions payable
by that State.

( 2 ) Subject as aforesaid, where any territories have
been voluntarily ceded to the Crown by a Federated State
before the passing of this Act —

(a) in return for specific military guarantees, pr

( Z* ) in return for the discharge of the State from
obligations to provide military assistance,

there shall, if His Majesty, in signifying his acceptance
of the Instrument of Accession of that State, so directs,
be paid to that state, but in the first-mentioned case on
condition that the said guarantees are waived, such sums
as in the opinion of His Majesty ought to be paid in respect
of any such cession as aforesaid.

(3) Notwithstanding anything in this section —

(a) every such agreement or direction as aforesaid
shall be such as to secure that no such remis-
sion or payment shall be made by virtue of
the agreement or direction until the Provinces
have begun to receive moneys under the

197

The Indian Constitution Ch. VII

section of this chapter relating to taxes on
income, and, in the case of a remission, that
the remission shall be complete before the
expiration of twenty years from the date of
the accession to the Federation of the State
in question, or before the end of the second
prescribed period referred to in subsection (2)
of the said section, whichever first occurs; and

(^) no contribution shall be remitted by virtue of
any such agreement save in so far as it exceeds
the value of any privilege or immunity enjoyed
by the State; and

(c) in fixing the amount of any payments in respect
of ceded territories, account shall be taken of
the value of any such privilege or immunity.

(4) This section shall apply in the case of any cash
contributions the liability for which has before the passing
of this Act been discharged by payment of a capital sum or
sums, and accordingly His Majesty may agree that the
capital sum or sums so paid shall be repaid either by ins-
talments or otherwise, and such repayments shall be deemed
to be remissions for the purposes of this section.

(5) In this chapter "cash contributions" means—

(a) periodical contributions in acknowledgment of
the suzerainty of His Majesty, including con-
tributions payable in connection wn"tb any
arrangement for the aid and protection of a
State by His MajeDt}^ and contributions in
commutation of any obligation of a State to

198

The Government of India Act, 1935. (Contd.)

provide military assistance to Mis Majesty, or
, ill respect of tlie maintenance by His Majesty
of a special force for service in connection
with a State, or in respect of tlie maintenance
of local military forces or police, or in respect
of the expenses of an agent;

(d) periodical contributions fixed on the creation or
restoration of a State, or on a re-grant or in-
crease of territory, including annual payments
for grants of land on perpetual tenure or for
equalisation of the value of exchanged territory;

(c) periodical contributions formerly payable to
another State but now payable to His Majesty
by right of conquest, assignment or lapse.

(6 ) In this chapter "privilege or immunity" means
any such right, privilege, advantage or immunity of a finan-
cial character as is hereinafter mentioned, that is to say —

(a) rights, privileges or advantages in respect, of or
connected with, the levying of sea customs or
the production and sale of untaxed salt;

( b ) sums receivable in respect of the abandonment
or surrender of the right to levy internal
customs duties, or to produce or manufacture
salt, or to tax salt or other commodities or
goods in transit, or sums receivable in lieu of
grants of free salt;

(c) the annual value to the Ruler of any privilege
or territory granted in respect of the abandon-
ment or surrender of any such right as is men-
tioned in the last preceding paragraph;

199

The Indian Constitution Ch. VII

(^) privileges in respect of free service stamps or
the free carriage of State ■ mails on government
business;

(e) the privilege of entry free from customs duties
of goods imported by sea and transported in
bond to the State in question; and

(/) the right to issue currency notes,
not being a right, privilege, advantage or immunity surren-
dered upon the accession of the State, or one which, in the
opinion of His Majesty, for any other reason ought not to be
taken into account for the purposes of this chapter.

(7) An Instrument of Accession of a State shall not
be deemed to be suitable for acceptance by His Majesty,
unless it contains such particulars as appear to His
Majesty to be necessary to enable due effect to be given
to the provisions of this and the next but one succeeding
sections, and in particular provision for determining from
time to time the value to be attributed for the purposes
of those provisions to any privilege or immunity the value
of which is fluctuating or uncertain.

14 8. Certain payments to Federated States, &c., to be
charged on Federal revenues. — Any payments made under
the last preceding section and any payments heretofore
made to any State by the Governor-General in Council or
by any Local Government under any agreements made
with that State before the passing of this Act, shall be
charged on the revenues of the Federation or on the
revenues of the corresponding Province under this Act, as
the case may be.

149. Value of privileges and immunities to be set off
against share of taxes, &c., assigned to Federated States.—

200

The Government of India Act, 1935. (Contd.)

Where under the foregoing provisions of this chapter there
is made in any year by the Federation to a Federated
State any payment or distribution of, or calculated by
reference to, the net proceeds of any duty or tax, the value
in and for that year of any privilege or immunity enjoyed
by that State in respect of any former or existing source
of revenue from a similar duty or tax or from goods of the
same kind, being a privilege or immunity which has not
been otherwise taken into account, shall, if and in so far
as the Act of the Federal Legislature under which the
.payment or distribution is made so provides, be set off
against the payment or distribution.

KoTEs on Soctions 147 to 149 : — The word "periodical" in
Subsection 5 of Section 147 is an addition in the Act. In Sub-
section 6, the provision under (d) is an addition in the Act.

The States' Ministers' Note stated, "The Committee have-
come to the conclusion that the definition of the term "privilege
or immunity" is neither accurate nor acceptable to the States
as a whole, that some States in particular raise the strongest
possible objection to the description, as a privilege or immunity,
of the items referred to in Subclauses (a) to (e) ( i. e. roughly
items a, b, d, e, and f in Section 147 (6) of the Act), and
contend that in most cases these items cannot be defined as
concessions, privileges or immunities, many of them having a
liistorical origin and most of them being the result of some
specific agreements, compromises or contracts having the
character and incidence of reciprocal obligations."

The Princes' Note contained the following remark : —

"?klany of the financial advantages now enjoyed by the
States are not at all gratuitous benefits or immunities; they
arise under agreements and have been paid for and purchased

c.L.aa 201

The Indian Constitution Ch. Vll

for value. Moreover, if any surplus revenue from excise is to
be refunded to the States, there is absolutely no justification
for any set-off as claimed by clause U7 of the Bill. If surplus
taxation is refunded, it surely ought to benefit the people on
whom the incidence of tax mainly falls; there is no reason to
have it set off against the so-called and fancied immunities,
which have a peculiar historical origin and justification of their
own and cannot be so unfairly withdrawn.

While dealing with cash contributions, payment of
tribute, and ceded territories, the Bill has entirely lost sight
of yet another kind of contribution the States have been making
towards Federal finance, which deserves proper recognition.
The Federal Finance Committee at the Round Table Confer-
ences had enumerated the " contributions in kind made for
defence by the maintenance of State Forces. " These States
forces have now been embodied in the Indian Army as distinct
units, ear-marked for service abroad as well as for internal
security, and if thoy are maintained at State expense, their
annual charges ought to be distinctly recognized as contribu-
tions made by the States towards the Federal fisc and allowances
made for them " ( See item No. 1 of the Federal Legislative
List ).

About this Sir Samuel Hoare wrote;- " The definition
of privileges and immunities in subsection (6) is b%sed upon the
Report of the Davidson Committee. The effect of this sub-
clause is of the nature of a protection to the States rather than
the reverse, since it limits within the range so defined the
matters which the Crown may, when the Instruments of Acce-
ssion are being negotiated, require a State to acknowledge as
financial privileges or immunities. Without such a definition
the possible range of such privileges or immunities would be
extended. "

202

The Government of India Act, 1935. (Contd.)

Miscellaneous Financial Provisions.

15 0. Expenditure defrayable out of Indian revenues. —

(i) No burden shall be imposed on the revenues of the
Federation or the Provinces except for the purposes of India
or some part of India.

15 1. Provisions as to the custody of public money*.

152. Exercise by Governor-Genefal of certain powers
with respect to Reserve Bank.

Notes on Section 152 : — The Reserve Bank of India Act
was passed in 1934:. " It will be the business of the Bank to
regulate the issue of Bank-notes and the keeping of reserves
with a view to securing monetary stability in British India and
generally to operate the currency and credit system of the
country to its advantage. The original share capital of the
Bank is five crores of rupees divided into shares of one hundred
rupees each. Separate registers of share-holders are to be
maintained ai Bombay, Calcutta, Delhi, Madras and Rangoon.
The general superintendence and direction of the affairs and
business of the Bank are entrusted to a Central Board of
Directors, consisting of a Go\ernor and two Deputy Governors
to be appointed by the Governor-General in Council, four
Directors to be nominated by the Governor-General in Council,
eight Directors to be elected on behalf of the share-holders on
the various registers, and one Government official to be nomi-
nated by the Governor-General in Councih fEddy and Lawton
in "India's Kew Constitution." )

15 3. Previous sanction of Governor'General to legisla-
tion with respect to Reserve Bank, currency and coinage. —

No Bill or amendment which affects the coinage or currency
of the Federation or the constitution or functions of the
Reserve Bank of India shall be introduced into ol" moved

203

The Indian Constitution Ch. VII

in either Chamber of the Federal Legislature without t'le
previous sanction of the Governor-General in his dis-
cretion.

154. Exsniption of certain public property from
taxation.

15 5. Exemption of provincial Governments atid
Rulers of Federated States in respect of Federal taxation.

Notes : — This Soction is new. There was no correspond-

ing provision in the Bill. In respect of the Clause in

the Bill providing for exemption of Federal property from

taxation in a Province or State, the Princes' Note contained

the following remark: — "Pkeciprocity demands that Statas'

properties like Government Securities should be exempted from

income-tax and other forms of taxation." To this Sir Samuel

Hoare replied, "It would not be possible to exempt from local

taxation all property owned by a State in British India, but

His Majesty's Government are willing to consider the insertion

of provisions in the Bill to prevent the abolition at any time

of the existing immunity from taxes and moneys invested in

Government Securities by a State Durbar or by a Provincial

Government".

I 5 6. Adjustment in respect of certain expenses and
pensions.

1 57. Duty of Federation and Provinces to supply St;c-
retary of State with funds.

15 8. Provisions as to relation of Burma monetary
system with India.

159, Relief in respect of tax on income taxable both
in India and Burma.

160. Provisions as to customs duties on India^Burma
trade.

The Government of- India Act, 1935. (Contcl.)

CHAPTER II.
Boirowiog and Audit.

Borrowing.

16 1. Cessation of borrowing by Secretary of State in
Council.

Note: — See Section 315 (1) below.

162. Borrowing- by Federal Governnii:nt.

16 3. Borrowing by Provincial (iovernments.

16 4. Loans by Federal Government to Federated States.

16 5. Application of Colonial Stock Acts to stocks issued
by Federation.

Audit and Accoimis,

16 6. Auditor-Genera! of India.

16 7. Provincial Auditor=General.

I 6 3. Power of Auditor^Generai of India to give directions
as to accounts.

16 9. Audit reports.

1 7 0. Auditor of Indian Home Accounts.

17 1. Audit of accounts relating to the discharge of
the functions of the Crown in relation to Indian States.

CHAPTER III.

Property, Contracts, Liabilities and Suits.

17 2. Vesting of lands and buildings.
17 3. Provisions as to other property.

See notes on S. 185.

205

The Indian Constitution Ch. Vll

17 4. Properly accruing by escheat or lapse, or as
bona vacantia.

17 5. Power to acquire property and to make con-
tracts, &c.

17 6. Suits and proceedings.— (i) The Federation
may sue or be sued by the name of the Federation of India
and a Provincial Government may sue or be sued by the
name of the Province, and, without prejudice to the
subsequent provisions of this chapter, may, subject to any
provisions which may be made by Act of the Federal or a
Provincial Legislature enacted by virtue of powers conferred
on that Legislature by this Act, sue or be sued in relation to
their respective affairs in the like cases as the Secretary of
State in Council might have sued or been sued if th's Act
had not been passed.

17 7. Existing contracts of Secretary of 5tate in
Council.

17 8. Special provisions as to existing loans, guaran-
tees and other financial obligations.

1 7 9. Legal proceedings as to certain matters.

1 80. Contracts in connection with functions of Crown
in its relations with Indian Spates.

20G

ClIAPTKR VIII.

THE GOVERNMENT OF INDIA ACT, 1935. (Contd).

PART VIII.
THE FEDERAL RAILWAY AUTHORITY.

181. Executive authority in respect of railways to be
exercised by Federal Railway Authority.

182. Composition, &c. of Railway Authority. — (i)

Not less than three-sevenths of the members of the Autho-
rity shall be persons appointed by the Governor-General
in his discretion, and the Governor-General shall in his
discretion appoint a member of the Authority to be the
President thereof.

1 8 3. Directions and principles to be observed by Rail-
way Authority:— (i) Tha Authority in discharging their
functions under this Act shall act on business principles, due
regard being had by them to the interests of agriculture,
industry, commerce and the general public, and in par-
ticular shall make proper provision for meeting out of
their receipts on revenue account all expenditure to which
such receipts are applicable under the provisions of this
Part of this Act.

184. Conduct of business between Railway Authority
and Federal Qovernment.

185. Acquisition and sale of land, contracts and work-
ing agreements-

Notes : — The Princes' l^ote contained the following

remark: — "In the matter of railways also the Indian States
are being asktd to waive their jurisdiction over lands
ceded only for construction of railways, and though retrocession
of such jurisdiction is being demanded during the last 15 years,
the claim has not yet been mot. There is ' o reason frhy the

207

The Indian Constitution Ch. Vlll

Courts in a British Indian Province should exercise such
jurisdiction in the territories of Indian States simply because
they are traversed by a railway. This cession of jurisdiction
over railway lands, lest it becomes perpetual and under Clause
169 of Bill (corresponding- in some respects to. Section 173) is
claimed by way of succession by future federal or Provincial

Governments, should be retroceded without further delay

Retrocession of jurisdiction over railway lands should precede
accession to the federation and prevent the descent by way of
succession of such jurisdiction from the Governor-General in
Council to the Federal Governinent".

18 6. Finance of the Railway Authority:— ( i ) The

Authority shall establish, maintain and control a fund
(which shall be known as the "Railway Fund") and all
moneys received by the Authority, whether on revenue
account or on capital account, in the discharge of their
functions and all moneys provided, whether on revenue
account or on capital account, out of the revenues of the
Federation to enable them to discharge those functions shall
be paid into that Fund, and all expenditure, whether on
revenue account or on capital account, required for the dis-
charge of their functions shall be defrayed out of that Fund:

Provided that nothing in this subsection shall prevent
the Authority from establishing and maintaining separate
provident funds for the benefit of persons who are or have
been employed in connection with railways.

187. Provisions as to certain obligations of the Rail=
way Authority.

188. investment of funds of Railway Authority.

189. special provisions as to certain existing funds.

190. Audit and annual reports.

208

. The Government of India Act, 1935. (Contd.)

19 1. Railway Rates Committee: — The Governor-Gene-
ral may from time to time appoint a Railway Rates Committeel
to give advice to the Authority in connection \vith any
dispute between persons using, or desiring to use, a railway
and the Authority as; to rates or traffic facilities which he
may require the Authority to refer to the committee.

19 3. Bills and amt^ndments for regulating rates and
fares to require recommendation of Qovernor=QeneraI.

19 3. Obligation of Railway Authority and Federated
States to afford mutual traffic facilities and to avoid unfair
discrimination, &c.

19 4. Appeal by State to Railway Tribunal from certain
directions of Railway Authority:— If the Authority, in the
exercise of any executive authority of the Federation in
relation to intercharge of traffic or maximum or minimum
rates and fares or station or service terminal charges, give
any direction to a Federated State, the State may complain
that the direction ciscriminates unfairly against ihe rail-
ways of the State or imposes on the State an obligation to
afford facilities which are not in the circumstances reasonable,
and any such complaint shall be determined by the
Railway Tribunal,

Notes on Sections 193 and 194: : — The Princes' Note
contained the following remark, "They (the States) could not
agree to subordinate the interests of their own railways to the
dictates of another railway authority on which they had no
standing. The statutory Railway Authority can only be one
co-ordinate with and not superior to their own Railway Board.
As regards the points agreed to be federal, the Federal Railway
Tribunal ought also to be one available to both sides and not
one to which the Railway authorities of the State had always

C.L27 209

The Indian Constitution Ch. VIII

to take recourse, like a plaintiff, with the burden of proof
placed on their shoulders.''

19 5. Construction and reconstruction of railways.

19 6. Railway Tribunal:— (i) There shall be a Tribunal
(in this Act referred to as "the Railway Tribunal") consist-
ing of a President and two other persons to be selected to
act in each case by the Governor-General in his discretion
from a panel of eight persons appointed by him in his dis-
cretion, being persons with railway, administrative, or
business experience.

( 2) The President shall be such one of the judges of
the Federal Court as may be appointed for the purpose
by the Governor General in his discretion after consultation
with the Chief Justice of India and shall hold office for such
period of not less than five years as may be specified in
the appointment, and shall be eligible for re-appointment
for a further period of five years or any less period:

Provided that, if the President ceases to be a judge
of the Federal Court, he shall thereupon cease to be
President of the Tribunal and, if he is for any reason
temporarily unable to act, the Governor- General in his
discretion may after the like consultation appoint another
judge of the Federal Court to act for the time being in his
place.

(3) It shall be the duty of the Railway Tribunal to
exercise such jurisdiction as is conferred on it by this Act,
and for that purpose the Tribunal may make such orders,
including interim orders, orders varying or discharging a
direction or order of the Authority, orders for the payment

21Q

The Government of India Act, 1935. (Contd.)

of compensation or damages and of costs and orders
for the production of document;? and the attendance of
witnesses, as the circumstances of the case may require,
and it shall be the duty of the Authority and of every
Federated State and of every other person or authority
affected thereby to give effect to any such order.

(4) An appeal shall lie to the Federal Court from
any decision of the Railway Tribunal on a question of
law, but no appeal shall lie from the decision of the Federal
Court on any such appeal.

(5) The Railway Tribunal or the Federal Court, as
the case may be, may, on application made for the purpose,
if satisfied that in view of an alteration in the circumstances
it is proper so to do, vary or revoke any previous order
made by it.

19 7. Rights of railway companies in respect of
arbitration under contracts.

19 8. Railways in Indian 5fates which have not
federated.

19 9. Official directors of Indian railway companies.

PART IX.
THE JUDICATURE.

CHAPTER I.
Tbe Federal Court.*

200. Establishment and constitution of Federal Court.

— (i) There shall be a Federal Court consisting of a Chief

*"A Federal Court is an essential element in a Federal
Constitution. It is at once the interpreter and guardian of
the Constitution and a tribunal for the determination of

211

The Indian Constitution ' Ch. VIII

Justice of India and such number of other judges as His
Majesty may deem necessary, but unless and until an
address has been presented by the Federal Legislature to
the Governor-General for submission to His Majesty pray-
ing for an increase in the number of judges, the number of
puisne judges shall not exceed six.

(2) Every judge of the Federal Court shall be
appointed by His Majesty by warrant under the Royal Sign
Manual and shall hold office until he attains the age of
sixty-five years :

Provided that —

{a) a judge may by resignation under his hand
addressed to the Governor-General resign his
office :

(b) a judge may be removed from his office by His
Majesty by warrant under the Royal Sign
Manual on the ground of misbehaviour or of
I . infirmity of mind or body, if the Judicial

Committee of the Privy Council, on reference
being made to them by His Majesty, report
that the judge ought on any such ground to
be removed.

disputes between the constitiient units of the Federation. The
establishment of a Federal Court is partly of the White Paper
Scheme, and we approve generally of the proposals with regard
to it."— J, P. C. Report.

"Judicial umpiring in constitutional issues is the essence
of Federalism" — Mr. E. S. Sunda in Ids book "The Federal
Court of India — A Constitutional Study."

212

THte Government of India Act, 1935. (Contd.)

(3) A person shall not be qualified for appointment
as a judge of the Federal Court unless he —

(a) has been for at least five years a judge of a
High Court in British India or in a Federated
State; or

(b) is a barrister of England or Northern Ireland
of at least ten years standing, or a member of
the Faculty of Advocates in Scotland of at least
ten years standing; or

(c) has been for at least ten years a pleader of a
High Court in British India or in a Federated
State or of two or more such Courts in succes-
sion.

Provided that —

(i) a person shall not be qualified for appoint-
ment as Chief Justice of India unless he is,
or when first appointed to judicial office
was, a barrister, a member of the Faculty
of Advocates or a pleader; and

(ii) in relation to the Chief Justice of India,
for the references in paragraphs ( b ) and
(c) of this subsection to ten years there
shall be substituted references to fifteen
years.

In computing for the purposes of this subsection the
standing of a barrister or a member of the Faculty of
Advocates, or the period during which a person has been
a pleader, any period during which a person has held
judicial office after he became a barrister, a member of the

213

The Indian Constitution Ch. VII t

Faculty of Advocates or a pleader, as the case may be,
shall be included.

(4) Every person appointed to be a judge of the
Federal Court shall, before he enters upon his office, make
and subscribe before the Governor-General or some person
appointed by him an oath according to the form set out in
that behalf in the Fourth Schedule to this Act.

Notes: — " In the Australian Act, the Parliament is given
the power to decide the number, and the maximum is not
fixed."

"In the North America Act the judges are to hold office
during good behaviour The Australian Act makes ' proved
misbehaviour or incapacity * as grounds for removal." Mr. E. S.
Sunda in the ' Federal Court of India.'

201. Salaries, &c. of judges.

202. Temporary appointment of acting Chief Justice-

203. Seat of Federal Court:— The Federal Court shall
be a court of record and shall sit in Delhi and at such
other place or places, if any, as the Chief Justice of India
may, with the approval of the Governor-General, from time
to time appoint.

204. Original jurisdiction of Federal Court:— (i)

Subject to the provisions of this Act, the Federal Court
shall, to the exclusion of any other court, have an original
jurisdiction in any dispute between any two or more of
the following parties, that is to say, the Federation, any of
the Provinces or any of the Federated States, if and in so far
as the dispute involves any question (whether of law or fact)
on which the existence or extent of a legal right depends :

214

The Government of India Act, 1935. (Contd.)

Provided that the said jurisdiction shall not extend
to^

(a) a dispute to which a State is a party, unless the

dispute —

( i ) concerns the interpretation of this Act or
of an Order in Council made thereunder,
or the extent of the legislative or executive
authority vested in the Federation by
virtue of the Instrument of Accession of
that State; or

(ii) arises under an agreement made under Part
VI of this Act in relation to the adminis-
tration in that state of a law of the Fede-
ral Legislature, or otherwise concerns some
matter with respect to which the Federal
Legislature has power to make laws for
that State; or

(iii) arises under an agreement made after the
establishment of the Federation, with the
approval of His Majesty's Representative
for the exercise of the functions of the
Crown in its relations with Indian States,
between that State and the Federation or
a Province, being an agreement which ex-
pressly provides that the said jurisdiction
shall extend to such a dispute;
(^) a dispute arising under any agreement which

expressly provides that the said jurisdiction

shall not extend to such a dispute.

(2) The Federal Court m the exercise its original
jurisdiction shall not pronounce any judgment other than
a declaratory judgment.

215

The Indian Constitution Ch. VIII

20 5. Appellate jurisdiction of Federal Court in appeals
irom High Courts in British India:— (i) An appeal shall lie.
to the Federal Court from any judgment, decree or final
order of a High Court in British India, if the High
Court certifies that the case involves a substantial question
of law as to the interpretation of this Act or any Order
in Council made thereunder, and it shall be the duty
of every High Court in British India to consider in every
case whether or not any such question is involved and of
its own motion to give or to withhold a certificate accord-
ingly.

(2 ) Where such a certificate is given, any party in the
case may appeal to the Federal Court on the ground that
any such question as aforesaid has been wrongly decided,
and on any ground on which that party could have appeal-
ed without special leave to His Majesty in Council if no
such certificate had been given, and, with the leave of the
Federal Court, on any other ground, and no direct appeal
shall lie to His Majesty in Council, either with or without
special leave,

206. Power of Federal Legislature to enlarge appel-
late jurisdiction:— (i) The Federal Legislature may by Act
provide that in such civil cases as may be specified in the
Act an appeal shall lie to the Federal Court from a judg-
ment, decree or final order of a High Court in British India
without any such certificate as aforesaid, but no appeal
shall lie under any such Act unless —

(a) the amount or value of the subject matter of the
dispute in the court of first instance and still in
dispute on appeal was and is not less than fifty
thousand rupees or such other sum not less than
fifteen thousand rupees as may be specified by the.

2ie

The Government of India Act, 1935. (Contd.)

Act, or the judgment, decree or final order in-
volves directly or indirectly some claim or
question respecting property of the like amount
or value; or

(b) the Federal Court gives special leave to appeal.

(2) If the Federal Legislature makes such provision
as is mentioned in the last preceding subsection, conse-
quential provision may also be made by Act of the Fede-
ral Legislature for the abolition in whole or in part of
direct appeals in civil cases from High Courts in British
India to His Majesty in Council, either with or without
special leave.

(3) A Bill or amendment for any of the purposes
specified in this section shall not be introduced into, or
moved in, either Chamber of the Federal Legislature with-
out the previous sanction of the Governor-General in his
discretion.

207. Appellate jurisdiction of Federal Court in ap-
peals from High Courts in Federated States: — (i) An appeal
shall lie to the Federal Court from a High Court in a Fede-
rated State on the ground that a question of law has been
wrongly decided, being a question which concerns the
interpretation of this Act or of an Order in Council made
thereunder or the extent of the legislative or executive
authority vested in the Federation by virtue of the Instru-
ment of Accession of that State, or arises under an agree-
ment made under Part VI of this Act in relation to the
administration in that Stat« of a law of the Federal
Legislature.

'£5'

C.L. 28 217

The Indian Constitution Ch. VIII

( 2 ) An appeal under this section shall be by way of
special case to be stated for the opinion of the Federal
Court by the High Court, and the Federal Court may re-
quire a case to be so stated, and may return any case so
stated in order that further facts may be stated therein.

208. Appeals to His Majesty in Council :— An appeal
may be brought to His Majesty in Council from a decision
of the Federal Court—

( a ) from any judgment of the Federal Court given
in the exercise of its original jurisdiction in any
dispute which concerns the interpretation of
this Act or of an Order in Council made there-
under, or the extent of the legislative or execu-
tive authority vested in the Federation by
virtue of the Instrument of Accession of any
State, or arises under an agreement made under
Part VI of this Act in relation to the adminis-
tration in any State of a law of the Federal
Legislature, without leave; and

( ^) in any other case, by leave of the Federal Court
or of His Majesty in Council.

209. Form of judgment on appeal.

210. Enforcement of decrees and orders of Federal
Court and orders as to discovery, &c. : — (i) All authori-
ties, civil and jud!cial, throughout the Federation, shall act
in aid of the Federal Court.

(2) The Federal Court shall, as respects British India
and the Federated States, have power to make any order
for the purpose of securing the attendence of any person,

21§

The Government of India Act, 1935. (Contd.)

the discovery or production of any documents, or the inves-
tigiition or punishment of any contempt of court, which
any High Court in British India has power to make as
respects the territory within its jurisdiction, and any such
orders, and any orders of the Federal Court as to the costs
of and incidental to any proceedings therein, shall be
enforceable by all courts and authorities in every part of
British India or of any Federated State as if they were
orders duly made by the highest court exercising civil or
criminal jurisdiction, as the case may be, in that part.

( 3 ) Nothing in this section —

( a ) shall apply to any such orders with respect to
costs as is mentioned in subsection (2) of the
last preceding section; or

( b ) shall, as regards a Federated State, apply in
relation to any jurisdiction exercisable by the
Federal Court by reason only of the making by
the Federal Legislature of such provision as is
mentioned in this chapter for enlarging the
appellate jurisdiction of the Federal Court.

211. Letters of request to Federated States: — Where
in any case the Federal Couit require a special case to be
stated or re-stated by, or remit a case to, or order a stay
of execution in a case from, a High Court in a Federated
State, or require the aid of the civil or judicial authorities
in a Federated State, the Federal Court shall cause letters
of request in that behalf to be sent to the Ruler of the State,
and the Ruler shall cause such communication to be made
to the High Court or to any judicial or civil authority as
the circumstances may require.

219

The Indian Constitution Ch. Vlll

2 1 2. Law declared by Federal Court and Privy Council
to be binding on all courts:— The law declared by the
Federal Court and by any judgment of the Privy Council
shall, so far as applicable, be recognised as binding on, and
shall be followed by, all courts in British India, and so far
as respects the application and interpretation of this Act or
any Order in Council thereunder or any matter with respect
to which the Federal Legislature has power to make laws
in relation to the State, in any Federated State.

213. Power of Governor=Qeneral to consult Federal
Court: — ( I ) If at any time it appears to the Governor-
General that a question of law has arisen, or is likely to
arise, which is of such a nature and of such public impor-
tance that it is expedient to obtain the opinion of the
Federal Court upon it, he may in his discretion refer the
question to that court for consideration, and the court may,
after such hearing as they think fit, report to the Governor-
General thereon.

( 2 ) No report shall be made under this section save
in accordance with an opinion delivered in open court with
the concurrence of a majority of the judges present at the
hearing of the case, but nothing in this subsection shall be
deemed to prevent a judge who does not concur from deli-
vering a dissenting opinion.

Notes: — The preponderence of opiniou among American
lawyers is hostile to the idea of 'advisory opinions' on the
ground that the giving of such opinions is not an appropriate

judicial function But the advisory nature of jurisdiction

is so good that attempts should be made to see that such a relief
is possible to be availed of by the private suitors also and not
by the Governor-General alone" ( Mr. E. S. Sunda in " The
Federal Court of India " )

220

The Government of India Act, 1935. (Contd.)

"It is proposed that tho Federal Court shall have a juris-
diction similar to that possessed by tli© Privy Council under
Section 4 of the Judicial Committee Act, 1833, which provides
that His Majesty may refer to the committee for hearing and
consideration any matters Avhatsoever as His Majesty may
think fit, and that the committee shall thereupon hear and
consider the same and shall advise His Majesty thereon.''
(J.P.C. Report.) "Procedure under this Judicial Committee Act
1833, differs from that under Section 213 in one respect — dis-
senting judgments are not delivered in the Privy Council. In
allowing expression of dissent the Federal Court follows the
practice of the International Court at the Hague. '' ( Eddy and
Lawton in "India's New Constitution. " )

214. Rules of court, &c.

215. Ancillary powers of Federal Court.

216. Expenses of Federal Court.

217. Construction of references to High Courts in
States.

2 1 8. Savings. — Nothing in this chapter shall be cons-
trued as conferring, or empowering the Federal Legislature
to confer, any right of appeal to the Federal Court in any
case in which a High Court in British India is exercising
jurisdiction on appeal from a court outside British India, or
as affecting any right of appeal in any such case to His
Majesty in Council with or without leave.

CHAPTER II.

The High Courts in British India.

2 1 9. Meaning of "High Court."— ( i ) The following
courts shall in relation to British India be deemed to be
High Courts for the purposes of this Act, that is to say, the

221

The Indian Constitution Ch. VIII

High Courts in Calcutta, Madras, Bomba)'', Allahabad,
Lahore and Patna, the Chief Court in Oudh, the Judicial
Commissioner's Courts in the Central Provinces and Berar,
in the North-West Frontier Province and in Sind, any-
other court in British India constituted or reconstituted
under this chapter as a High Court, and any other com-
parable court in British India which His Majesty in
Council may declare to be a High Court for the purposes
of this Act:

Provided that, if provision has been made before the
commencement of Part III of this Act for the establish-
ment of a High Court to replace any court or courts
mentioned in this subsection, then as from the establish-
ment of the new court this section shall have effect as if
the new court were mentioned therein in lieu of the court
or courts so replaced.

(2) The provisions of this chapter shall apply to
every High Court in British India.

220. Constitution of High Courts:— (i) Every High
Court shall be a court of record and shall consist of a chief
justice and such ether judges as His I\Iajesty may from
time to time deem it necessary to appoint :

Provided that the judges so appointed together with
any additional judges appointed by the Governor-General
in accordance with the following provisions of this chapter
shall at no time exceed in number such maximum number
as His Majesty in Council may fix in relation to that
court.

( 2 ) Every judge of a High Court shall be appointed
by His Majesty by warrant under the Royal Sign Manual

222

The Government of India Act .1935. (Contd.)

and shall hold office until he attains the age of sixty years:
Provided that —

( «) a judge may by resignation under his hand add-
ressed to the Governor resign his office;

( ^ ) a judge may be removed from his office by His
Majesty by warrant under the Royal Sign
Manual on the ground of misbehaviour or of
infirmity of mind or body, if the Judicial Com-
mittee of the Privy Council, on reference being
made to them by His Majesty, report that the
judge ought on any such ground to be removed.

( 3 ) A person shall not be qulified for appointment as
a judge of a High Court unless he —

(a) is a barrister of England or Northern Ireland,
of at least ten years' standing, or a member of
the Faculty of Advocates in Scotland of at least
ten years' standing; or

(b) is a member of the Indian Civil Service of at
least ten years' standing, who has for at least
three years served as, or exercised the powers
of, a district judge; or

(c) has for at least five years held a judicial office
in British India not inferior to that of a sub-
ordinate judge, or judge of a small cause court;
or

{d) has for at least ten years been a pleader of any
High Court, or of two or more such Courts in
succession :

Provided that a person shall not, unless he is, or when
first appointed to judicial office was, a barrister, a member

223

The Indian Constitution Ch. VIII

of the Faculty of Advocates or a pleader, be qualified for
appointment as Chief Justice of any High Court constituted
by letters patent until he has served for not less then three
years as a judge of a High Court.

In computing for the purposes of this subsection the
standing of a barrister or a member of the Faculty of Advo-
cates, or the period during which a person has been a
pleader, any period during which the person has held
judicial office after he became a barrister, a member of the
Faculty of Advocates, or a pleader, as the case my be, shall
be included.

( 4 ) Every person appoiwted to be a judge of a High
Court shall, before he enters upon his office, make and sub-
scribe before the Governor or some person appointed by
him an oath according to the form set out in that behalf in
the Fourth Schedule to this Act.

221. Salaries, &c. ol judges.

222. Temporary and additional judges*

223. Jurisdiction of existing High Courts: — Subject
to the provisions of this Part of this Act, to the provisions
of any Order in Council made under this or any other Act
and to the provisions of any Act of the appropriate Legis-
lature enacted by virtue of powers conferred on that
Legislature by this Act, the jurisdiction of, and the law
administered in, any existing High Court, and the respe-
ctive powers of the judges thereof in relation to the adminis-
tration of justice in the court, including any power to make
rules of court and to regulate the sittings of the court and
of members thereof sitting alone or in division courts, shall

224

The Government of India Act, 1935. (Contd.)

be the same as immediately before the commencement of
Part III of this Act.

224. Admfni&trative functions of High Courts.

225. Transfer of certain cases to High Court for trial.

226. Jurisdiction in revenue matters.

227. Proceedings of High Courts to be in English,

228. Expenses of High Courts.

22 9. Power of His Majesty to constitute or reconstitute
High Court by letters patent.

230. Extra=provincial jurisdiction of High Courts: —

(i) His Majesty in Council may, if satisfied that an agree-
ment in that behalf has been made between the Governments
concerned, extend the jurisdiction of a High Court in any
Province to any area in British India not forming part of
that Province, and the High Court shall thereupon have the
same jurisdiction in relation to that area as it has in relation
to any other area in relation to which it exercises
jurisdiction.

(2) Nothing in this section affects the provisions of
any law or letters patent in force immediately before the
commencement of Part III of this Act empowering any
High Court to exercise jurisdiction in relation to more
than one Province or in relation to a Province and an area
not forming part of any Province.

( 3 ) Where a High Court exercises jurisdiction in
relation to any area or areas outside the Province in which
it has its principal seat, nothing in this Act shall be
construed —

C.L,29 225

The Indian Constitution Ch. VIII

(a) as empowering the Legislature of the Province
in which the Court has its principal seat to in-
crease, restrict or abolish that jurisdiction; or

( ^ ) as preventing the Legislature having power to
make laws in that behalf for any such area from
passing such laws with respect to the jurisdic-
tion of the court in relation to that area as it
would be competent to pass if the principal
seat of the court were in that area.

23 1. Saving and definitions.

PART X
THE SERVICES OF THE CROWN IN INDIA

CHAPTER I.

Defence Services-

232. Pay, &c., of Comraander-in-Chief.

2 3.^. Control of His Majesty as to defence appoints
ments.

23 4. Eligibility for commissions in Indian Forces

2 3 5. Control of Secretary of State with respect to con-
ditions of service.

2 3 6. Saving of rights of appeal.

2 3 7. Pay, &c., of members of forces to be charged on
Federal revenues.

2 3 8. Provisions as to certain civilian personnel.

239. King's India cadetships: — In the appointment of
officers to His Majesty's army the same provision as here-
tofore, or equal provision, shall be made for the appointment

226

The Government of India Act, 1935. (Contd.)

of sons of persons who have served in India in the military
or civil service of the Crown.

In this section the reference to persons who have
served in India in the military or civil service of the Crown
includes persons who have so served in Burma or in Aden
before their respective separations from India.

CHAPTER II.
Civil Services.

General Provisions.

2 4 0. Tenure of office of persons employed in civil
capacities in India:— ( i ) Except as expressly provided by
this Act, eveiy person who is a member of a civil service
of the Crown in India, or holds any civil post under the
Crown in India, holds office during His Majesty's pleasure.

( 2 ) No such person as aforesaid shall be dismissed
from the service of His Majesty by any authority sub-
ordinate to that by which he was appointed.

( 3 ) No such jeison as aforesaid shall be dismissed or
reduced in rank until he has been given a reasonable
opportunity of showing cause against the action proposed
to be taken in regard to him :

Provided that this subsection shall not apply —

( a) where a person is dismissed or reduced in rank
on the ground of conduct which has led to
his conviction on a criminal charge; or,

{b) where an authority empowered to dismiss a
person or reduce him in rank is satisfied that

The Indian Constitution Ch. Vlll

for some reason, to be recorded by that
authority in writing, it is not reasonably practi-
cable to give to that person an opportunity of
showing cause.

(4) Notwithstanding that a person holding a civil
post under the Crown in India holds office during His
Majesty's pleasure, any contract under which a person,
not being a member of a civil service of the Crown in India,
is appointed under this Act to hold such a post may, if
the Governor General, or, as the case may be, the Governor,
deems it necessary in orde»r to secure the services of a
person having special qualifications, provide for the pay-
ment to him of compensation if before the expiration of an
agreed period that post is abolished or he is, for reasons
not connected with any misconduct on his part, required to
vacate that post.

24 1. Recruitment and conditions of service:— (i) Ex-
cept as expressly provided by this Act, appointments to the
civil services of, and civil posts under, the Crown in India,
shall, after the commencement of Part III of this Act, be
made —

(a) in the case of services of the Federation, and
posts in connection with the affairs of the Fede-
ration, by the Governor-General or such person
as he may direct;

( Z*) in the case of services of a Province, and posts
in connection with the affairs of a Province, by
the Governor or such person as he may direct.

(2) Except as expressly provided by this Act, the
conditions of service of persons serving His Majesty in

228

The Government of India Act, 1935. (Contcl.)

a civil capacity in India shall, subject to the provisions of
this section, be such as may be prescribed —

{a) in the case of persons serving in connectien
with the affairs of the Federation, by rules
made by the Governor-General or by some per-
son or persons authorised by the Governor-
General to make rules for the puipose;

(b) in the case of persons serving in connection
with the affairs of a Province, by rules made by
the Governor of the Province or by some person
or persons authorised by the Governor to make
rules for the purpose:

Provided that it shall not be necessary to make rules
regulating the conditions of service of persons employed
temporarily on the terms that their employment may be
terminated on one month's notice or less, and nothing
in this sub-section shall be construed as requiring the rules
regulating the conditions of service of any class of persons
to extend to any mattter which appears to the rule-making
authority to be a matter not suitable for regulation by rule
in the case of that class.

( 3 ) The said ruleS shall be so framed as to secure —

(a) that, in the case of a person who before the
commencement of Part 111 of this Act was
serving His Majesty in a civil capacity in India,
no order which alters or interprets to his dis-
advantage any rule by which his conditions of
service are regulated shall be made except by
an authority which would have been competent
to make such an order on the eighth day of

229

The Indian Constitution Ch. VIII

March, nineteen hundred and twenty-six, or by
some person empowered by the Secretary of
State to give directions in that respect;

(^) that every such person as aforesaid shall have
the same rights of appeal to the same authori-
ties from any order which^ —

( i ) punishes or formally censures him; or

(ii) alters or interprets to his disadvantage any
rule by which his conditions of service are
regulated; or

(iii) terminates his appointroent otherwise than
upon his reaching the age fixed for super-
annuation,

as he would have had immediately before the
commencement of Part III of this Act, or such
similar rights of appeal to such corresponding
authorities as may be directed by the Secretary
of State or by some person empowered by the
Secretary of State to give directions in that
respect;

( c) that every other person serving His Majesty in
a civil capacity in India shall have at least one
appeal against any such order as aforesaid, not
being an order of the Governor-General or a
Governor.

(4) Notwithstanding anything in this section, but
subject to any other provision of this Act, Acts of the
appropriate Legislature in India may regulate the condi-
tions of service of persons serving His Majesty in a civil

230

The Government of India Act, 1935. (Contd.)

capacity in India, and any rules made under this section
sliall have effect subject to the provisions of any such
Act :

Provided that nothing in any such Act shall have
eftect so as to deprive any person of any rights required to
be given to him by the provisions of the last preceding sub-
section.

( 5 ) No rules made under this section and no Act
of any Legislature in India shall be construed to limit or
abridge the power of the Governor-General or a Governor
to deal with the case of any person serving His Majesty
in a civil capacity in India in such manner as may appear
to him to be just and equitable :

Provided that, where any such rule or Act is appli-
cable to the case of any person, the case shall not be dealt
with in any manner less favourable to him than that pro-
vided by that rule or Act.

2 4 2. Application o( preceding section to railway,
customs, postal and Telegraph services, and officials of
courts.

2 4 3. Special provisions as to police.

Recruitment by Secretary of State and provisions as to

certain posts.

2 4 4. Services recruited by Secretary of State^'— (i)

As from the commencement of Part III of this Act appoint-
ments to the civil services known as the Indian Civil Service,
the Indian Medical Service (Civil), and the Indian Police
Service (which last-mentioned^service shall thereafter be

?31

The Indian Constitution Ch. VIII

known as " the Indian Police ") shall, until Parliament
otherwise determines, be made by the Secretary of
State.

24 5. Special provision as to irrigation.

24 6. Reserved posts.

24 7. Conditions of s®tvice, pensions, &c. ol persons
recruited by Secretary of State.

24 8. Rights in respect of complaints appeals &c.

24 9. Compensation.

Provisions as to persons appointed by Secretary of State

ifi Councilf persons holding reserved posts and

conunissiojied officers iii civil employment.

250. Application of four last preceding sections to per-
sons appointed by Secretary of State in Council, and certain
other persons.

25 1. Staff of High Commissioner and Auditor of
Indian Home Accounts.

252. Conditions of service of existing staff of High
Commissioner and Auditor of Indian Home Accounts.

25 3. Judges of the Federal Court and High Courts.
2 5 4. District Judges, &c.

Notes : — The J. P. C Report wrote, *' A strict
rule ought in our opinion to be adopted and enforced,
though it would be clearly out of place in the Constitution Act
itself, that recommendations from, or attempts to exercise
influence by members of the Legislature in the appointment or
promotion of any member of the Subordinate Judiciary are
sufficient in themselves to disqualify a candidate, -whatever his

232

The Government of India Act, 1935. (Contd.)

personal merits may be. We would admit no exception to this
rule, which has for many years past been accepted without
question in the Civil Service of the United Kingdom,

" A recommendation by the Minister for the appointment
of a member of the Subordinate Judicial Service should only be
made with the approval of the Public Service Commission and
of the High Court."

2 5 5. Subordinate civil judicial service.

Notes: — " Candidates should be selected for appointment
by the Public Service Commission, in consultation with the
High Court, subject to any general regulations made by the
Provincial Government as to the observance of communal pro-
portions The Public Service Commision would of

course act in an advisory capacity only, but we cannot conceive
that any Minister would reject their advice or recommend an
appointment without it." ( J. P. C. R. ).

2 5 6. Subordinate criminal magistracy.

Notes: — " Candidates for a first appointment to these
posts should be selected by the Governor on the recommenda-
tion of the Minister " ( J. P. C. R. ).

special Provisions as to Political Department.

2 5 7. Officers of political department : — (1) Subject to
the provisions of this section, the provisions of this Part of
this Act shall not apply in relation to persons wholly or
mainly employed in connection with the exercise of the fun-
ctions of the Crown in its relations with Indian States.

Provisions for the protection of certain existing officers,

2 5 8. Provision for protection of existing officers of
certain Services.

C.L.30 233

The Indian Constitution Ch. VIII

2 5 9, Provisions as to ctrtain persons serving in or
before 1924.

260. General provisions as to persons retiring before
commencement of Part III.

Miscellaneous.

261. Secretary of State to act with concurrence of his
advisers.

262. Eligibility for office of persons who are not
British subjects :— (i) The Ruler or a subject of a Fede-
rated State shall be eligible to hold any civil office under
the Crown in India in connection with the affairs of the
Federation, and the Governor-General may declare that
the Ruler or any subject of a specified Indian State which
is not a Federated State, or any native of a specified tribal
area or territory adjacent to India, shall be eligible to
hold any such office, being an office specified in the
declaration.

(2) The Governor of a Province may declare that
the Ruler or any subject of a specified Indian State, or any
native of a specified tribal area or territory adjacent
to India, shall be eligible to hold any civil office in
connection with the affairs of the Province, being an officg
specified in the declaration.

(3) The Secretary of State may declare that any
named subject of an Indian State, or any named native
of a tribal area or territory adjacent to India, shall be
eligible for appointment by hira to any civil service under
the Crown in India to which he makes appointments, and
any person who, having been so declared eligible, is

234

The Government of India Act, 1935. (Contd.)

appointed to such a service, shall be eligible to hold any
civil office under the Crown in India.

(4) Subject as aforesaid and to any other express
provisions of this Act, no person who is not a British
subject shall be eligible to hold any office under the Crown
in India:

Provided that the Governor-General or, in relation to
a Province, the Governor may authorise the temporary
employment for any purpose of a person who is not a
British subject.

(5) In the discharge of his functions under this
section the Governor-General or the Governor of a Province
shall exercise his individual judgment.

26 3. Joint services and posts.

CHAPTER HI.
Public Service Commissioas.
26 4. Public Service Commissions.

265. Composition and stall of Commissions: — (1)

The chairman and other members of a Public Service
Commission shall be appointed, in the case of the Federal
Commission, by the Governor-General in his discretion,
and in the case of a Provincial Commission, by the Gover-
nor of the Province in his discretion:

Provided that at least one-half of the members of
every Public Service Commission shall be persons who
at the dates of their respective appointments have held
office for at least ten years under the Crown in India.

23|

The Indian Constitution Ch. VIII

(2) In the case of the Federal Commission, the
Governor-General in his discretion and, in the case of a
Provincial Commission, the Governor of the Province in
his discretion, may by regulations —

( a ) determine the number of members of the com-
mission, their tenure of office and their condi-
tions of service; and

( b ) make provision with respect to the numbers of
staff of the commission and their conditions of
service.

(3 ) On ceasing to hold office —

;«) the chairman of the Federal Commission shall
be ineligible for further employment under the
Crovv^n in India;

[b) the chairman of a Provincial Commission shall
be eligible for appointment as the chairman
or a member of the Federal Commission, or
as the chairman of another Provincial Com-
mission, but not for any other employment
under the Crown in India;

( c ) no other member of the Federal or of any Pro-
vincial Commission shall be eligible for any
other appointment under the Crown in India
without the approval, in the case of an appoint-
ment in connection with the affairs of a Pro-
vince, of the Governor of the Province in his
discretion and, in the case of any other appoint-
ment, of the Governor-General in his discretion.

26 6. Functions of Public Service Commissions^ — (i)

It shall be the duty of the Federal and the Provincial

23G

The Government of India Act, 1935. (Contd.)

Public Service •Commissions to conduct examinations for
appointments to the services of the Federation and the
services of the Province respectively.

(2) It shall also be the duty of the Federal Public
Service Commission, if requested by any two or more
Provinces so to do, to assist those Provinces in framing and
operating schemes of joint recruitment for their forest
services, and any other services for which candidates posse-
ssing special qualifications are required.

26 7. Power to extend functions of Public Service
Commissions.

2 6 8, Expenses of Public Service Commissions.

CHAPTER IV.
Chaplains.

26 9. Provisions as to chaplains.

CHAPTER V.

General.
2 70. indemnity for pastacts:— (i) No proceedings civil
or criminal shall be instituted against any person in respect
of any act done or purporting to be done in the execution
of his duty as a servant of the Crown in India or Burma
before the relevant date, except with the consent, in the
case of a person who was employed in connection with the
affairs of the Government of India or the affairs of Burma,
of the Governor-General in his discretion, and in the case
of a person employed in connection with the affairs of a
Province, of the Governor of that Province in his discretion.

(2) Any civil or criminal proceedings instituted,
whether before or after -the comiug into operation of this
Part of this Act, against any person in respect of any act

237

The Indian Constitution Ch. VIII

done or purporting to be done in the execution of his duty
as a servant of the Crown in India or Burma before the
relevant date shall be dismissed unless the court is satis-
fied that the acts complained of were not done in good
faith, and, where any such proceedings are dismissed the
costs incurred by the defendant shall, in so far as they are
not recoverable from the persons instituting the proceed-
ings, be charged, in the case of persons employed in conne-
ction with the functions of the Governor-General in Council
or the affairs of Burma, on the revenues of the Federation,
and in the case of persons employed in connection with the
affairs of a Province, on the revenues of that Province.

27 1. Protection of public servants against prosecution
and suits: — (i) No Bill or amendment to abolish or restrict
the protection afforded to certain servants of the Crown in
India by section one hundred and ninety-seven of the
Indian Code of Criminal Proceduie, or by sections eighty
to eighty-two of the Indian Code of Civil Procedure, shall
be introduced or moved in either Chamber of the Federal
Legislature without the previous sanction of the Governor-
General in his discretion, or in a Chamber of a Provincial
Legislature without the previous sanction of the Governor
in his discretion.

27 2. Provisions as to payment of certain pensions
and exemption of those pensions from taxation in India.

27 3. Provisions as to family pension funds.

27 4. Saving for certain Funds Acts.

27 5. Persons not to be disqualified by sex for holding
certain offices.

27 6. Transitional provisions.

27 7, Interpretation, &c.

238

Chapter IX.

THE GOVERNMENT OF INDIA ACT, 1935. (Contd).

PART XI

THE SECRETARY OF STATE, HIS ADVISERS
AND HIS DEPARTMENT.

27 8. Advisers to Secretary of State: — (i) There shall
a body of persons appointed by the Secretary of State, not
being less than three nor more than six in number, as the
Secretary of State may from time to time determine,
whose duty it shall be to advise the Secretary of State on
any matter relating to India on which he may desire their
advice.

( 2 ) One half at least of the persons for the time
being holding office under this section as advisers of the
Secretary of State shall be persons who have held office
for at least ten years under the Crown in India and have
not last ceased to perform in India official duties under
the Crown more than two years before the date of their
respective appointments as advisers under this section.

( 3 ) Any person appointed as an adviser to the
Secretary of State shall hold office for a term of five years
and shall not be eligible for reappointment:

Provided that —

{a) any person so appointed may by writing under
his hand resign his office to the Secretarj' of
State;

S39

The Indian Constitution Ch. IX

( ^ ) the Secretary of State may, if he is satisfied
that any person so appointed has by reason of
infirmity of mind or body become unfit to
continue to hold his office, by order remove
him from his office.

(4) A person for the time being holding office as
adviser to the Secretary of State shall not be capable of
sitting or voting in either House of Parliament,

(5) There shall be paid out of moneys provided by
Parliament to each of the advisers of the Secretary of State
a salary of thirteen hundred and fifty pounds a year, and
also to any of them who at the date of his appointment was
domiciled in India a subsistence allowance of six hundred
pounds a year.

(6) Except as otherwise expressly provided in this
Act, it shall be in the discretion of the Secretary of State
whether or not he consults with his advisers on any matter,
and, if so, whether he consults with them collectively or
with one or more of them individually, and whether or not
he acts in accordance with any advice given to him by
them.

(7) Any provision of this Act which requires that the
Secretary of State shall obtain the concurrence of his
advisers shall be deemed to be satisfied if at a meeting
of his advisers he obtains the concurrence of at least one
half of those present at the meeting, or if such notice and
opportunity for objection as may be prescribed has been
given to those advisers and none of them has required
that a meeting shall be held for discussion of the matter.

240

The Government of India Act, 1935. (Contd.)

2 7 9. Existing accounts of Secretary of State in
Council with Bank of England.

280. Organisation and expenses of India Office: — (i)

As from the commencement of Part III of this Act the
sahiryofthe Secretaiy of State and the expenses of his
department, including the salaries and remuneration of the
staff thereof, shall be paid out of moneys provided by
Parliament.

28 1. Transfer of existing personnel.

282, Contributions from revenues of Federation.

2 8 3, Liability for pensions in respect of service before
commencement of Part III.

2 8 4. Provision as to certain India Office provident
funds.

PART XII.
MISCELLANEOUS AND GENERAL.

The Crown and the Indian States,

2 8 5. Saving for rights and obligations of the Crown in
its relations with Indian States. Subject in the case of a
Federated State to the provisions of the Instrument of Acc-
ession of that State, nothing in this Act affects the rights and
obligations of the Crown in relation to any Indian State.

There are altogether forty States -which have got treaties
with the British. They are;— Alwar (1803); Bahawalpur (1838);
Banswara (1818); Baroda (1805); Bharatpur (1805); Bhopal
(1818); Bikanir (1818); Bundi (1818); Cochin (1809); Cutch
(1819); Datia (1818); Dewas (Senior, i: Junior) (1818); Dhar
(1819); Dhou (1806); Gvalior (1804) and (1844); Hyderabad

CL. 31 241

The Indian Constitution Ch. IX

(1800) and (1853) Indore (1818); Jaipur (1818); Jais^lmer

(1818); Jammu and Kashmir (1846); Jlialawar (1838); Jodhpur

(1818); Kalat (1876); Karauli (1817); Khairpur (1838); Ivishon-

garh (1818); Kolhapur (1812); Kotah (1817); Mysore (1881)

and (1913); Orchha (1812); Partapgarli (1818); Rampur (1794);

Rewa (1812); Samthar (1817); Sawantwari (1819); Sikkim

(1814); Sirohi (1823); Travancore (1805); Tonk (1817); Udaipur

(1818).

— (Prof. G. N. Singh: Indian States and British India.)

The Princes' Note contained the following observations: —
" If the Kulors delegated certain portions of their sovereignty
and internal jurisdiction to the Crown, they also expected
that the Crown would accept liability to preserve and safe-
guard the Vvhole of their sovereignty and internal autonomy
not specifically thereby safe-guarded from any encroachment

in the future Amendments and alterations made with

mutual consent and the free volition of both parties no doubt
may supplant and take the place of old treaties. As novatio,
the altered treaties are equally binding; but there ought to
be no room for any continuous erosive action hereafter from
usage, sufferance, acquiscencoj political practice or ultimate
powers of paramountcy so as to undermine the essence and
the substance from below of these sacred treaties.

In conclusion it should be well to remember that the
Princes had originally accepted the invitation to federate out
of their anxious desire to be of service to the Empire."

Sir Samuel Hoare wrote; — "His Majesty's Government
understand that the States feel apprehensive as regards the
effect cf their acceptance of the legislative and executive
authority of the Federation in certain matters upon their rela-
tions with the Crowm in other matters; and these apprehensions

242

The Government of India Act, 1935. (Contd.)

have no doubt also influenced Their Highnesses in the claim
made in paragraph 9 of their Note that the Bill should repro-
duce in some form the provisions of Section 132 of the existing
Government of India Act, -which provides that all treaties
made by the East India Company are, so far as they are in
force at the commencement of the Act, binding on His Majesty.

This Section appeared first in the Government of India
Act 1858, where it was obviously required by reason of the
transfer which that Act effected of all rights and oblisrations
of the East India Company to the Crown; and it was only re-
enacted in the Government of India Act 1915, because
that Act consolidated existing Statutes relating lo India,
and not because it w'as thought necessary to re-affirm
obligations which the Crown had already assumed. The
Crown's engagements towards the Indian Rulers need no re-
affirmation by Parliament. But His Majesty's Government
are prepared, if the Rulers so desire, to consider the insertion
in this Bill of a provision to the effect that nothing in the Act
will aft'ect the engagements of the Crown outside the Federal
sphere. If, in addition, some States desire a re-affirmaticn of
the engagements of the Crown towards them so far as they
relate to matters outside the Federal sphere, this would, as on
other occasions, more appropriately take some extra-statutory
form, and His Majesty's Government will consider how best
a satisfactory assurance would perhaps most convniently be
given at the time when the execution of Instruments of Acces-
sion is accepted by His Majesty".

On the question of Paramoantcy the Princes' Note con-
tained the following: —

"The Chamber of Princes have from the very outset
urged a satisfactory settlement of tho claims of paramountcy

243

The Indian Constitution Ch. IX

to be a condition precedent to the accession of the States to
any Federation. Among the essential conditions they had
laid down from time to time, the one treating with a definition
of paramountcy had been made a si7ie qua non to any Federa-
tion. They have consistently asked that "the sovereignty and
autonomy of their States shall be fully respected and guaran-
teed, and there shall be no interference, direct or indirect,
with the internal autonomy of their States." It is regretted
that no effective steps have been taken, so far, to reach a
settlement of the question of paramountcy, which has justly
been considered by the princes to be one of vital importance.
It is true that, as stated by the Secretary of State in his recent
pronouncement, the Princes had never desired the inclusion
of the question of paramountcy in the Constitution Act, but
this does not mean that they have not repeatedly emphasized
that its settlement is a condition precedent to their entry
into Federation ".

His Highness the Maharaja of Patiala's resolution
adopted by tho Chamber of Princes was as follows: —

" The Chamber wishes to emphasize that the inauguration
and success of the Federation will depend entirely on the good-
will and co-operation of all parties concerned and upon the
clear recognition of the Sovereignty of the States and their
rights under treaties and engagements ''

On the question of sovereignty Mr. Panikkar wrote;—
" The juristic theory of an absolute, undivided final authority,

has had no historical experience to back it ,

There can be no doubt that within the limits set by the
agreements that define their relation with the British Govern-
ment, Indian rulers are sovereigns by every criterion of
political science

244

The Government of India Act, 1935. (Contd.)

Sir T. B. Sapru stated in the closing sessions of the
Federal Structure Committee: — '* The question of paramountcy
in relation to the Crown is one thing and in relation to the
Federation is quite a different thing. There can be no such
thing under a Federal Constitution as one paramount unit of
the Federation exercising paramountcy over another unit of
the Federation. Their basis of Federation is equality '♦.

Under Transitory Provisions the J. P. C. Report said: —
" From the date of the inauguration of Provincial Autonomy
the Governor-General should become solely responsible for the
control of the relations between the Crown and the States ''.

286. Use of His Majesty's forces in connection with
discharge of the functions of the Crown in its relations with
Indian States:— (i) If His Majesty's Representative for the
exercise of the functions of the Crown in its relations with
Indian States requests the assistance of armed forces for the
due discharge of those functions, it shall be the duty of the
Governor-General in the exercise of the executive authority
of the Federation to cause the necessary forces to be
employed accordingly, but the net additional expense, if
any, incurred in connection with those forces by reason of
that employment shall be deemed to be expenses of His
Majesty incurred in discharging the said functions of the
Crown.

(2) In discharging his functions under this section the
Governor-General shall act in his discretion.

Notes:— Sir Samuel Hoare wrote: — "The State Ministers
ask firstly for specific provision that " the authority of the
Federation should extend to placing at the service of the
Crown the means of implementing the Crown's obligations to
the States, " in other words that military forces should bo

245

The Indian Constitution Ch. IX

available for the protection of the States. It is believed that
the provisions of the Bill are adequate for this purpose, but the
matter is being re-examined to make sure that there is no room
for doubt upon the point, to which His Majesty's Government
attach much importance. ''

28 7. Arrangements for Governors and Provincial staff
to assist in discharging functions of Political Department.

Aden.

288. Aden.

Nczv Provinces and alterations of boimdaries of Provinces.

289. Creation of new Provinces of Sind and Orissa.

290. Creation of new Provinces and alteiations of
boundaries of Provinces.

Franchise.

29 1. Power of His Majesty to make provision with
respect to franchises and elections :~In so far as provision
with respect to the matters hereinafter mentioned is not
made by this Act, His Majesty in Council may from time
to time make provision with respect to those matters or
any of them, that is to say —

(rt ) the delimitation of territorial constituencies for
the purpose of elections under this Act ;

(^) the qualifications entitling persons to vote in
territorial or other constituencies at such elec-
tions, and the preparation of electoral rolls;

( c ) the qualifications for being elected at such
elections as a member of a legislative body;

246

The Government of India Act, 1935. (Contd.)

(d) the filling of casual vacancies in any such body;

( (• ) the conduct of elections under this Act and the
methods of voting thereat ;

(/) the expenses of candidates at such elections;

(g) corrupt practices and other offences at or in
connection with such elections;

(/i) the decision of doubts and disputes arising out
of, or in connection with, such elections;

(?) matters ancillary to such matter as aforesaid.

MoTES: — " The Provincial electorate under the existing
franchise numbers approximately seven million men and

women The Statutory Commission were of Opinion

that the existing franchise -was too limited, and recommended
that it should be extended so as to enfranchise about ten per
cent of the population and they laid special emphasis upon
"the need of increasing the ratio of women to men voteri.'»
The Round Table Conference suggested about 25% to be en-
franchised. "It is estimated that the proposals in the White
Paper (partly based on the Franchise Committee Report)
would, if adopted, create a male electorate of between 28
millions and 29 millions and a female electorate of over 6
millions as compared to the present figures of 7 miJlicns and
3,15,000 respectively. " (J- P. C. R.)

Provisions as to certain legal matters.

292. Existing law of India to continue in force.

2 9 3. Adaptation of existing Indian laws, &c.

29 4. Foreign jurisdiction:— (i) Neither the execu-
tive authority of the Federation nor the legislative power
of the Federal Legislature shall extend to any area in a

247

The Indian Constitution Ch. IX

Federated State which His Majesty in signifying his accept-
ance of the Instrnment of Accession of that State may
declare to be an area theretofore administered by or on behalf
of His Majesty to which it is expedient that the provisions
of this subsection should apply, and references in this Act
to a Federated State shall not be construed as including
references to any such area :

Provided that —

(a) a declaration shall not be made under this
subsection with respect to anj' area unless,
before the execution by the Ruler of the
Instrument of Accession, notice has been
given to him of His Majesty's intention to
make that declaration;

(b) if His Majesty with the assent of the Ruler of
the State relinquishes his powers and juris-
diction in relation to any such area or any
part of any such area, the foregoing provisions
of this subsection shall cease to apply to that
area or part, and the executive authority of
the Federation and the legislative power of
the Federal Legislature shall extend thereto
in respect of such matters and subject to such
limitations as may be specified in a supple-
mentary Instrument of Accession for the
State.

Nothing in this subsection applies to any area if it
appears to His Majesty that jurisdiction to administer
the area was granted to him soley in connection with a
railway.

248

The Government oe India Act, 1935. (Contd.)

(2) Subject as aforesaid and to the following pro-
visions of this section, if, after the accession of a State
becomes effective, power or jurisdiction therein with
respect to any matter is, by virtue of the Instrument of
Accession of the State, exercisable, either generally or
subject to limits, by the Federation, the Federal Legisla-
ture, the Federal Court, the Federal Railway Authority,
or a Court or an authority exercising the power or
jurisdiction by virtue of an Act of the Federal Legislature,
or is, by virtue of an agreement made under Part VI of
this Act in relation to the administration of a law of the
Federal Legislature, exercisable, either generally or
subject to limits, by the Ruler or his officers, then any
power or jurisdiction formerly exercisable on His Majesty's
behalf in that State, whether by virtue of the Foreign
Jurisdiction Act, 1890, or otherwise, shall not be exer-
cisable in that State with respect to that matter or, as the
case may be, with respect to that matter within those limits.

(3) So much of any law as by virtue of any power
exercised by or on behalf of His Majesty to make laws in
a State is in force in a Federated State immediately before
the accession of the State becomes effective and might by
virtue of the Instrument of Accession of the State be re-
enacted for that State by the Federal Legislature, shall
continue in force and be deemed for the purposes of this
Act to be a Federal law so re-enacted :

Provided that any such law may be repealed or
amended by Act of the Federal Legislature and unless
continued in force by such an Act shall cease to have effect
on the expiration of five years from the date when the
accession of the State becomes effective.

C.L. 32 249

The Indian Constitution Ch. IX

(4) Subject as aforesaid, the powers and jurisdiction
exercisable by or on behalf of His Majesty before the
commencement of Part III of this Act in Indian States shall
continue to be exercisable, and any Order in Council with
respect to the said powers or jurisdiction made under the
Foreign Jurisdiction Act, i8§o, or otherwise, and all delega-
tions, rules and orders made under any such Orderj shall
continue to be of full force and effect until the Order is
amended or revoked by a subsequent Order.

Provided that nothing in this subsection shall be con-
strued as prohibiting His Majesty from relinquishing any
power or jurisdiction in any Indian State.

(5) An Order in Council made by virtue and in exer-
cise of the powers by the Foreign Jurisdiction Act, 1890, or
otherwise in His Majesty vested, empowering any person to
make rules and orders in respect of courts or administrative
authorities acting for any territory shall not be invalid by
reason only that it confers, or delegates poweis to confer,
on courts or administrative authorities power to sit or act
outside the territory in respect of which they have jurisdic-
tion or functions^ or that it confers, or delegates power to
confer, appellate jurisdiction or functions on courts or
administrative authorities sitting 01 acting outside the
territory.

(6) In the Foreign Jurisdiction Act, 1890, the expression
"a British court in a foreign country" shall, in relation to
any part of India outside British India, include any person
duly exercising on behalf of His Majesty any jurisdiction,
civil or criminal, original or appellate, whether by virtue of
an Order in Council or not, and for the purposes of section

250

The Government of India Act, 1935. (Contd.)

nine of that Act the Federal Court shall, as respects app-
ellate jurisdiction in cases tried by a British Court in a
Federated State, be deemed to be a Couit held in a British
Possession or under the authority of His Majesty.

(7) Nothing in this Act bhall be construed as limiting
any right of His Majesty to determine by what courts
British subjects and subjects of foreign countries shall be
tried in respect of offences committed in Indian States.

(8) Nothing in this section affects the provisions of
this Act with respect to Berar.

Notes; — Referring to foreign jurisdiction in an Assigned
Tract, Lord Reading said in the course of a speech delivered
during the Viceregal visit to Bangalore in 1923; —

"This tract, you are aware, is not British India, but is a
portion of an Indian Slate assigned to the Government of
India to be held and administered as a Military Station. The
permanent status of the tract is that of an integral part of
Mysore State, though for a special reason, the administration
of this portion of State territory is carried on by a British
Resident responsible to the Government of India."

2 9 5. Provisions as to death sentences.

2 9 6, Courts of Appeal in revenue matters.

29 7. Prohibition of certain restrictions on internal
trade:— (i) No FroTincial Legislature or Government
shall—

(a) by virtue of the entry in the Provincial Legisla-
tive List relating to trade and commerce wnthin
the Province, or the entry in that list relating
to the production, supply, and distribution of
commodities, have power to pass any law^ or

251

The Indian Constitution Ch. IX

take any executive action prohibiting or
restricting the entry into, or export from, the
Province of goods of any class or description; or

(b) by virtue of anything in this Act have power to
impose any tax, cess, toll, or due which, as
between goods manufactured or produced in the
Province and similar goods not so manufactured
or produced, discriminates in favour of the for-
mer, or which, in the case of goods manufac-
tured or produced outside the Province, discri-
minates between goods manufactured or
produced in one locality and similar goods
manufactured or produced in another locality.

(2) Any law passed in contravention of this section
shall, to the extent of the contravention, be invalid.

29 8. Persons not to be subjected to disability by reason
of race, religion, &c. :— (i j No subject of His Majesty domi-
ciled in India shall on grounds only of religion, place of
birth, descent, colour or any of them be ineligible for office
under the Crown in India, or be prohibited on any such
grounds from acquiring, holding or disposing of property or
carrying on any occupation, trade, business or profession
in British India.

299. Compulsory acquisition of land &c.:— (l) No
person shall bo deprived of his property in British India
save by authority of law.

(2) Neither the Federal nor a Provincial Legislature
shall have power to make any law authorising the compul-
sory acquisition for public purposes of any land, or any
commercial or industrial undertaking, or any interest in,

252

The Government of India Act, 1935. (Contd.)

or in any company owning, any commercial or industrial
undertaking, unless the law provides for the payment of
compensation for the property acquired and either fixes the
amount of the compensation, or specifies the principles on
which, and the manner in which, it is to be determined.

3 00. Protection for certain rigtits, privileges, and
pensions.

3 01. Repeal of s. 1 8 of 2 1 Geo. 3, c. 7 0, and s. 1 2 of
3 7 Geo. 3.C. 14 2. (some obsolete enactments )

High Comjnissiofier.

302. High Commissioner for India.'— (i) There shall
be a High Commissioner for India in the United Kingdom
who shall be appointed, and whose salary and conditions of
service shall be prescribed, by the Governor-General, exerci-
sing his individual judgment.

(2) The High Commissioner shall perform on behalf of
the Federation such functions in connection with the busi-
ness of the Federation, and, in particular, in relation to the
making of contracts as the Governor-General may from time
to time direct.

General Provisions.

303. Provisions as to Sheriff of Calcutta.

304. Persons acting as Governor-General or Governor.

3 0 5. Secretarial staffs of Governor°General and
Governor.

306 Protection of Governor-General, Governor or
Secretary of Slate.

3 0 7. Removal of certain disqualifications on the
occasion of the first elections to Legislature.

253

The Indian Constitution Ch. IX

308. Procedure as respects proposals for amendment
of certain provisions of Act and Orders in council:— (i)

Subject to the provisions of this section, if the Federal
Legislature or an}' Provincial Legislature, on motions pro-
posed in each Chamber by a minister on behalf of the
council of ministers, pass a resolution recommending any
such amendment of this Act or of an Order in Council
made thereunder as is hereinafter mentioned, and on
motions proposed in like manner, present to the Governor-
General or, as the case may be, to the Governor an address
for submission to His Majesty praying that His Majesty
may be pleased to communicate the resolution to Parlia- 1
ment, the Secretary of State shall, within six months after
the resolution is so communicated, cause to be laid before
both Houses of Parliament a statement of any action which
it may be proposed to take thereon.

The Governor-General or the Governor, as the case
my be, when forwarding any such resolution and address ^
to the Secretary of State shall transmit therewith a state-
ment of his opinion as to the proposed amendment and,
in particular, as to the effect which it would have on the
interests of any minority, together with a report as to the
views of any minority likely to be affected by the proposed
amendment and as to whether a majority of the representa-
tives of that minority in the Federal or, as the case may be,
the Provincial Legislature support the proposal, and the
Secretary of State shall cause such statement and report
to be laid before Parliament.

In performing his duties under this subsection the
Governor-General or the Governor, as the case may be, shall
act in his discretion.

2^4

The Government of India Act, 1935. (Contd.)

(2) The amendments referred to in the preceding
subsection are —

(a) any amendment of the provisions relating to
the size or composition of the Chambers of the
Federal Ligislature, or the method of choosing
or the qualifications of members of that Legisla-
ture, not being an amendment which would
vary the proportion between the number of seats
in the Council of State and the number of seats
in the Federal Assembly, or would vary, either
as regards the council of State or the Federal
Assembly, the proportion between the number
of seats allotted to British India and the number
of seats allotted to Indian States;

{b) any amendment of the provisions relating to
the number of Chambers in a Provincial Legisla-
ture or the size or composition of the Chamber,
or of either Chamber, of a Provincial Legislature,
or to the method of choosing or the qualifica-
tions of members of a Provincial Legislature;

(c) any amendment providing that, in the case of
women, literacy shall be substituted for any higer
educational standard for the time being required
as a qualification for the franchise, or providing
that women, if duly qualified, shall be entered
on electoral rolls without any application being
made for the purpose by them or on their behalf;
and

(d) any other amendment of the provisions relating
to the qualifications entitling persons to be
registered as voters for the purposes of elections.

255

The Indian Constitution Ch. IX

(3) So far as regards any such amendment as is men-
tioned in paragraph {c) of the last preceding subsection, the
provisions of subsection (i) of this section shall apply to
a resolution of a Provincial Legislature whenever passed,
but, save as aforesaid, those provisions shall not apply to
any resolution passed before the expiration of ten years,
in the case of a resolution of the Federal Legislature,
from the establishment of the Federation, and, in the case
of a resolution of a Provincial Legislature, from the com-
mencement of Part III of this Act.

(4 ) His Majesty in Council may at an}'' time before
or after the commencement of Part III of this Act, whether
the ten years referred to in the last preceding subsection
have elapsed or not, and whether any such address as is
mentioned in this section has been submitted to His Majesty
or not, make in the provisions of this Act any such amend-
ment as is referred to in subsection ( 2 ) of this section :

Provided that —

(i) if no such address has been submitted to His
Majesty, then, before the draft of any Order
which it is proposed to submit to His Majesty
is laid before Parliament, the Secretary of
State shall, unless it appears to him that the
proposed amendment is of a minor or drafting
nature, take such steps as His Majesty may
direct for ascertaining the views of the Gov-
ernments and Legislatures in India, who would
be affected by the proposed amendment and
the views of any minority likely to be so affect-
ed, and whether a majority of the representatives

256

The Government of India Act, 1935, (Contd.)

of that minority in the Federal or, as the case
may be, the Provincial Legislature support the
proposal;

(ii) the provisions of Part II of the First Schedule
to this Act shall not be amended without the
consent of the Ruler of any State which will be
affected by the amendment.

Notes: — " By constituent powers" we mean powers con-
ferred by the Constitution Act upon some authority other than
Parliament to vary specified provisions of the Act, whether
or not such variation is required by the Act to be subject to
the approval of Parliament." ( J. P. C. R. )

309. Orders in Council :— Any power conferred by
this Act on His Majesty in Council shall be exercisable only
by Order in Council, and subject as hereinafter provided,
the Secretary of State shall lay before Parliament the draft
of any Order which it is proposed to recommend His Majesty
to make in Council under any provision of this Act, and
no further proceedings shall be taken in relation thereto
except in pursuance of an address presented to His Majesty
by both Houses of Parliament praying that the Order may
be made either in the form of the draft, or with such
amendments as may have been agreed to by resolutions of
both Houses ;

Provided that, if at any time when Parliament is dis-
solved or prorogued, or when both Houses of Parliament
are adjourned for more than fourteen days, the Secretar;
of State is of opinion that on account of urgency an Order
in Council should be made under this Act forthwith, it
shall not be necessary for a draft of the Order to be laid

c.L. 33 257

The Indian Constitution Ch. IX

before Parliament, but the Order shall cease to have effect
at the expiration of twenty-eight days from the date on which
the Commons House first sits after the making of the Order
unless within that period resolutions approving the making
of the Order are passed by both Houses of Parliament.

( 2 ) Subject to any express provision of this Act, His
Majesty in Council may by a subsequent Order, made in
accordance with the provisions of the preceding subsection,
revoke or vary any Order previously made by him in
Council under this Act.

( 3 ) Nothing in this section applies to any Order of
His Majesty in Council made in connection with any appeal
to His Majesty in Council, or to any Order of His Majesty
in Council sanctioning the taking of proceedings against a
person who has been the Governor-General, His Majesty's
Representative for the exercise of the functions of the Crown
in its relations with Indian States, the Governor of a Pro-
vince or the Secretary of State,

3 10. Power of His Majesty in Council to remove
difficulties.

Interpretation,

311. Interpretation. &c.

"Indian State" includes any territory, whether descri-
bed as a State, an Estate, a Jagir or otherwise,
belonging to or under the suzerainty of a Ruler
who is under the suzerainty of His Majesty and
not being part of British India;

"Ruler" in relation to a State means the Prince, Chief
or other person recognised by His Majesty as the
Ruler of the State.

358

tHE Government of India Act, 1935. (Contd.)

"railway" includes a tramway not wholly within a
municipal area;

"federal railway" does not include an Indian State
railway but, save as aforesaid, includes any railway
not being a minor railway;

"Indian State railway" means a railway owned by
a State and either operated by the State or
operated on behalf of the State otherwise than in
accordance with a contract made with the State
by or on behalf of the Secretary of State in
Council, the Federal Government, the Federal
Railway Authority, or any company operating
a federal railway;

"minor railway" means a railway which is wholly
situate in one unit and does not form a continuous
line of communication with a federal railway,
whether of the same gauge or not.

PART XIII.

TRANSITIONAL PROVISIONS.
3 12. Operation of Part XIII.

3 13. Executive Government.

3 1 4. Control of the Secretary of State.

3 15. Sterling loans:— (i) While this Part of this Act
is in operation, no sterling loans shall be contracted by the
Governor-General in Council, but in lieu thereof, if provision
is made in that behalf by an East India Loans Act of the
Parliament of the United Kingdom, the Secretary of Stato
may. within such limits as may be prescribed by the Act,

259

The Indian Constitution Ch. IX

contract such loans on behalf of the Governor-General in
Council.

3 16. Legislature.

3 17. Continuance of certain provisions of Qovernment
of India Act: — (i) The provisions of the Government of
India Act set out, with amendments consequential on the
provisions of this Act, in the Ninth Schedule to this Act
( being certain of the provisions of that Act relating to the
Governor-General, the Commander-in-Chief, the Governor-
General's Executive Council and the Indian Legislature and
provisions supplemental to those provisions ) shall, subject
to those amendments, continue to have effect notwithstand-
ing the repeal of that Act by this Act :

3 1 8. Provisions as to Federal Court and certain other
Federal authorities: — (i) Notwithstanding that the Federa-
tion has not yet been established, the Federal Court and
the Federal Public Service Commission and the Federal
Railway Authority shall come into existence and be known
by those names, and shall perform in relation to British
India the like functions as they are by or under this Act
to perform in relation to the Federation when established.

3 19. Rights and liabilities of Governor-General in
Council and Governor-General to continue after establish-
ment of Federation.

Part xiv.
*commencement, repeals, &c.

320. Commencenient.

321. Repeals.

*See Summary.
260

CHAPTER X

THE GOVERNMENT OF INDIA ACT, 1935.
SCHEDULES.

FIRST SCHEDULE.

Composition of the Federal Legislature.

Part I.
Represektatives of British India.

ta* ••• ••• •••

The Federal Assembly.

• •• ••• ••• •!•

20. The provisions of this paragraph shall have eflec6
with respect to the general seats reserved in any Governor's
Province for members of the scheduled castes ; —

For the purposes of a general election of members of the
Federal Assembly, —

(a) there shall be a primary electorate consisting of
all persons who were successful candidates at the
primary elections held, in accordance with the
provisions of the Fifth Schedule to this Act, on the
occasion of the last general election of members
of the Legislative Assembly of the Province for the
purpose of selecting candidates for seats reserved
for members of the scheduled castes;

(6) the members of the primary electorate so constitu-
ted shall be entitled to take part in a primary
election held for the purpose of electing four
candidates for each seat so reserved; and

261

The Indian Constitution Ch. X

21. For the purpose of choosing persons to fill the
women's seats in the Federal Assembly there shall be for
British India an Electoral College consisting of such women as
are members of the Legislative Assembly of any Governor's
Province, and the person to fill a M^oman's seat allotted to any
particular Province shall be chosen by the members of the
College.

Rules regulating the conduct of elections by the wo-
men's Electoral College shall be such as to secure that, of the
nine women's seats allotted to Provinces, at least two are held
by Muhammadans and at least one by an Indian Christian.

22. For the purpose of choosing persons to fill the Anglo-
Indian, European and Indian Christian seats in the Federal
AssemV>ly, there shall be for British India three Electoral
Colleges consisting respectively of such persons as hold an
Anglo-Indian, a European or an Indian Christian seat in the
Legislative Assembly of any Governor's Province, and the
person to fill an Anglo-Indian, European or Indian Christian
seat allotted to any particular Province shall be chosen by the
members of the appropriate electoral college.

In choosing at a general election the persons to fill the
Indian Christian seats allotted to the Province of Madras, the
Indian Christian Electoral College shall vote in accordance
with the principle of proportional representation by means of
the single transferable vote.

23. Persons to fill the seats in the Federal Assembly
which are to be filled by representatives of commerce and
industry, landholders and representatives of labour shall bo
chosen —

The Government of India Act, 1935. (Schedules.)

(a) in tlie case of a seat allotted to a Province which
is to be filled by a representative of commerce
and industry, by such chambers of commerce and
similar associations voting in Ruch manner as may
be prescribed ;

(h) in the case of a seat allotted to a Province which
in to be filled by a landholder, by such persons
voting in such territorial constituencies and in
such manner as ma}' be prescribed;

(v) in the case of a seat allotted to a Province which

is to be filled by a representative of labour, by

such organisations, or in such constituencies and

in accordance with such manner of voting as may

be prescril)ed;

{d) in the case of one of (ho non-jTOvincial seats
which are to be filled b\' representatives of
commerce and industrj', by such Associated
Chambers of Commerce, in the case of another
such seat by such Federated Chambers cf Com-
merce and in the case of the third such seat by such
commercial bodies in Northern India, voting in
each case in such manner as may bepresciibed; and

(e) in the case of the non-[irovincial seat which is to
be filled by a representative of labour, by such
organisations voting in such manner as may be
prescribed.

24. Persons to fill the seats in the Federal Assembly
allotted to Chief Commissioners' Provinces as general seats or
Muhammadan seats shall be chosen —

(a) in the case of Coorg, by the members of the Legis-
lative Council; and

2^3

The Indian Constitution Ch. X

(h) in other cases in such manner as may be pres-
cribed.

25. A person shall not be qualified fo hold a seat in the
Federal Assembly, unless—

(i) in the case of a general seat, a Sikh seat, a
Muhammadan seat, an Anglo-Indian seat, a
European seat, an Indian Christian seat or a
woman's seat allotted to a Governor's Province or
the Province of Coorg, he is qualified to hold a seat
of the same class in the Legislative Assembly, or,
in the case of Coorg, the Legislative Council, of
that Province ;

(ii) in the case of any other seat, he posKsesses such
qualifications as may be prescribed.

General.

26. (1) In the foregoing provisions of this Schedule the
following expressions have the meanings hereby assigned to
them, that is to say : —

" a European " means a person whose father or any of
whose other male progenitors in the male line is
or was of European descent and who is not a
native of India;

" an Anglo-Indian " means a person whose father or
any of whose other male progenitors in the male
line is or was of European descent but who is a
native of India ;

•' an Indian Christian " means a person who professes
any form of the Christian religion and is not a
European or an Anglo-Indian;

264

The Government of India Act, 1935. (Schedules)

'* tlie scheduled castes " means such castes, races or
tribes or parts of or groups within castes, races or
tribes, being castas, races, tribes, parts or groups
which appear to His Majesty in Council to
correspond to the classes of persons formerly
known as " the depressed classes," as His Majesty
in Council may specif}'.

TABLE OF SEATS.

The Council of State.
Representatives of British India.

Allocation of seats.

Province or
Community.

Total
seats.

General
seats.

Seats for

Scheduled

Castes.

Sikh
seats.

Muham-

madan

seats.

Women's
seats.

Madras

Bombay

Bengal

United Provinces ...

Punjab

Bihar

Central Provinces

and Berar

Assam

North-West Frontier

Province

Orissa

Sind

British Baluchistan

Delhi

Ajmer Merwara
Coorg ••• .11 •••
Anglo-Indians
Europeans ...■«-•' ...
Indian Christians...

20
16
20
20
16
16

8
5

5
5
5
1

1
1
1

"7
2

14
10

8
11

3
10

6
3

1
4
2

1
1

• • ■

1
1

4
4
10
7
8
4

4
1
3

• • •

• * •

Totals ...

i 150

6 4

C.L

The Indian Constitution

Ch. X

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266

The Government of India Act, 1935. (Schedules)

Part II.
Representaives of Indian States.

4. A person shall not be qualified to be appointed under
this Part of this Schedule to fill a seat in either Chamber
of the Federal Legislature unless he —

( i ) is a British subject or the Ruler or a subject of an
Indian State which has acceded to the Federation;
and

(ii) is, in the case of a seat in the Council of State,
not less than thirty years of age and, in the case
of a seat in the Federal Assembly, not less than
twenty-five years of age:

Provided that —

( a ) the Governor-General may in his discretion declare
as respects any State, the Ruler of which at the
date of the establishment of the Federation was
by reason of his minority not exercising ruhng
powers, that sub-paragraph (i) of this paragraph
shall not apply to any named subject, or to
subjects general I3', of that State until that State
comes under the rule of a Ruler who is of an age
to exercise ruling powers; and

( 6 ) sub-paragraph (ii) of this paragra}h shall not
apply to a Ruler who is exercising ruling powers.

6. Subject to the special provisions hereinafter contained
with respect to the appointment of persons to represent certain
States and groups of States comprised in Divisions XVI and
XVII of the Table of Seats,—

267

The Indian Constitution Ch. X

( i ) the Rulers of States constituting a group of States
to which a seat in the Council of State is allotted
in rotation appoint a person to fill that seat; and

( ii ) the Rulers of the States constituting a group of
States to which a seat in the Federal Assembly
is allotted shall appoint jointly a person to fill
that seat:

Provided that the Rulers of two or more States entitled
to appoint in rotation a person to fill a seat in the Council
of State allotted to a group of States may by agreement, and
with the approval of the Governor-General in his discretion,
appoint jointly a person to fill that seat.

7. The period for which a person shall be appointed
to fill a seat shall be —

( i ) in the case of a person appointed to fill a seat in
the Council of State —

( a ) by the Ruler of a State entitled to soparate
representation, nine years;

( b ) jointly by the Rulers of all the States in a
group which have acceded to the Federation,
three years;

(c) by the Ruler of a State appointing in rota-
tion, one year subject, however, to the special
provisions of the next succeeding paragraph
with respect to certain States therein
mentioned;

(d) jointly by Ruler« of some only of the States
in a group which have acceded to the Federa-
tion, a period equal to the aggregate of the

268

The Government of India Act, 1935. (Schedules)

periods for which each of them might in rota-
tion have appointed a person to hold that
seat or three years, whichever may be the
shorter period;

( 0 ) in any other manner, three years; and
(ii) in the case of a person appointed to fill a seat in
the Federal Assembly, until the dissolution of the
Assembly:

8. The Ruler of a State mentioned in this paragraph
when appointing in rotation a person to fill a seat in the
Council of State shall, notwithstanding anything in the prece-
ding paragraph, be entitled to appoint that person to fill
the seat —

(a ) in the case of the Rulers of Panna and of Mayur-
bhanj, for two years; and

(6) in the case of the Ruler of Pudukkottai, for three
years.

9. Subject as hereinafter provided, the Rulers of two
or more States forming a group to which one seat in either
Chamber of the Federal Legislature is allotted shall, in choos-
ing a person to be appointed by them jointly to fill that seat,
each have one vote, and in the case of an equality of votes
the choice shall be determined by lot or otherwise in such other
manner as may be prescribed:

Provided that in choosing a person to be so appointed
the Ruler of a State mentioned in subparagraph (a) of the
preceding paragraph shall be entitled to two votes and the
Ruler of the state mentioned in subparagraph (6) of that
paragraph shall be entitled to three votes.

269

The Indian Constitution Ch, X

10. A seat in either Chamber allotted to a single State
shall remain unfilled until the Ruler of that State has acceded
to the Federation^ and a seat in either Chamber which is the
only seat therein allotted to a group of States shall remain
unfilled until the Rulers of at least one-half of those States
have so acceded but, subject as hereinafter provided, so long
as one tenth of the seats in either Chamber allotted either to
single States or to groups of States remain unfilled by reason
of the non accession of a State or States, whether such non-
accession be due to the minority of a Ruler or to any other
cause, the persons appointed by the Rulers of States to fill seats
in that Chamber may from time to time in the prescribed
manner appoint persons, not exceeding one-half of the number
of seats so unfilled to be additional members of that Chamber:

Provided that the right to appoint such additional mem-
bers shall not be exercised after the expiration of twenty years
from the establishment of th» Federation.

A person appointed under ithis paragraph as an additional
member of either Chamber shall be appointed to fill his seat
for a period of one year only.

11. Persons to fill the seats in the Federal Assembly
allotted to any group of States mentioned in Division XVI of
the Table of Seats as entitled to appoint persons to fill three
such seats shall be appointed in the prescribed manner by the
Rulers of such of the States in the group as have acceded to
the Federation:

Provided that —

(a) until the Rulers of two of those States have so
acceded, all the three seats shall remain unfilled;
and

:70

The Government of India Act, 1935. (Schedules)

(b) until the Rulers of four of those Statfis have so
acceded, two of the three seats shall remain
unfilled; and

( c ) until the Rulers of six of those States have so
acceded, one of the three seats shall remain
unfilled.

Seats in the Federal Assembly remaining unfilled bj''
reason of the provisions of this paragraph shall be treated as
seats remaining unfilled for the purposes of the last preceding
paragraph.

12, The provisions of this paragraph shall apply with
respect to the two seats in the Council of ^State and the five
seats in the Federal Assembly allotted to the States comprised
in Division XVII of the Table of Seats: —

(a) the States in question are such States, being States
which on the first day of Januar}', nineteen
hundred and Ihirtyfive, were included in the
Western India States Agency, the Gujarat States
Agency, the Deccan States Agency, the Eastern
States Agency, the Central India Agency or the
Rajputana Agency, or were in political relaJions
with the Government of the Punjab or the Govern-
ment of Assam, as may be enumerated in rules
made by the Governor General in his discretion;

(& ) the Governor-General shall, in the rules so made
by him, divide the said States into five groups,
and of the five seats in the Federal Assembly
allotted to those States one shall be deemed to be
allotted to each of the groups;

271

The Indian Constitution Ch. X

( c ) a seat in tlie Federal Assembly allotted to one of
the said groups shall remain unfilled until the
Rulers of at le»£t one-half of the States in the
group have acceded to the Federation, but, save as
aforesaid, a person to fill such a seat shall be
appointed in the prescribed manner by the Rulers
of such of the States in the group as have acceded
to the Federation;

(d) persons to fill the two seats in the Council of State
allotted to the States comprised in the said
Division shall be appointed in the prescribed
manner by the persons appointed under the preced-
ing subparagraph to fill seats in the Federal
Assembly:

Provided that, so long as three of the five seats in
the Federal Assembly remain unfilled, one
of the two seats in the Council of State shall
also remain unfilled;

( e ) seats in the Federal Assembly or Council of State
remaining unfilled by reason of the provisions of
this paragraph shall be treated as seats remaining
unfilled for the purposes of the last but one
preceding paragraph.

272

The Government of India Act, 1935. (Schedules)

TABLE OF SEATS.

Tfi6 Council of State and Vie Federal Ai^^emhly.
Representatives of Indian States.

ii 1

4 i

States and

or seats
ncil of

States and

0: seats
Federal
bly.

•

Groups of States.

M umber
in Cou

State.

Groups of Slates.

s 2^ a

§.S<5

Populat

Division L

Hyderabad

Hyderabad
Division 11.

14,436,148

Mysore

Mysore
Division III.

6,557,802

Kashmir

]

Kashmir
Division IV.

3.646,243

Qwalior

Gwalior
Division V.

3.5-73.070

Baroda

Baroda
Division VI.

2,443,007

Kalat

2
1

Kalat
Division VII.

342,101

Sikkim

• ■ ■

109,808

c,L.35

2r3

The Indian Constitution

Ch. X

States and
Groups of States.

tfl

(1>

*; 1

o
O

States and
Groups of States.

-tJ

cri

t~i

r-f

. 1

^>^

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■4-^

□5

£3
.2

1. Rampur

2, Benares

1 . Travaneore . ,

2. Cochin

3. Pudukkottai .
Banganapalle
Sandur

1. Udaipur

2. Jaipur

3. Jodhpur

4. Bikaner

5. Alwar

6. Kotah

7. Bharatpur

8. Took

9. Dholpur

10. Karauli

11. Bundi

12. Sirohi

IB. Dungarpur

14. Banswara

15. Partabgarh
Jhalawar

16. Jaisalmer
Kishengarh

1
1

2
2

}

Division VIII.

1. Rampur

2. Benares

Division IX.

1. Travaneore .

2. Cocliin
Pudukkottai .
Banganapalle
Sandur

Division X.

1. Udaipur

2. Jaipur

3. Jodiipur
4 Bikaner

5. Alwar

6. Kotah

7. Bharatpur

8. Tonk

9. Dholpur
KarauU

10 Bundi
Sirohi

11. Dungarpur
BanBwara "

12. Partabgarh
Jhalawar

13. Jaisalmer
Kinhengarh

1
1

5
1

2
8
2
1
1
1
1
1

465,225
391;272

5,095,973

1,205,016

400,694

39,218

13,583

1 566,910

2'63i,775

2,125,982

936,218

749,751

685,804

486,954

817,360

254,986

140,525

216,722

216,528

227,544

260,670

76,539

107,890

76,255

85,744

vjBeaan-gefcwga^J

274

The Government of India Act, 1935 (Schedules).

States aud
Groups of States.

■*s

crt

«M

•-t-c

j::>

-4-3

-1

e«

_fl

States and
Groups of States,

■i.9

>>*4

:v-l

-n

•

>.;

0:1
.D

-e

-1

013

,2;

a
o

1. Indore

2. Bhopal
llewa...
Datia ..
Orchha
Dhar ..,

7. Dewaa (Seuioiv
Dewas (Junior')

8. Jaora..-
Ratlam

9. Panna
Samthar
Ajaigarli

10. Bijawar
Charkhari
Chhatarpur ..

11. Baoni...
Nagod
Maihar
Baraundha ...

12. Barwani

Ali Rajpur ...
Shahpura

13. Jhabua
Sailana
Sitamau

14. Rajgarh
Narsingarb ..
Khilchipur . .

2
1
1
1

DirsioN XI.

1, Indoi'e

2. Bhopal
'S. Rewa . . .

4. Datia ...
Orchha

5. Dhar ...
Dewas (Seuicr
Dewas (Junior

6. Jaora . . .
Ratlam

7. Panna...
Samthsr.
Ajoigarh

8. Bijawar
Charkhari
Chhatarpur

9. Baoni . . .
Nagod
Waihar
Baraundha

10. Barwani
Ali Rajpur
Shahpura

11. Jhabua
Sailana
Sitamau

12. Rajgarh
Narsiugarh
Khilchipur

1,32.5,089

729 955

1.587,445

158,834

314,661

243,430

83,321

70513

3 00.166

107,321

212.130

83.307

85,895

115,852

120,351

161,-67

19,132

74,589

68,9.91

16,071

141 110

101 963

54,233

145,522

35,223

2^,-^22

134,891

113,873

45,583

27P

The Indian Constitution

Ch. X.

States aud
Groups of States.

•58 O
O
CO -^

o1
u a .

0^ o ©

-^2 O ■*=

3 .5 CO

States and
Groups of States.

®
o

u
<D

<i> >»

2 S

] . Cutch
2 Idar ...

3. Nawanagar

4. Bhavaagar

5. Junagadh

6. Raj pip] a
Palanpur

7. Dhrangadlira
Gondal

8. Por bandar
ilorvi...

9 Radhanpur
Waukaner
Palitana

10. Cainbay
Dharampur
Balasinor

11. Barift ...
Chhota Udepur
Sant . . .
Lunawada

1 2. Bansda
Sachiu
Jawhar
Danta...

13. Dhrol...
Limbdi
Wadlnvan
Rajkot

Division XII.

1. Cutch

2. Idar ...

3. Nawanagar

4. Bhavnagar

5. Junagadh

6. Rajpipla
Palanpur

7. Dhrangadhra
Gondal

8. Por bandar
Morvi...

9. Radhanpur
Wankaner
PaUtana

10. Cam bay
Dharampur
Balasinor

11. Baria ...
Chhota Udepur
Sant ...
Lunawada

12. Bansda
Sachin
Jawhar
Danta...
Dhrol...
Limbdi
Wadhwan
Rajkot

}
}
}

1
1
1
1
1

> 1

514.307

262,660

409,192

500,274

545,152

206,114

264.179

88,961

205 846

115,673

118,023

70,530

44,259

62,150

87,761

112,031

52,525

159.429

144,640

83,531

95,162

48,839

22,107

57,261

26,196

27,639

40.088

42,602

75,54-0

':7^

The Government of India Act, 1935 (Schedules).

States and
Groups of States.

05
*= ti-i

aS o

tE — <

--*- 'S

<I> o

1 — ' ..-1 ^-^
2;

States and
Groups of States,

eS t->
0) o

0) 0:1 S

a
o

1 Kolhapur

2. Sangli...
Savautvadi

3. Janjira
Mudhol
Bhor ...

4. Jamkhandi ..
Miraj (Senior)
Miraj (Junior)
Kurundwad ..

(Senior)

, Kurundwad ..

(Junior)

5. Akalkot
Phaltan
Jath ...
Aundh

}

2
1

}

1^ 1

Ramdurg

:::J

5^ 1

IVISION XIII.

1. Kolahpur

2. Sangli ••• X
Savautvadi ... /

3. Janjira
Mudhol
Bhor ...

4. Jamkliandi ..
j\Iiraj (Senior)
Miraj (Junior)
Kurundwad ..

(Senior)

Kurundwad ..

(Junior)

5. Akalkot
Phaltan
Jath ...
Aundh
Kamdurg

Division XIV,

1. Patiala

2. Bahawalpur ...

3. Khairpur

0. Khairpur

4. Kapurthala ...

5. Jind ...

G. Nabha

G Nabha

1
1

y 1

I
I

957.13T

258,442

230,589

110,379

62,832

141,546

114,270

93,938

40,684

44,204

S9,o83

92,605
58,761
91,099
76,507
35,454

1,625,520
984,612
227,183
316,757
324,676
287,574

277

The Indian Constitution

Ch. X

eS O

03 U
© ®

^ 772

JC -73 . •

^4-1 U

14-1 © P*-.

States and

o a

States and

oc=^3

Groups of States.

umber
iu Gou
State.

Groups of States.

umber
in the
Assem

opulat

Division XIV — cont.

7. Tehri-Garhwal

349,573

7. Mandi

]

8. Mandi

)

207,465

Bilaspur

> 1 , Bilaspur

\ 1

100,994

Siiket

Suket

)

58,408

8. Tehri-Garhwal

)

Sirmur

■■ \

9. Sirmur

\ 1

148,668

Chamba

146,870

9. Faridkot

10. Faridkot

)

164.364

Malerkotla ...

\ 1

83,072

Loharu

)

23,338

Div

ISION XV.

1. Gooeh Behar...

1. Cooch Behar ...

590.886

2. Tripura

2, Tripura

382,450

Manipur

3. Manipur

445,606

Div

ISION XVI.

] . M ay urbhanj . . .

• 1

1. May urbhanj ...

889,603

Sonepur

2. Sonepur

237,920

2. Patna

3. Patna...

566,924

Kalahandi

4. Kalahandi

513,716

3. KoeDJhar

•v

5 Keonjhar

460,609

Dhenkanal ...

6. Gangpur

356,674

Naya^arh

> I

7. Bastar

524,721

Talcher •«.

8. Surguja

501,939

Nilgiri

278

The Government of India Act, 1935. (Schedules).

3 4

X --T

*^ U-l

•J (36

e8 0

ca fc.

(D (V,

States and "S c

States and

•ot s
Fed
bly.

Groups of States. «R § «^

3 .5 CO

Groups of States. J ^ g

a -1^ "'J
3 .5 <5

■*3
0

Div
1

isioN XVI — cont.

4. Qangpur

-j

9. Dhenkanal ...

-»

284',326

Bamra

Nayngarh

142.40G

Seraikela

- 1

Seraikela

143,525

Baud

Baud...

135,248

Bonai

Taleher

> 3

69,702

5. BaBtar

Bonai

80,186

Surguja

Nilgiri

68,594

Raigarh

Bamra

151,047

Nandgaon

j '

10, Raigarli

277,569

6. Khairagarh ..."

Khairagarli ...

157,400

Jashpur

Kanker ... ^ 1

J ash pur

193,698

Kanker

► 3

136,101

Korea

Sarangarh

128,967

Sarangarh ... J

Korea

90,886

Nandgaon

* 1

182,380

Div

ISION XVII.

States not men-

3,032,197

tioned in any of

the preceding

tlie preceding

Divisionri, but de-

Divisions, but de-

scribed in para-

scribe<l in para-

graph 12 of this

Part of this

Part of thisSche- 1

Schedule.

dule.

Total population ( f the States in this Table: 78,981,912

279

The Indian Constitution Ch. X

THIRD SCHEDULE.

Provisions as to Govehnor-General and Governors

OF Provinces.

4. There shall be granted to and in respect of the
Governor-General and the Governor of every Province such
customs ];rivileges as may be specified by Order in Council.

FOURTH SCHEDULE.

FoBMs OF Oaths or Affirmations.

Form of oath or affirmation to be taken or made by a
member of a Legislature who is the Ruler of an Indian State: —

" I, A. B,, having been elected [ or nominated or
appointed ] a member of this Council [ or Assembly ],
do solemnly swear [ or afHrm ] that I will be faithful
and Ijear true allegiance in my capacity as Member of
(his Council [ or Assembly ] to his Majesty the King,
Emperor of India, His heirs and successors, and that
1 will faithfully discharge the duty upon w^hich I am
about to enter."

280

The Government of India Act, 1935. (Schedules).

Form of oath or aflTirnution to be taken or made l)y a
member of a Legialatnre who is a subject of the Ruler of an
Indian State; —

" I, A. B., havinfj been elected [ or nominated
or appointed] a member of this Council [or Assembly],
do solemnly swear [ or affirm ] that saving the faith
and allegiance which I owe to C. D., his heirs and
successors, I will be faithful and bear true allegiance in
my capacity as Member of this Council [ or Assembly]
to His Majesty the King, Emperor of India, His heirs
and successors, and that I will faithfully discharge the
duty upon which I am about to enter."

FIFTH SCHEDULE.

Composition of Provincial legislatures.

General qualification for Membership.
1. A person shall not be qualified to be chosen to fill
a sent in a Provincial Legislature unless he —

[a] is a British subject or the Ruler or a subject of an

Indian State which has acceded to the Federation

or, if it is so prescribed with n^spect to any

Province, the Ruler or a subject of any prescribed

Indian State; and

{b) is, in the ease of a seat in a Legislative Assembly,
not less than twenty-five years of age, and in
the case of a seat in a Legislative Council, not less
than thirty years of age; and

C.I, 36 281

The Indian Constitution Ch. X

(fi) possesses such, if any, of the other quahfications
specified in, or pj-escribed under, this Schedule as
may be appropriate in his case.

12. A person shall not be qualified to hold a seat in the
Legislative Assembly of a Province unless —

(a) in the case of a seat to be filled by a woman, by a
European, by an Indian Christian, by a re-
presentative of backward areas or backward tribes,
by a representative of commerce, industry, mining
and planting, by a representative of universities or
by a representative of labour, he possesses such
qualifications as may be prescribed; and

( h) in the case of any other seat, he is entitled to
vote in the choice of a member to fill that seat
or any other seat of a similar class in that
Province.

18, The terra of office of a member of the Legislative
Council of a Province, other than a member chosen to fill a
casual vacancy, shall be nine years, but upon the first constitu-
tion of the Council the Governor in his discretion shall make
by order such provision as he thinks fit, by curtailing the term
of oflSce of some of the members then chosen, for securing that, as
nearly as may be, one-third of the members holding seats of
each class shall retire in every third year thereafter.

A member chosen to fill a casual vacancy shall be chosen
to serve for the remainder of his predecessor's term of office.

282

The Government of India A.ct, 1935. (Schedules).

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283

The Indian Constitution

Ch. X

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284

The Government of India Act, 1935. (Schedules.)

SIXTH SCHEDULE.

Provisions as to Franchise.
PART 1.
General,

4. No person shall be included in the electoral roll for,
or vote at any election in, any territorial constituency if
he ia of unsound mind and stands so declared by a competent
court.

5. No person shall be included in the electoral roll for
a Sikh constituency, a Muhammadan constituency, an Anglo-
Indian coustituencA', a European constituency or an Indian

Christian constituency unless he is a Sikh, a Muhammadan,
an Anglo-Indian, a European or an Indiau Christian, as the
case may be.

6. No person who is or is entitled to be included in the
electoral roll for any Sikh constituency, Muhammadan consti-
tuency, Anglo-Indian constituency, European constituency or
Indian Christian constituency in any Province shall be included
in the electoral roll for a general constituency in that Province,
or vote at any election to fill a general seat therein:

Provided that this paragraph shall not apply in relation
to the general seats reserved for women in Assam aihd Orissa
or the constituencies for the election of persons to fill those
seats.

7. No person shall in any Province vote at a general
election in more than one territorial constituency, and in each

285

The Indian Constitution Ch. X

Proviuce such provisions, if any, as may be prescribed in rela-
tion to that Province shall have effect for the purpose of
preventing persons being included in the electoral roll for
more than one territorial constituency in the Province:

Provided that, in any Province in which territorial con-
stituencies have been specially formed for the purpose of elect-
ing women members, nothing in this paragraph or in any such
provisions shall prevent a person from being included in the
electoral roll for, and voting at a general . election in, one
territorial constituency so formed and also one territorial
constituency not so formed.

9. No person shall vote at any election in any territori-
al constituency, if he is for the time being undergoing a sen-
tence o f transportation, penal servitude, or imprisonment.

10. The following provisions shall have effect with
respect to the enfranchisement of women in respect of the
qualifications of their husbands —

{a) a woman who, at the date of the death of her hus-
band is included in an electoral roll for a territorial
constituency by virtue of his qualifications shall,
notwithstanding anything in the subsequent
provisions of this Schedule, continue to be on the
roll for that constituency unless she remarries or
becomes disqualified under the foregoing provisions
of this Schedule for inclusion in that roll;

(6) not more than one woman shall at any one time
appear in the electoral rolls for the territorial
constituencies in a Province in respect of the
qualifications of any particular man and any
question which of several women is to be selected

^86

The Government of India Act, 1935. (Schedules).

for inclusion bIirII be determined in the prescribed
manner :

Provided that, if a woman who is entitled by virtue of
subparagrapli (a) of this paragraph to remain on the roll of a
territorial constituency changes her place of residence, then
if she so desires, she may, on any subsequent revision of the
roll, be transferred to the roll of such other territorial
constituency as may be appropriate.

PART V

The United Provinces.

General reqmrment as to residence.

1 — (1) A person shall not be qualified to be included in
the electoral roll for any territorial constituency unless he is
resident in the constituency.

(2) For the purposes of this Part of this Schedule a
person shall be deemed to be resident in any area if lie ordi-
narily lives in that area or maintains a dwelling house therein
ready for occupation in which he occasionally dwells.

Qualifications dejjendent on taxation.

2. Subject to the provisions of Part I of this Schedule
and to any overriding provisions of this Part of this Schedule,
a person shall be qualified to be included in the electoral roll
for any territorial constituency if he —

(a) was assessed during the previous financial year
to income tax; or

(h) was, in an area wholly or partly within the
constituency in which a municipal tax is in force,

287

The Indian Constitution Ch. X

assessed in the previous financial year to mun'cipal
tax on an income of not less than one hundred and
fifty rupees per annum.

Qualifications de-pemUni on jiroperty.

3. Subject as aforesaid, a person shall also be qualified to
be included in the electoral roll for any territorial constituency
if he is the owner or tenant of a house or building in the
constituency the rental value whereof is not less than twenty-
four rupees per annum.

4. Subject as aforesaid, a person shall also be qualified to
be included in the electoial roll for any territorial constituency
if he—

(«) owns land in the constituency on which land
revenue of not less than five rupees per annum
is payable ; or

( h) owns land in the constituency free of land revenue,
if the land revenue nominally assessed on the land
for ^determining the amount of rates payable
in respect of the land, either alone or together
with any land revenue payable by him as owner
of other land in the constituency, amounts to
not less than five rupees per annum ; or

(r) is a tenant of land in the constituency in respect
of which rent of not less than ten rupees per
annum, or rent in kind equivalent to not less
than ten rupees per annum, is payable; or

(r?) is an under-proprietor in Oudh of land in the
constituency in respect of which under-proprietary
rent of not less than five rupees per annum is
payable ; or

288

The Government of India Act, 1935. (Schedules).

(«) in the case of a conetitueney comprising any part
of the Hill Pattis ol Kuniaun, is resident in those
Hill Pattis and, in the conetituency, either is
owner of a fee siin})le estate in those Hill Pattis,
or is assessed to the j ayment of land revenue or
cesses of any amount in these Hill Pattis, or is a
Khaikar,

Educatiunal gualijieaiion.

5. Subject as aforepaid, a person shall also be qualified
to be included in the electoral roll for any territorial constitu-
ency if he is proved in the preEcribed manner to have passed
the upper primary examination, or an examination which is
prescribed as the equivalent thereof.

Qualif.cation by reason of sertice in His Majesty's forces.

6. Subject as afc resaid, a person shall also be qualified
to be included in the electoral roll for any territorial constitu-
ency if he is a retired, pensioned cr discharged officer, non-
commiseicned officer or soldier of Bis Majesty's regular military
forces.

Special provieion as to Shi^kars in the Hill Pattis

of Kumaun.

7. Subject as aforesaid, a person {>hall also be qualified to
be included in the electoral roll for any territorial constituency
comprising any part of ihe Hill Pattis of Kumaun if he is a
Shilpkar resident in a village in those Hill Pattis and is in the
prescribed manner belected and designated as their representa-
tive by the Shilpkar families of that village.

C.L. 37 289

The Indian Constitution Ch. X

Additional qucdifications for women.

8. Subject as aforesaid, a person who is a woman shall
also be qualified to be included in the electoral roll for any
territorial constituency —

(a) if she is the pensioned widow or the pensioned
mother of a person who was an ofEcer, non-
commissioned officer or soldier of His Majesty's
regular military forces; or

(6) if she is proved in the prescribed manner to be
literate; or

9. In relation to any territorial constituency, a husband
shall be deemed to possess the qualifications requisite for
the purposes of the last preceding paragraph if —

(a) he is the owner or tenant of a house or building
in the constituericy, the rental value whereof is
not less than thirty-six rupees per annum ; or

(b) was, in an area in which no house or building tax
is in force, assessed in the previous year in the
constituency to municipal tax on an income of not
less than two hundred rupees per annum; or

(6') owns land in the constituency in respect cf which
land revenue rmcunting to not less than twenty-
five rupees per annum is payable; or

(d) owns land in the constituency free of land revenue,
if the land revenue nominally assessed on the
land for detenniuing the amount of rates payable
in respect thereof, either alone or together with

29Q

The Government of India Act, 1935. (Schedules.)

any land revenue payble by him as owner in
resf ect of other ^ land in the constituencj',
amounts to not less than twenty-five rupees per
annum ; or

( e) is resident in the Hill Pattis of Kumaun and, in
the constituency, either owns a fee simple estate
situate in those Hill Pattis or is apsessed to the
payment of land revenue or ceeses of any amount
in those Hill Pattis, or is a Khaikar ; or

(/) is, in the constituency, a permanent tenure holder
or a fixed rate tenant as defined in the Agra
Tenancy Act, 1926, or an under- proprietor or
occupancy tenant as defined in the Oudh Rent
Act, ]&86, and is hable as such to rent cf not
less than twenty-five rupees per annum ; or

{g) holds in the constituency as a tenant, land in
respect of which a rent of not less than fifty
rupees per annum or a rent in kind equivalent to
not less than fifty rupees per annum is pay-
able; or

{h) was assessed in the previous financial year to
income tax ; or

(t ) is a retired, pensioned or discharged officer, non-
commissioned officer or soldier of His Majesty's
regular military forces.

A'p]plicatioii acceBsary for enrolment in certain cases,

10 — (1) No person shall by virtue of paragraph five or
subparagraph (a) or sub-paragraph (h) of paragraph eight
of this Part of this Schedule, or by virtue of her husband

?94

The Indian Constitution Ch. X

being a retired, pensioned or ^"diecharged officer, non-commi-
ssioned officer or soldier, be included in the electoral roll for any
territorial constituency unless application is made in the
prescribed manner by, or if it is bo prescribed, on behalf of,
that person that that person should be so included.

(2) On the preparation 6f the original electoral roll for
any rural constituency or on any revision of the electoral roll
for a rural constituency within three years from the commence-
ment of Part III of this Act, no person shall bj' virtue of her
hu>sband possessing any of the ether qualifications requisite for
the purposes of the said pRragraph eight be included in the
electoral roll unless application is made in the prescribed
manner by her, or if it is so prescribed, on her behalf, that she
should be so included,

Interpretation &c,

11.— (1) In this Schedule, in relation to the United
Provinces —

" owner " does not include a mortgagee or a lessee,
and <'own" shall be construed accordingly ;

" tenant " as resppcta any land in a rural area means
a tenant as defined in the Agra Tenancy Act,
1926, or the Oudh Rent Act, 1886, as the case
may be, and does not include a sub-tenant, and as
respects any house or building means a person
who occupies it«n payment ot rent, or in the case
of a house, not situate in military or police lines,
a person who occupies it rent free by virtue of any
office, service or employment ;

" under-proprietor ■' means an under- proprietor as
defined in the Oudh Rent Act, 1386 ;

2Q'Z

The Government of India Act, 1935. (Schedules)

" Khaikai* " means a person recorded as such in the
records of rights of laud in the Hill Pattis of
Kumaun ;

" building " means a building as defined in the United
Provinces Municipalities Act, 1916 ;

" rental value " means the value of a house or building
based on the amount of annual rent ;

'i municipal tax " and " house or building tax," mean
the taxes respectively known by those names
imposed under the United Provinces Municipali-
ties Act, 1916, the United Provinces Town Areas
Act, 1914, and the Cantonments Act, 1924;

" urban area " means a municipality or notified area as
defined in subsection (9) of section two, and sub-
section (2j of section three hundred and thirty-
seven of the United Provincs MunicipaUtiea Act,
1916, or a town area as defined in the United
Provinces Town Areas Act, 1914, or a canton-
ment ;

"rural area" means an area which is noj an urban
area.
(2) Where property is held or payments are made
jointly by, or assessments are made jointly en, the members of
a joint family or joint tenancy, the family or tenancy shall be
adopted as the unit for deciding whether under this Part ot
this Schedule the requisite qualj^cation exists, and if it does
exist, the person qualified shall be, in the case of a joint Hindu
family, the manager thereof or, if there is no manager, the
member nominated in that behalf by the majority of the family,
and in other cases the member nominated in that behalf by the
family or tenancy concornsd.

293

The Indian Constitution Cm. X

SEVENTH SCHEDULE.

Legislative Lists.

List L

Federal Legislative List.

3. His Majesty's naval, military and air forces borne on
the Indian establishment and any other armed force raised in
India by the Crown, not being forces raised for employment in
Indian States or military or armed police maintained by Pro-
vincial Governments; any armed forces which are not forces of
His Majesty, but are attached to or operating with any of His
Majesty's naval, military or air forces borne on the Indian
establishment; central intellligence bureau; preventive detention
in British India for reasons of State connected with defence,
external aflfairs, or the discharge of the functions of the Crown
in its relations with Indian Statea

2. Naval, military and air force works; local self-govern-
ment in cantonment areas ( not being cantonment areas of
Indian State troops ), the regulation of house accommodation
in such areas, and, within British India, the delimitation ofsuch
areas.

8. External affairs; the implementing of treaties and
agreements with other countries; extradition, including the
surrender of criminals and accused persons to parts of His
Majesty's dominions outside India.

4. Ecclesiastical afl'airs, including European cemeteries.

5. Currency, coinage and legal tender.

6. Public debt of the Federation.

^94

The Government of India'Act, 1935. (Schedules).

7. PoEts and telegraphs, including telephones, wireless,
broadcasting, and other like forms of communication; Post OflBee
Savings Bank.

8. Federal Public Services and Federal Public Service
Commission,

10. Works, lands and buildings vested in, or in the posse*
ssion of, His Majesty for the purposes of the Federation (not
being naval, military or air force vrorks), but, as regards pro-
perty situate in a Province, subject always to Provincial
legislation, save in so far as Federal law otherwise provides,
and, as regards property in a federated State held by virtue of
any lease or agreement with that State, subject to the terms of
that lease or agreement.

11. The Imperial Library, the Indian Museum, the
Imperial War l^Iuseum, the Victoria Memorial, and any similar
institution controlled or financed by the Federation.

12. Federal agencies and institutes for the following
purposes, that is to say, for research, for professional or techni-
cal training, or for the promotion of special studies.

13. The Benares Hindu University and the Aligarh
Muslim University.

14. The Survey of India, the Geological, Botanical and
Zoological Surveys of India; Federal meteorological organisa-
tions.

15. Ancient and historical monuments: archreological
sites and remains.

295

The Indian Constitution Ch. X

16. Censue.

17. Admission into, and emigration and expulsion from,
India, including in relation thereto the regulation of the move-
ments in India of persons who are not British subjects domi-
ciled in India, subjects of any Federated State, or British
subjects domiciled iu the United Kingdom; pilgrimages to
places beyond India.

18. Port quarantine ; seamen's and marine hospitals, and
hospitals connected with port quarantine.

19. Import and export across customs frontiers as defined
by the Federal Government.

20. Federal railways; the regulation of all railways other
than minor railways in respect of safety, maximum and
minimum rates and fnres, station and service terminal charges,
interchange of traffic and the responsibility of railway admi-
nistrations as carriers of goods and passengers; the regulation
of minor railways in respect of safety and the responsibility
of the administrations of such railways as carriers of goods and
passengers.

21. Maritime shipping and navigation, including shipping
and navigation on tidal waters; Admiralty jurisdiction.

22. Major ports, that is (o say, the declaration and deli-
mitation of such ports, and the constitution and powers of Port
Authorities therein.

23. Fishing and fisheries beyond territorial waters.

24. Aircraft and air navigation, the provision of aerodro-
mes, regulation of air traffic and of ssrodromes.

296

The Government of India Act, 1935. (Schedules)

25. Lif]jhthonse.s, including lightship's, beacons and other
provision for the safety of shipping and aircraft.

26. Carriage of passengers and goods by sea or by air.

27. Copyright, inventions, designs, trademarks and
merchandise marks.

28. Cheques, bills of exchange, promissory notes and
other like instruments.

29. Arms; firearms; ammunition.

30. Explosives.

31. Opium, so far as regatds cultivation and manufacture,
or sale for export.

32. Petroleum and other liquids and substances declared
by Federal law to be dangerously inflammable, so far as regards
possession, storage and transport.

33. Corporation, that is to say, the incorporation, regula-
tion and winding-up of trading corporations, including banking,
insurance and financial corporations, but not including corpora-
tions owned or controlled by a Federated State and carrying
on business only within that State or co-operative societies,
and of corporations, whether trading or not, with objects not
confined to one unit.

34. Development of industries, where development under
Federal control is declared by Federal law to be expedient in
the public interest.

35. Regulation of labour and safety in mines and oilfields.

36. Regulation of mines and oilfields and mineral develop-
ment to the extent to which such regulation and development

C.L. 38 297

The Indian Constitution Ch. X

under Federal control is declared by Federal law to be expedi-
ent in the public interest.

37. The law of insurance, except as respects insurance
undertaken by a Federated State, and the regulation of the
conduct of insurance business, except as respects business under-
taken by a Federated State; Government insurance, except so
far as undertaken by a Federated State, or, by virtue of any
entry in the Provincial Legislative List or the Concurrent
Legislative List, by a Province.

38. Banking, that is to say, the conduct of banking
business by corporations other than corporations owned or
controlled by a Federated State and carrying on business only
within that State.

39. Extension of the powers and jurisdiction of members
of a police force belonging to any part of British India to any
area in another Governor's Province or Chief Commissioner's
Province, but not so as to enable the police of one part to
exercise powers and jurisdiction elsewhere without the consent
of the Government of the Province or the Chief Commissioner,
as the case may be ; extension of the powers and jurisdiction
of members of a police force belonging io any unit to railway
areas outside that unit.

40. Elections to the Federal Legislature, subject to the
provisions of this Act and of any Order in Council made
thereunder.

41. 7 he salaries of the Federal Ministers, of the Presi-
dent and Vice-President of the Council of State and of the
Speaker and Deputy Speaker of the Federal Assembly; the
salaries, allowances and privileges of the members of the

298

The Government of India Act, 1935. (Schedules)

Federal Legislature; and, to such extent as is expressly autho-
rised by Part II of this Act, the punishment of persons who
refuse to give evidence or produce documents before Committees
of the Legislature.

42. Ofiences against laws with respect to any of the
matters in this list.

43. Inquiries and statistics for the purposes of any of
the matters in this list.

44. Duties of customs, including export duties.

45. Duties of excise on tobacco and other goods manu-
factured or produced in India except —

(a) alcoholic liquors for human consumption;

(6) opium, Indian hemp and other narcotic drugs and
narcotics; non-narcotic drugs ;

46. Corporation tax.

47. Salt.

48. State lotteries.

49. Naturalisation.

50. Migration within India from or into a Governor's
Province or a Chief Commissioner's Province.

51. Establishment of standards of weight.
62. Ranchi European Mental Hospital.

299

The Indian Constitution Ch. X.

53. Jurisdiction and powers of all courts, except the
Federal Court, with respect to any of the matters in this list
and, to such extent as is expressly authorised by Part IX of
this Act, the enlargement of the appellate jurisdiction of the
Federal Court, and the conferring thereon of supplemental
powers.

54. Taxes on income other than agricultural income.

55. Taxes on the capital value of the assets, exclusive
of agricultural land, of individuals and companies; taxes on
the capital of companies.

56. Duties in respect of succession to property other
than agricultural land.

57. The rates of stamp duty in respect of bills of
exchange, cheques, promissory notes, bills of lading, letters of
credit, policies of insurance, proxies and receipts.

58. Terminal taxes on goods or passengers carried by
railway or air; taxes on railway fares and freights.

59. Fees in respect of any of the matters in this list,
but not including fees taken in any Court.

LIST II.

Provincial Legislative List.

1. Public order ( but not including the use of His
Majesty's naval, military or air forces in aid of the civil
power); the administration of justice; constitution and organi-
sation of all courts, except the Federal Court, and fees taken
therein; preventive detention for reasons connected with the
maintenance of public order; persons subjected to such
detention.

300

The Government of India Act, 1935. (Schedules.)

2. Jurisdiction and powers of all courts except the
Federal Court, with respect to any of the matters in this list;
procedure in Rent and Revenue Courts.

3. Police, including railway and village police.

4. Prisons, reformatories, Borstal institutions and other
institutions of a like nature, and persons detained therein ;
arrangements with other units for the use of prisons and other
institutions.

5. Public debt of the Province.

6. Provincial Public Services and Provincial Public
Service Commissions.

7. Provincial pensions, that is to say, pension,*! payable by
the Province or out of Provincial revenues.

8. Works, lauds and buildings vested in or in the posse-
ssion of His Majesty for the purposes of the Province.

9. Compulsory acquisition of laud.

10. Libraries, museums and other similar institutions con-
trolled or financed by the Province.

11. Elections to the Provincial Legislature, subject to
the provisions of this Act and of any Order in Council made
thereunder.

12. The salaries of the Provincial Ministers, of the Speaker
and Deputy Speaker of the Legislative Assembly, and, if there is
a Legislative Council, of the President and Deputy Presi-
dent thereof; the salaries, allowances and privileges of the
members of the Provincial Legislature; and, to such extent as is
expressly authorised by Part III of this Act, the punishment

301

The Indian Constitution Ch. X

of persons who refuse to give evidence or produce documents
before Committees of the Provincial Legislature.

13. Local government, that is to say, the constitution and
powers of municipal corporations, improvement trusts, district
boards, mining settlement authorities and other local authori-
ties for the purpose of local self-government or village admini-
stration.

14. Public health and sanitation; hospitals and dispensaries;
registration of births and deaths.

15. Pilgrimages, other than pilgrimages to places beyond
India.

16. Burials and burial grounds.

17. Education.

18. Communications, that is to say, roads, bridges, ferries,
and other means of communication not specified in List I;
minor railways subject to the provisions of List I with respect
to such railways; municipal tramways; roapeways; inland water-
ways and traffic thereon subject to the provisions of List III with
regard to such waterways; ports, subject to the provisions in
List I with regard to major ports; vehicles other than mecha-
nically propelled vehicles.

19. Water, that is to say, water supplies, irrigation and
canals, drainage and embankments, water storage and water
power.

20. Agriculture, including agricultural education and
research and protection against pests and prevention of plant
diseases; improvement of stock and prevention of animal dise-
ases; veterinary trainiug and practice; pounds and the preven-
tion of cattle trespass.

302

The Government of India Act, 1935. (Schedules).

21. Land, that is to say, rights in or over land, land
tenures, including the relation of landlord and tenant, and the
collection of rents; transfer, alienation and devolution of agri-
cultural land; land improvement and agricultural loans; coloni-
zation; Courts of Wards; encumbered and attached estates;
treasure trove.

22. Forests.

23. Regulation of mines and oilfields and mineral deve-
lopment subject to the provisions of List I with respect to regu-
lation and development under Federal control.

24. Fisheries.

25. Protection of old birds and wilds animals.

26. Gas and gasworks.

27. Trade and commerce within the Province; markets
and fairs; money lending and money lenders.

28. Inns and innkeepers.

29. Production, supply and distribution of goods; develop-
ment of industries, subject to the provisions in List I with
respect to the development of certain industries under Federal
control.

30. Adulteration of foodstuffs and other goods; weights
and measures.

31. Intoxicating liquors and narcotic drugs, that is
to say, the production, manufacture, possession, transport,
purchase and sale of intoxicating liquors, opium and other nar-
cotic drugs, but subject, as respects opium, to the provisions of
List I and, as respects poisons and dangerous drugs, to the pro-
visons of List III.

303

The Indian Constitution Ch. X

82. Relief of the poor ; unemployment..

33. The incorporation, regulation, and winding-up of
corporations other than corporations specified in List I; un-
incorporated trading, literarj^, scientific, religious and other
societies and associations; co-operative societies,

31. Charities and charitable institutions; charitable and
religious endowments.

85. Theatres, dramatic performances and cinemas, but
not including the sanction of cinematograph films for exhibition.

36. Betting and gambling.

37. Offences against laws with respect of any of the
matters in this hst.

38. Inquiries and statistics for the purpose of any of the
matters in this list.

39. • Land revenue, including the assessment and collec-
tion of revenue, the maintenance of land records, survey for
revenue purposes and records of rights, and alienation of
revenue.

40. Duties of excise on the following goods manufactured
or produced in the Province and countervailing duties at the
same or lov/er rates on similar goods manufactured or pro-
duced elsewhere in India —

(a) alcoholic liquors for human consumption ;

(b) opium, Indian hemp and other narcotic drugs and
narcotics; non-narcotic drugs;

( c ) medicinal and toilet preparations containing alco-
hol or any substance included in sub-paragraph
(i) of this entry.

304

The Government of India Act, 1935. (Schedules).

41. Taxes on agricultural income.

42. Taxes on lands and buildings, hearths and winJows.

43. Duties in respect of succession to agricultural Ian d.

44. Taxes on mineral rights, subject to any limitations
imposed by any Act of the Federal Legislature relating to
mineral development.

45. Capitation taxes.

46. Taxes on profeiseions, trades, callings and employ-
ments.

47. Taxes on animals and boats.

48. Taxes on the sale of goods and on advertisements.

49. Cesses on the entry of goods into a local area for
consumption, use or sale therein.

50. Taxes on luxuries, including taxes on entertainments,
amusements, betting and gambling.

51. The rates of stamp duty in respect of documents
other than those specified in the provisions of List I with
regard to rates of stamp duty.

5?. Dues on passengers and goods carried on inland
waterways.

53. Tolls.

54. Fees in respect of any of the matters in this list, but
not including fees taken in any Court.

CL39. 3O5

The Indian Constitution Ch X

List III.
Concurrent Legislative List.
PART I.

1. Criminal law, including all matters included in the
Indian Penal Code at the date of the passing of this Act, but
excluding offences against laws with respect to any of the
matters specified in List I or List II and excluding the use of
His Majesty's naval, military and air forces in aid of the
civil power.

2. Criminal Procedure, including all matters included in
the Code of Criminal Procedure at the date of the passing
of this Act.

3. Removal of prisoners and accused persons from one

unit to another unit.

4. Civil Procedure, including the law of Limitation and
all matters included in the Code of Civil Procedure at the
date of the passing of this Act; the recovery in a Governor's
Province or a Chief Commissioner's Province of cl »ims in
respect of taxes and other public demands, including arrears
of land revenue and sums recoverable as such, arising outside
that Province.

5. Evidence and oaths; recognition of laws, public acts
and records and judicial proceedings.

6. xMarriage and divorce ; infants and minors ; adoption,

7. Wills, intestacy, and succession, save as regards agri-
cultural lana.

8 Transfer of property other than agricultural land;
registration of deeds and documents

306

The Government of India Act, 1935 (Schedules).

9. Trusts and Trustees.

10. Contracts, including partnership, agency, contracts
of carriage, and other special forms of contract, but not inclu-
ding contracts relating to agricultural land.

11. Arbitration.

12. Bankruptcy and insolvency; administrators-general
and oflScial trustees.

13. Stamp duties other than duties or fees collected by
means of judicial stamps, but not including rates of stamp duty.

14. Actionable wrongs, save in so far as included in laws
with respect to any of the matters specified in List I or List II.

15. Jurisdiction and powers of all courts, except the
Federal Court, with respect to any of the matters in this list.

16. Legal, medical and other professions.

17. Newspapers, books and printing presses.

18. Lunacy and mental deficiency, including places for
the reception or treatment of lunatics and mental deficients.

19. Poisons and dangerous drugs.

20. Mechanically propelled vehicles.

21. Boilers.

22. Prevention of cruelty to animals.

23. European vagrancj''; criminal tribes.

24. Inquiries and statistics for the purpose of any of the
matters in this Part of this List.

307

The Indian Constitution Ch. X

25. Fees in respect of any of the matters in this Part of
this List, but not including fees taken in any Court.

PART IL

26. Factories.

27. Welfare of labour ; conditions of labour ; provident
funds ; employers' liability and workmen's compensation ; health
insurance, including invalidity pensions ; old age pensions.

28. Unemployment insurance.

29. Trade unions ; industrial and labour disputes.

30. The prevention of the extension from one unit to
another of infectious or contagious diseases or pests affecting
men, animals or plants.

31. Electricity.

32. Shipping and navigation on inland waterways as
regards mechanically propelled vessels, and the rule of the road
on such waterways ; carriage of passengers and goods on inland
waterways.

33. The sanctioning of cinematograph films for exhibition.

34. Persons subjected to preventive detention under
Federal authority.

35. Inquiries and statistics for the purpose of any of the
matters in this Part of this List.

36. Fees in respect of any of the matters in this Part
of this List, but not including fees taken in any Court.

308

APPKNDICKS.

GENERAL ADMINISTRATION.

la 1763 I lie Diwani was conferretl on tlio Conipa)!}^ by
the Moaluil Emperor, and in l772 the Companj'^ crefited a
Board of Revenue for Bengal. Up to 1773 the three Presi-
dencies of Madras, Bomhay, and Be-ngal were separate and
independent. But in that year a sort of political and adminis-
trative unification of India was brought about by making
Madras and Bomba}^ subordinate to the Governor-General
at Fort William. The Governor-General in Council consisting:
of four members was empowered to make laws, but these
were not valid until they were duly registered in the Supreme
Court. In 1784 the Governor-General's Council came to have
three members inclndinir the Commander-in-Chief, and the
Governor's Council too had the same number.

In 178G the Governor- General was given power to over-
rule his council in case of disagreement; and the offices of the
Commander-in-Chief and the Governor-General were combined.
Another provision that all the members of the Council should
have the qualification of having served in India for twelve years
was also brought into force. It was enacted in 1793 that the
Governor General should not leave India during his term
of office ( tliis rule was changed in 1925). In 1833 the
Governor-General of Fort \\'illiam became the Governor-
General of India. The Act provided for the division of the
overgrown Presidency of Bengal into Provinces, viz. Fort
William and Agra, l>ut this did not come into o^'eration. By
the Act of 1833 a " Law Commission " was aj'pwnted con-
sisting of Lord Macaula}', Cameron (Barrister), Macleod, I C.S.,

«•

and Sir William Anderson, I.C.S. The same Act enabled natural-
born subjects of the Crown to acquire and hold lands in India.
The year 1853 saw the appointment of a committee in England
to examine the report of the Law Commission. Among rts
members were Lord Ro-mill}', Sir J, Jervis, and Lord
Sherbroke. In 1854 the Provi^ice of Bengal began to have a
Lieutenant-Governor. A Lieutenant-Governor was sanctioned
for the Punjab in 1859, The Act of 1854 also empowered the
creation of Chief Commissionerships wherever necessarj^; and
under the power so conferred, Burma and C, P., and much
later Delhi in 1912, came to have Chief Commissioners. In
1861 a fifth member for the Governor- General's Executive
Council was appointed. Provincial Legislatures consisting
of not less than 4 and not more than 8 non-officials were to be
set up. Tiie Lieutenant-Governor was to be a member of
the Indian Legislative Council if its meeting was held within
his Province. An Act of 1870 authorised tlie Governor-
General to pass regulations for the Provinces without a Legis-
lative Council. The formal dissolution of the East India
Company took place in 1870.

In 1874 a sixth member for the Governor-Generals
Executive Council was also appointed. In 187G was passed
the Royal Titles Act conferring on the Queen of England the
title of Empress of India,

In 188G a Lieutenant-Governor was appointed for the
N. W. Province and in 1897 for the Punjab. Among the
Provinces, "Madras and Bombay enjoyed the qualified privilege
of non-subordination to the Governor-General," In 1004 the
sixth Membership of t^lie Governor-General's Council, which
was abolished in the interval, was reintroduced. By the Minto-
Morley refti-ms the number of members of the Executive
Council was raised from two to four in the Provinces.

Ill

CONTROL FROM ENGLAND^;

The Coiut of Projrietors for the Ea.st India Cuinpauy
provided in the year 1773 a system of Directorial Control
in matters pertaining to India, hy which there were to be
tw^enty-four Directois elected for a teim of four }'ears, but
one fourth of them were to retire every year. A Board of
Control was instituted in 1784 consisting of six Com-
missioners who were to be Privy Councillors, the Chancellor
of the Exchequer, and the Secretary of State. This Board,
so constituted, was to have control over the Board of Director?.
In 1793 it was decided that the payment to the members of the
Board of Control should be from Indian revenues. It was
also ruled that tw^o junior members of the Board need not be
Privy Councillors. The number of Directors was reduced
from twenty-four to eighteen in the year 1853, an<l it was
also provided at the same time that six of them should be
appointed by the Crown. Tlie year 1858 saw the important
step of the formation of the India Council. It was to consist
of 15 members in all, .seven of whcm were to be appointed by
the Directors and eight others by the King. Half the
number were to have the following minimum qualification
for being a member, viz. the}' should have served India for
ten years and also should not have left India more than ten
yeais previous to their ajpointment. They were to get a
salary of £ 1200, this being chargeable to Indian Revenues.
Vacancies in the India Council were to be filled in such a
manner that nine members at least were to have the quali-
fication mentioned above.

In 1869 the Secretary of State for India got the power
of filling vacancies in the India Council, and the term for
each member was fixed as 10 years. In 1889 the number

of members was reduced to ten. A provision of 1907, how-
ever, ruled that the number should be not less than ten and
not more than fourteen; and also the term of office and salary
were fixed as five years and £ 1000 respectively.

The Crewe Committee was aho appointed at the time
of the Reform Proposals of 1919. It advocated the abolition
of the India Council and the creation of simjile advisoiy
councils. But this was vetoed by the Joint Parhamentary
Committee under the Presidency of Lord Shelbourne.

According to the Government of India Act of 1919 there
were to be not less than 8 members in the India Council, nor
more than 12 members, and at least half of them were to have
served or resided in India for at least ten years and were not
to have left India more than five years previously. These pro-
visions were meant to secure men with fresh experience of
Indian life. They were to hold oflice for five years, and could,
in special circumstances, be continued for another five years.
They could not be ]\Iembers of Parliament. Their salary
was to be £1200, while those who were domiciled in Indi.a
got £ 1800. A contribution of £ 130,500 per annum was paid by
the British treasury as the estimated cost of the Political
functions of the Secretary of State for India. Formerly, the
Welby Commission Report had fixed £ 40,000 under the
same head.

THE GROWTH OF THE JUDICIARY.

In the year 1726 Mayor's Courts were established at
Madras, Bombay, and Calcutta. These courts had jurisdiction
in civil and ecclesiastical cases arising from relations between
Europeans in India. They could have jurisdiction in cases

concerning Indians only if tliey consented to adjudication.
In 1765 the Diwani of Beiigal was granted to the Company.
Under the Diwani civil justice was administered in Mayor's
Court and the Court of Reijuests, and criminal justice was
administered in Petty and Quarter Sessions in Presidency towns.
The year 1773 was important in tliat a Supremo Court was
established in that year at Fort William in Bengal. It was
to consist of a Chief Judge and three other judges all of whom
were to be Barristers of not less than five years' standing. The
court exercised jurisdiction over the Provinces of Bengal,
Bihar, and Orissa in all matters civil, criminal, ecclesiastical,
and administrative. It was empowered to exercise jurisdiction
over the inhabitants of the country in contracts over Us. 500
in case the people agreed to refer the dispute to the Su[>reme
Court. Appeal from the Supreme Court lay to the King in
Council. The Governor-General and members of the Council
were made Justices of the Peace.

An Act of 17S1 exempted the Governor-General and
Council of Bengal from the jurisdiction of the Supreme
Court in matters done by them in their public capacity.
The Governor-General in Council got powers to create
Provincial Courts of Justice and to frame 'Regulations'
for them without reference to the Supreme Court. Lord
Cornwallis introduced various judicial reforms and the regu-
larisation of three types of Courts including the Sadar
Nizamat Adalat and Sadar Diwani Adalat. In 1797 a Recorder's
Courts was established at Madras. In 1800 a Supreme Court
was established at Madras and in 1823 Bombay got a Supreme
Court.

By the Indian High Courts Act of 1861, High Courts were
established at Madras, Calcutta, and Bombay which amalgamat-
ed the jurisdiction of the Supreme Courts and the Sadar Adalats.
The Indian High Courts Act, 1911, empowered the Crown to

establish new High Courts. The maxiimim number of judges
in a High Court was raised to twenty. The Governor-General
was given power to appoint temporary judges for a term not
exceeding two years. The Government of India Act of 1915
and later the Act of 1919 re-embodied these provisions. Of
the High Court judges one -third shall be Barristers and one-
third must be members of the Civil Service. A pleader of a
High Court with not less than ten years' standing at the Bar
was also eligible for a High Court Judgeship.

THE PUBLIC SERVICES.

The Act of 1773 provided that no presents or bribes
should be accepted and no private trade should be carried on
b}? the public servants. All those violating this rule were
liable to be tried by the King's Bench. The following scales
of pay were also fixed in 1773, viz: —

Governor-General ,..£25,000 per annum

Members £10,000 „

Chief Justice £ 8,000 „

Judges £ 6,000

The enactments of 1784 provided that the pubhc servants
violating the laws against bribery, private trade, etc. should
be tried by three judges, four peers, and six members of
Parliament. Indians were given little encouragement
by Lord Cornwallis who was the Governor-General then.
From 1813 onwards organised military and civil training was
given. The Haileybury College and the Adiscombe Military
Academy were established and maintained for this purpose.
Encouragement to Indians was given only from 1818, and

Vll

from 1833 it was decided that fitness was to be the criterion
of eligibiUty, and natives were not disabled from holding oflfice.

An Act of 1853 took awaj' the patronage from the Court of
Directors. In 1854 Macaulay diew up the Civil Service Open
Competition scheme. By the Civil Service Act of 18C1 all
appointments were to be made to the Indian Civil Service by
merit. The Act also gave schedules of the appointments reserved
for the Indian Service.

It was provided in 1869 that Indians too were eligible for
the Indian Civil Servi'ee Examination, but the minimum asfe of
nineteen years ^Yas too low in the case of Indians. Further
no provision was made for simultaneous examinations in India
and England. It was decided in 1870 that Statutor}' Civiliaiis
were to be appointed from that date and the scale of salaries
was also fixed. Indians had not made serious inroad into the
highest rank of civil service. '' In 1878 even the feat of
competing successfully in the I. C. S. examination in England
was pract-ically closed by an order of Lord Salisbury which
reduced the minimum age of candidates from 21 to 19. In
1870 there were 7 candidates, but in 1880 only two. "

Lord Lytton had found that since 1870, when an Act of
Parliament had been passed enabling the Government of India
to appoint Indians to posts hitherto reserved for the Covenanted
Civil Service, no serious attempt had been made for putting the
Act into opeiation. Accordingly in 1879 lie produced his
plans for a Statutory Civil Service under which a fifth of
the recruitment for the Civil Service could he made from
Indians selectfc<l by Provincial Governments, and a pro-
portion of posts reserved for the Covenanted Civil Service were
to be hel<l l:>y men of Indian birtli. Lord Ripon continued
this pohcy, but partly from lack of enthusiasm in Provincial
government and partly because the wealthier Zamindars were

not induced to enter public service, the Statutory Civil
Service wa.s not a success. It was staffed almost entirely
by Indians promoted from Uncovenanted Service and was
abolished in 1891.

In 1886 Lord DufFerin appointed the Aitchison
Commission to produce a scheme for doing justice to the
claims of Lidians to higher and more extensive emploj'ment.
The effect of the Commission was to establisli the Statutory
Civil Servi«e, The Commission recommended to the Public
Service Commission a vested right to certain posts for Indians.
But this was resisted. In 1889 the maximum age was fixed as
twenty three years.

In 1893 Parliament passed a resolution in favour of
simultaneous examinations in India and England. The local
Governments objected to simultaneous examinations. In 1912
a Commission was appointed to investigate into the conditions
of the Public Service in India under the Chairmanship of
Lord Islington. It consisted of Mr. Gokhale, Sir Abdur Rahim
Lord Ronaldshay (now the Marquess of Zetland), Mr. Ramsay
MacDonald and others as members. The Report was pub-
lished after India had played a laudable part in the prose-
cution of the War, and so the report was not considered
as satisfying the higher ambitions of India.

Since 1924 the Lee Commission gave certain special
privileges to the All-India Services on the Reserved side and
delegated to the Local governments power to reorganise their
own Provincial subjects in other departments. The Govern-
ment of India Act 1919, provided for the Public Service
Commission. The Joint Parliamentary Committee Report
says: "The Public Service Commissions at present existing
in India are the Central Public Service Commission established
under the Government of India Act, and the Madras

Service Commission, estahlished under an Acf. of the Mjulraa
Legislature in 1929. The legi.shition necessary for .setting up a
PuIjHc Service Commission in tlie Punjab has been passed,
but the estabUsliment of the Commission awaits an improve-
ment in the finances of the Province. The White Paper pro-
poses the continuance of the Central PubHc Service Commi-
ssion as a Federal organ, and the setting up in each Province
of a Provincial Public Service Commission. The functions
proposed for all these Commissions are advisory in character
and similar to those at present performe<l by the Central and
Madras Commissions. We regard it as essential that each
Provincial Government should be able to avail itself of the
advice of a Public Service Commission."

THE ARMY.

"In 1726 the Companj' was authorised as in previous
charters to a]~>point general and military officers to exercise
the inhabitants in arms and to exercise Martial Law in time
of war." (Ilbert).

" In 1744 war broke out between England and France.
In 1746 the hostilities extended to India. These events led to
the establishment of the Company's Indian Arm}' ".

An Act of 1754 laid down for the Indian forces of the
Companj' provisions corresponding to those embodied in the
Annual Engli.sh Mutiny Acts and also provisions for the hold-
incr of Courts Martial.

In 1765 under Double Government the Com pan}- assumed
full power of maintaining and disbanding its military force.

i *■'

An Act of 1799 gave the Company further powers for
raising European troops and maintaining dieeipline among
them. Authority was given to the Company to train and
exercise recruits.

lu 1813 it was declared that the Government of India
might make laws, regulations, and articles of war for Indian
troops. That Act also limited the number of troops to 20,000.
A provision in 1820 enabled the Company to raise and
maintain a corps of Volunteer Infant r5^ An Act of 1828
applied the East Indian Mutiny Act to the Bombay Marine,
and some provisions in 1833 dealt with discipline in the army.
The 1840 Act consolidated the Indian Mutiny Act and
empowered the Governor-General to make Regulations for the
Indian Navy. "The Mutiny led to the introduction of an
entirely new principle, that of balancing the communities
inside the army." And from 1858, the patronage of military
cadetship Avas divided between the Secretary of State and tlie
India Council. In the same year the Company's troops were
transferred to the Crown. Before the Mutiny each Presi-
dency had its separate army. This arrangement was conti-
nued after the Mutiny also. In the meanwhile, the strength
of the European army was increased. In 1860 the existence of
European troops as a separate force was terminated and
merged in the army of the Crown. The year 180 1 saw the
constitution of a regular a^rmy for British India. The Naval
forces of the Company came to an end in the year 1863, and
in 1884) the Marine Service Act enabled the Gov^er nor-General
in Council to legislate fur maintaining discipline in the Royal
Indian Marine. The posts of Commanders-in-Chief in
Madras and Bombay were abolished in 1893 in which
year the Armj^ was unified. Many reforms were introduced
in the Army in 1905 by Lord Kitchener. The year 1917 is
important in that the bar regarding Indians receiving King's

Commissions in tlie Army was removed. But the Army
expenditure was long engaging the attention of several Indian
Politicians. As Dr, Berriedalc Keith says, " Unfortunately the
politicians were presented with a genuine grievance in the
report issued in October 1020 of the Esher Committee, for
that document unquestionably could be understood to advocate
treating the Indian Army as maintained as part of the scheme
of imperial defence, a conception not adopted in pre-war days.
It was, of course, in the light of war experience easy to feel
that the earlier policy had, from a military standpoint, been
mistaken, but it was not realised that the vital political changes
rendered it impossible to decide army policy in India without
regard to Indian national feeUng."

In 1923 tlie Eight Units Scheme was adopted for India-
nisation. Under it Indian officers holding King's Commission
were to be posted in the Eight Units, The Indian Sandhui'st
Committee under Sir A. Skeene reccmmendrd the establish-
ment of an Indian counter-part to Sandhurst In 1932 the
scheme of Indianisatiou of eight more units w;is adopted. The
Government opened the Indian Military' Academy in DehraDuu
in the year 1933.

EXTRACTS FROM PROCLAMATIONS, SPEECHES
AND WRITINGS &c ON INDIAN POLICY.

1 . The Court of Directors' Despatch of 1834 to the Governor-
General : —

* * * " We deem it of great moment, therefore, that you
should by positive rules provide that every project or proposal
of a law shall travel through a dehned succession of stages in
Council before it is finally adopted; that at each stage it shall

Xll

be amply discussed, aud that the intervals of discussion shall be
such as to allow to each Member of Council adequate opportu-
nity of reflection and enquiry."

2. Viscount Pahnerston's Speech on February 12, 1858: —

" And it is not on the ground of any delinquency on the
part of the Company, but on the ground of the inconvenience
and injurious character of the existing arrangements, that I
propose this measure to the House, It is perhaps one of the
most extraordinary facts in the history ol mankind that these
British Islands should have acquired such an extensive domi-
nion in a remote part of the globe as that which we exercise
over the continent of India. It is indeed remarkable that those
regions, in which science and art may be said to have first
dawned upon mankind, should now be subject to the rule of
a people inhabiting islands, which at a time when these
eastern regions enjoyed as high a civilization and as great
prosperity as that age could ofier, were in a state of utter
barbarism.

The existing state of things grew up from a very small
beginning. The original settlers began with a factory, the
factory grew into a fort, the fort expanded to a district, and
the district to a province, and then came collisions with less
civilized neighbours, injuries to be resented, attacks to be
repelled, and conflicts which always ended in victory and
extension of territory. So, gradually, from one transaction
to another, grew up that state of things in which the East
India Company found itself invested with vast commercial
privileges. "

3. Queen Victoria's Letter to the Earl of Derby, 15th
August, 1858 : —

The Queen has asked Lord Malmesbury to explain in
detail to Lord Derby her objection to the draft of Proclamation

Xlll

for India. The Queen would be glad if Lord Derby would
write it himself in his excellent lan<rua;{p, bearinir in mind
that it is a female Sovereij^n who speaks to more than
100,000,000 of Eastern people on assuming the direct Govern-
ment over them after a bloody civil war, giviiig them pledges
which her future reign is to redeem, and explaining the prin-
ciples of her Government. Such a document should breathe
feelings of generosity, benevolence, and religious feeling,
pointing out the privileges which the Indians will receive in
being placed on an equality with the Subjects of the British
Crown and the prosperity following iji the train of civilisation.

4. Queen Victoria's Proclamation, November 1, 1858,

When, by the Blessing of Providence, internal Tranqui-
llity shall be restored, it is Our earnest desire to stimulate
the peaceful Industry of India, to promote Works of Public
Utility and Improvement, and to administer its Government
for the benefit of all Our Subjects resident therein. In their
Prosperity will be Our strength; in their Contentment Our
Security; and in their Gratitude Our best Reward. And may
the God of all Power grant to Us, and to those in authority
under Us, Strength to carry out these Our Wishes for the
good of Our People.

5. King -Emperor Edward VIFs Proclamation, November
2, 1908.

The welfare of India was one of the objects dearest to the
heart of Queen Victoria. By Me, ever since My visit in 1875, the
interests of India, its Princes and peoples, have been watched
with an affectionate solicitude that time cannot weaken.
My dear Son, the Prince of Wales, and the Princess of Wales,
returned fi'om their sojourn among you with warm attachment
to your land, and true and earnest interest in its well-being
and content. These sincere feelings of active sympathy and

XlV

hope for India on the part of My Royal House and Line, on]y
represent, and they do most truly represent, the deep and
united will and purpose of the people of their Kingdom.

6. King-Emperor George V's Announcement at the Corona-
tion Durbar, December 12, 1911.

I finally rejoice to have this opportunity of renewing in
My Own person those assurances which have been given you
by My predecessors of the maintenance of your rights and
privileges and of My earnest concern for your welfare, peace
and contentment.

7. Lord Hardinge's Speech on February 26, 1916, on invest-
ing H. H. the Maharajah of Jodhpur with ruling powers.

"Our policy towards the RuUng Princes, at least during
the recent years, has been one of sympathy and trust; of
sj^mpathy with their aims and sentiments and their noble
traditions; of trust in their fervent loyalty to the Person of the
King-Emperor and to the Power whose protection they enjo3\
We have recognized that if a state is to be ruled justly and
well and to be the source of real help to the British Empire,
it is only through the Ruler himself, supported by his Sirdars
and people, that these results can be obtained. Irksome
restrictions on the exercise of Sovereign powers are apt to
chafe and irritate a proud and sensitive spirit with results
disastrous, not only to the Ruler and his people, but also to the
Empire at large. We have, therefore, made it our aim to
cultivate close and friendly relations with the Ruling Princes,
to show by every means that we trust them and look on them
as helpers and colleagues in the great task of Imperial rule,
and so to foster in them a spirit of responsibility and pride in
their work which no external supervision can produce. "

8. H. II. the Maharaja of Bikaner's Speech at the Ruling
Princes' Conference on November 10, 1917.

" It can never be too often emphasised that we represent
ahont one-tliinl ol" the Indian Empire's pojinlation, and
that no scheme I'ur the progress of India be roj^arded
as satisfactorj' or complete, which does not take into consi-
deration questions relatinf^ to these important territories
outside British India. We feel that we too must keep a
definite goal in front of us, and whilst it is essential that our
rights and privileges, our position as allies and friends,
guaranteed to us by solemn treaties and engagements with the
British Government remain unaltered, our States cannot
afford to lag behind in the general advance which India's
association with Great Britain alone has rendered possible.

It is for these reasons that we are now all the more
anxious to see the early establishment of a Constitutional
Chamber which may safeguard the interests and rights of our-
selves and of our States. "

9, Montagu-Cheimsford Report on Indian Constitutional
Reforms.

" On the other jiand, it seems to us that, when a Council of

Princes has been established and when a Council of State and

a Privy Council have been created, the machinery will exist

for briurrinn the senatorial institutions of British India into

closer relations when necessary with the Rulers of the Native

States. Matters afTecting the Native States generally, or

the Native States and British India in common, or the

Empire, might, as we have seen, be referred to the Council

of Princes. It would thus be possible for the Viceroy when

he thought fit, to arrange for joint deliberation and discussion

between the Council of State and the Council of Princes, or

between representatives of each body. He might also invite

members of the Council of Princes to serve on committees of

the Privy Council, "

XVI

10. Preamble to the Government of India Act, 1919.

"Whereas it is the declared policy of Parliament to provide
for the increasing association of Indians in every branch of
Indian Administration, and for the gradual development
of self-governing institutions, with a view to the progressive
realisation of responsible Government in British India as an
integral part of the Empire:

And whereas progress in giving effect to this policy can
only be achieved b}^ successive stages, and it is expedient that
substantial steps in this direction should now be taken;

And whereas the time and manner of each advance can
be determined only by Parliament, upon whom responsibility
lies for the welfare and advancement of the Indian peoples:

And whereas the action of Parliament in such matters
must be guided by the co-operation received from those on
whom new opportunities of service will be conferred, and by
the extent to which it is found that confidence can be reposed
in their sense of responsibility:

And whereas concurrently with the gradual development
of self-governing institutions in the Provinces of India, it is
expedient to give to those Provinces in provincial matters the
largest measure of independence of the Government of India
which is compatible with the due discharge b}^ the latter of
its own Responsibilities, etc."

[N'utc: — This Preamble was not repealed by the
Act of 1935. ]

XVll

DRAFT INSTRUMENT OF ACCESSION

The Instrnnient of Accession of ( full iianips and title ).

Whereas the proposals for the estabUshment of a federa-
tion of India composint^ of snch Indian States as may accede
thereto and the provinces of British India constituted as
antonomons provinces have been discussed between tlie
representatives of His Majesty's Government, of tlie Parliament
of the United Kingdom, of British India and of the Rulers of
Indian States.

And whereas those proposals c^^ntemplated that the
Federation of India should lie constituted bj'' an Act of the
Parliament of the United Kingdom and b}- the accession of
Indian States.

And wh-^reas provision for the constitution of Federation
of India has now been made in the Government of India Act
of 1935, but it is bj' that Act provided that the Federation
shall not be established until such date as His Majesty may
b}^ proclamation, declare and siich declaration cannot be made
until the requisite number of Indian States have acceded to
the Federation.

And whereas the said Act cannot apply to any of my
territories save by virtue of my consent and concurrence
signified by my accession to the Federation,

Now therefore I, (full name and title, ruler of ), in

the exercise of my sovereignty in and over my said State, for
the purpose of co-operating in the furtherance of the interests
and welfare of India by uniting in a federation under the
Crown by the name of Federation of India with the provinces
called Governor's Provinces and with the provinces called

A 3,

XVlll

Chief Commissioner's Provinces and with the Rulers of other
Indian States, do hereby execute this my Instrument of
Accession and

( 1 ) 1 hereby declare that, subject to His Majesty's accept-
ance of this Instrument I accede to the Federation of India
as established under the Government of India Act of 1935,
( hereinafter referred to as the Act) with the intent tliafc His
Majesty the King, the Governor-General of India, the Federal
Legislature, the Federal Court and any other Federal au-
thority established for the purposes of the Federation shall,
by virtue of this, my Instrument of Accession, but subject
alwaj'S to the terms thereof and for the purposes only of the
Federation, exercise in relation to the State of ( hereinafter
referred to as " this State " ) such functions as may be vested
in them hy or under the Act.

( 2 ) I hereby assume the obligation of ensuring that due
effect is given to the provisions of the Act within this State
so far as they are applicable therein by virtue of this my
Instrument of of Accession.

( 3 ) I accept the matters specified in the first schedule
hereto as the matters with respect to which the Federal
Legislature may make laws for this State and, in this Instru-
ment and in the said first schedule, I specif}^ the limitations
to which the power of the Federal Legislature to make laws
for this State and the exercise of the executive authority of
the Federation in this State are respectively to be subject.
Whereunder the first schedule hereto the power of the Federal
Legislature to make laws for this State with respect to any matter
specified in that schedule subject to a limitation, the executive
authority of the Federation shall not be exercisable in this
State with respect to that matter otherwise than in accordance
with and subject to that limitation.

XIX

( 4 ) The particulars to enable due etiect to be giveu to
the provisions of sections 1-17 and 141) of the Act are set forth
in the second schedule hereto.

( 5 ) Reference in this Instrument to laws of the Federal
Legislature include references to Ordinances promulgated, Acts
enacted and laws made by the Governor- General of India
under sections 42 to 45 of the Act inclusive.

( 6 ) Nothing in this lustrumeut aflects the conti-
nuance of my sovereignty in and over this State, or save as
provided by this Instrument, or by any law of the Federal
Legislature made in accordance with the terms thereof the
exercise of any of my powers authority and rights in and over
this State.

( 7 ) Nothing in this Instrument shall be construed as
authorising Parliament to legislate for, or exercise jurisdiction
over this State, or its Ruler, in any respect, provided that
the accession of this State to the Federation shall not be afiected
by any amendment of the provisions of the Act mentioned in
the second schedule thereto and the references in this Instru-
ment to the Act shall be construed as references to the Act as
amendent shall, unless it is accepted by the Ruler of this
State in an Instrument supplementary to this Instrument,
extend the functions which by virtue of this Instrument are
exercisable by His Majesty or any Federal authority in relation
to this State.

( 8 ) The schedules hereto annexed shall form an
integral part of this Instrument.

( 9 ) This Instrument shall be binding on me as from
the date on which His Majesty signities his acceptance thereof,
provided that if the Federation of India is not established

before the day of. and this Intrument shall ou that

day become null and void for all purposes whatsoever.

(10) I hereby declare that I execute this accordingly
any reference in this Instrument to me; or to the Ruler of
this State, is to be construed as including a reference to my
heirs and successors. This Instrument of Accession ( then
follows the attestation to be drawn with all due foimality
appropriate to the declaration ol a Ruler).

Additional paragraph for insertion in proper cases.

Whereas I am desirous that functions in relation to the
administration in this State of laws of the Federal Legislature
which apply therein shall be exercised by the Ruler of this
State and his officers and the terms of an agreement in that
behalf have been mutually agreed between me and the
Governor-General of India and are set out in the schedule
hereto, now therefore I hereby declare that the said agreement,
when executed, shall be deemed to form part of this Intrument
and shall be construed and have effect accordingly.

( b ) The provisions contained in Part VI of the Act
with respect to interference with water supplies, being sections
130 to 133 thereof inclusive, are not to apply in relation to
this State;

( c ) Whereas notice has been given to me of His
Majesty's intention to declare in signifying his acceptance of
this my Instrument of Accession that the following areas are
areas to which it is expedient that the provisions of sub-section
( 1 ) of section 294 of the Act should apply now therefore I
hereby declare that this Instrument is conditional upon His
Majesty making such a declaration.

XXI

SELECT OPINIONS ON CONSTITUTIONAL QUESTIONS.

1. Thompson and Garret cu the yimon Ccmmissiou Keport
( in the Rise and Fultilment of British Rule in India ).

'* The Simon Report — a document unhappy in form and
in the circumstances of its appearance — hke tlie White Paper of
three years later, was written for British pohticians, but chietly
read and discussed by Indians amon^jst whom it could only
arouse hostility. Tho first volume reiterated, in somewhat
sentious fashion, facts known to most people interested in
India. But the emphasis was laid deliberately upon the
diversity of the Indian people and their communal dissensions,
while the account of recent events wholly disregard the depth
and intensity of the nationalist feeling. The second volume
surprised all Indians by being practically unanimous, although
the three English parties were equally represented on the
Commission. This confirmed the idea that all Englishmen,
once they are in oflice, take the same view about India, The
proposals of the Commission were of a conservative character
and such innovations as they contained had already been dis-
counted by moderate opinion both in England and India Dyarchy
was condemned; but the Provincial autonomy, which was to
take its place, was carefully safeguarded by the special powers
of the Governor, and by the authority left to the Central
Government. No efTective change was suggested in the
central executive until the States were prepared to come into
a Federation, and the country was capable of defending her-
self, two provisos which were taken as clearly deferring the
transfer of authority for a generation or more. Indian
nationalists could not be expected to consider such proposals
seriously. Their status was left unchanged, and their future
would have been dependent upon two factors neither of which

xxu

was under their control. The Report suggested an end-
less series of disputes between Provincial legislatures and a
British-controlled Central Government which in each Province
would have its own representative in the person of the Gover-
nor and the members of the Imperial services.

2. Thompson and Garret on the "White Paper".

" The document was written for the British politician
with the whole emphasis laid upon the safeguards against the
dangers implicit in the new experiment, and without any
attempt to win Indian support or interest. The safeguards
were made as full and explicit as possible; on most disputed
points the Government decided against the Indian delegates.
There was no concession to Indian demand for some voice
in military policy, while the future of the Civil Service was
left to be reconsidered after five years. Finally the question
of future time-table was to remain in the hands of the British
Government. There was no suggestion that the safeguards
would automatically ;come to an end. Inauguration of the
Federation was made subject to a number of vague conditions
which would be interpreted by the Government A docu-
ment of this kind was not likely to rouse much enthusiasm
in India, and the future of Federation of India, one of the
greatest experiments the world has ever seen, seems hkely
to begin its life amidst the recriminations of its parents."

3. Dr. A. B. Keith on Dominion Status: —

"Any doubt which might have existed as to the sense
of the declaration of 1917 disappeared when India was
accorded a place in the League of Nations together with the
Dominions. It was therefore only a formal recognition of an
inevitable conclusion, when in 1929, with the permission of the
British Government, Lord Irwin asserted that Dominion Status

XXlll

was the ultimate goal of Britibh polio}' for Iivlia, an
apsiirance reiterated by Lord Willin^rdcn in 19.S3. Is'cr did
tlie Secretary' of State for India rejuidiate this reading f>f liie
situation when on November 22, 1933, he insisted that
Dominion Status was not the immediate end of the (lovern-
mentdl proposals nor did it mark the next step in In<lian
reform.

"It is, however, clear that the assurance given b}' Lords
Irwin and Willingdon are read as subject to the paramount
principle asserted in 1917 that India must remain an integral
part of the British Empire, and that Dominion Status must
not be held to implj'' the right to secede. Such a right would
be wholly incompatiable with the position of the Indian
States, whose accession is esseritial for the formation of the
ptroposed federation, for, the Piinces vidue in tlie highest
deo-ree their direct relations with the Crown, But aj^art from
this point it is clear that, if Dominion Status were at once to
be granted and enjoyed by the Federation, the Princes would
be precluded from entering it."

"The Manchester Guardian."

I NDEX

(Note: — In somo caso?, tho numlier of tlio [ago is noted
only to facilitate reference to the relevant Sections of tho Act.)

jaLccession of States

Accounts — Indian Home...

Acquisition of territory — By Fedenition,

— By Railway.
Acts of Parliament — Miscellaneous relating to India
Act of 1773 (See Kegulating Act.)

„ 1784— 8

„ 1813— 8

,, 1835-- 8

., 1853— 8

„ 1859— 9

„ 1861— 9, 10

„ 189-2— 10

„ 1909—10, 11.

... (See States)
(See 'Auditor')

83, 20G.

87, 207.
i — ix

Aden
Administration

65, 100, 171, 246.
i — ii.

General ...

Administrative Relations between Federation and

Units ... ... ... 71-74, 182-188.

Adviser— Financial ... ... 53, 57, 134—135, 148.

Advisers of Secretary of State ... 98—99, 239-240.

Advisory jurisdiction of Federal Court. 92, 220—221.
Advocate-General of India

Advocate-General of Provinces
Ao-a Khan Memorandum ...
Agency functions of Governors
Aitchison Commission

.53, 54, 135, 138.
...64, 164. 167.
44—46.

71, 183.
viii.

XXVI

All-Parties Coufereuce ...

2.5-27

Anglo-Indian: —

Claims in Services ...

91, 95.

Representation in Legislatures ...

107, 262, 266,

(See Franchise also,)

Army— Growth of

ix— .xi.

Army Act ...

68, 179.

Assembly — Federal

(See Legislature).

„ Indian Legislative

14.

Assent to Bills

67, 146,

Attlee — Major

4P.

Auditor-Geaemd of India...

...81, 82, 205.

„ „ of Provinces

82, 205.

Auditor of Indian Home Accounts ...

82, 205.

l^aroda~H. H. the Gaekvcar of

36,

Barristers

48,

Barristers— Eligibility of for Judgeship

90,

92, 96, 213, 223.

Bhopal— H. H. The Nawab of ..'.

122.

Bikaner—PI. H. The Maharaja of ...

3.5,

88, S8, 122, xiv.

Birkenhead^The Earl of

... 22, 24, 27.

Board of Control

8, iii.

Borrowing ...

81, 205.

British interests

(See

1 'Discrimination'.)

Broadcasting...

73, 187.

Bryce —Viscount

Burma ... 38, 43, 52, 62, 69, 80,

81, 131, 180,204.

Butler Committee

... 25, 27— SO.

CJaleutta — Supreme Court at ... ... 7, 8, v.

Chamber of Princes ... ... 17, 37, 243, 244.

Chelmsford — Lord ... ... ... 11 — 13, 15.

Chief Commif^sionera ... 12, 49, 65, 117, 170, 171.

Civil Services ... ... 94—96, 227, vi— ix.

Commander-in- Chief ... 34, 49, 93, 116, 117, 226, x,

XXVll

Commercial Discrimination ... ( See DiscriminHtion.)

Commissions — Army ... ... 51, 94, 125, 22<'->, xi.

Communal Award ... ... ... 40, 41.

Connaught~H. R. H. The Duke of ... ... 16, 17.

Constitutional amendments ... 10.3 — 104-, 254.

Contracls and Suits ... ... 82—^,205—208.

Coorg ... ... ... C5. 170, 263, 264.

Corporation tax ... ...75, 105, 191, 194—195.

Council of India 10, 47, 98, iii — iv, ix, x, xv.

Council of Ministers — Federal ... ... 51, 127.

,, ., ,, Provincial ... ... 6"^, 163.

Council 0^ State ... (See Federal Legishlure.)

Court — Federal (Constitution, functions,

jurisdiction &c) ...62, 89, 1^0-92, 1(0, 210. 211—221.

Court of Directors ... ... ... iii, xi.

Courts— Provincial High. 10, 12, 92, 03, 221— 226, v, vi.

Crewe Committee ... ... ... 13, i v.

Crown and States ... ... ... (See States )

Cnrzon — Lord ... ••• ... 36.

avidson Committee ... ••■ 40,42.

Deadlock — provisions relating to. 61, 62, 65, 1;'9— 161, 170.

Defence. ... ... 42,45,62,58,129,148.

Defence Services ... ... ... 93, 226.

Dicey ... ... ••• ••■ ^» "•

Discrimination— provisions

re^-ardincr ... 52,68-71,101,131,160-182,251.

Disqualifications for membership &c. 55, 107, 110, 140, 264.

Diwaui ••• ••• ••• '^ '> ^.

Dominion Status. ... 19, 26, 33, 44, xxiii.

Duties— Excise, Stamp &c.... 74-76, 188-192, 195-196.

Dyarchy ••• ••• ...14,22.34,47.

Elcclesiastical affairs. ... 45,48,52,58,71,129,148.

Edward VII— King Emperor ••• ... xiii.

XXVlll

Eddy and Lawton
Electorates ...
Esher Committee
European — Definition of
Excluded areas
Executive — Federal

External affairs

247, 261-279, 285-293.

. . . ••• XI

264

58, 59, 65, 149, 153, 169-170.

...51-53, 71, 72,73, 124-136,

182, 183, 184, 185.

52, 58, 71, 129, 148.

i»^ailure of Constitutional machinery

Federal Authorities — Creation of

Federal Constitutiony

Federal Executiv^e

Federal Judiciary

Federal Legislature

Federal Railway ... ,,.

Federal Units

Federalism

Federation — Proclamation regarding. . .

Financial Relations between Federal Units.

Financial Statements and Bills —

Federal...

Provincial
Foreign Jurisdiction
Foreign Relations
Franchise

(See Deadlock).

106,260.

2-6

(See' Executive").

(See 'Courts').

(See 'Legislature'j.

(See 'Railway').

50, 117

74-8], 188-205.

57-59, 147-151.

65, 168.

101, 247-251.

...(See 'External Affairs')
40, 100, 110, 246-247, 285-293.

Gcandhi— Mahatma ... ... ... 38, 39, 41.

George V — King Emperor ... ... 16, 45, xiv.

Government of India Act, 1919 — continuance of some

sections during the transitional period ... 106, 113.

— Preamble to. 13, xvi.

— Provisions of. 13-15.

—Repeal of. 106, 107.

})

}}

})

XXIX

... 102,253.

G3, 162.

1G8.

280.

71,183.

r)3-65, 1G3-170

65,170.

...63, 163-165.

40, 6

Governor — Acting or temporary
— Appointment of
— As.seut to Bills by
— Customs privileges to
— Functions of as Agent to the G. G.
— Powers of — Ex'3cutive, Legislative.
— Proclamation by
— Special responsibilities of

Governor's Provinces

Governor- General — Acting or temporary

— Acts passed by

— Appointment of

— Assent to Bills by ...

— Customs privileges to

— Powers of : —

Executive 51, 52, 53, 73, 74, 76, 86, 80,

124-13(3, 207, 209, 210 (See also Federal
Executive).

Powers of :^

2, 117, 102.

102, 253.

61, 158.

49, 116.

57, 146.

280.

1. General ... 54-60,

139-154.1

• •

2. Legislative ... 60-61,

154-159.

„ — Procla7uations by... 61, 62,

159-161.

Governor-General— Reference to Federal Court by

92, 220.

„ ,, — And Pteserve Bank

79, 203.

» >j — Special respon.siblities of 52, 57. 58, 130-

-132,147.

Huiley — Sir Malcolm (now Lord Ilailey)

19, 44.

Hardinge — Lord

36, siv.

Hartog — Sir Philip

33.

High Commissioner fur India

15.

,, „ — Appointment of...

102, 253.

-Start- of

96, 232.

High Court ( See Court )

XXX

Hoare — Sir Samuel ... ... ... 42, 43.

( For views of &c<, see Notes to Sections).

Income-tax ... ...74-75,189-191,193-196.

ludemuity for Officers ... ... ...98,237-238.

India Council ... ... (See Council of India).

Indian Constitutional Reforms Report ... 13, 15, xv.

Instrument of Accession ... xvii — xx ( See States also ).

Instrument of Instructions. 17, 52, 64, 182-133, 156, 164.

luter-Pi ovineial Co-operation ... ... 74, 188.

Irwin— Lord... ... ... ...23,33,88,39.

Islington — Lord ... ... ... viii.

aj^ayakar— Mr. M. R. ... ... ... 42.

Joint Parliamentary Committee ... ... 43-48.

(See also Notes to Sections),

Joint Select Committee ... ... ... 1-3.

Judges— District and Subordinate ... ...96,232-233.

Judicature ... ... ... ... (See Courts)

Judiciary — History of the ... ... iv-vi.

:eith— Dr. A. B. ... ... . . . 44, xi, xxii.

Xj^and acquisition— Compensation for ... 102, 252.

Law Commission ... ... ... 8, i, ii.

Lee Commission ... ... ... viii.

Legal matters— Provisions for miscellaneous 100-102, 247-253.
Legislative Lists ... 66,111,172-173,294—308.

Legislative Powers ... ... 65-71,171-182.

Legislative Procedure ... ... 56-60, 142-154.

Legislature —
Federal: —

Constitution, qualifications for

membership &c. ... 53-56 136-142.
Provincial: —

(i) Constitution, qualifications for

membership &c. 64-66,107-110,166 168,261-279.

(ii)Seats&c. ... ... ... 281-284.

11.

43.

,42.

36,

vii.

•

31,

viii.

IH.

137.

70-71,

182.

10.

XXXI

Lieutenant-Governor
Linlithgow— The Marquis of
Lothian Committee
Lytton— Lord

3YEacaulav— Lord

Mac Donald — Mr. Ramsa}'

Harriot- Sir John

Medical qualifications

Meston — Sir Jnmes (afterwards Lord)

Ministers ... (See Coaacil of Ministers),

Minorities ... ... 38, 52, 104, 130, 163.

Minto— Lord ... ... ...10-11,28,36.

Montagu — Mr. E. S. ... ... ... 18.

Montagu— Clielmsford Reforms ... ... 11-15.

Morley — Lord ... ... ... 10-11.

Muddiman Committee ... ... ... 19-22.

I^J'aval Discij'line Act ... ... ... 67, 175.

Nehru—Pandit Motilal ... ... ... 22.

Nehru Report ... ... ... 23, 25-27.

Nizam— His Exalted Highness the ... ... 22, 23, 28.

rdera in Council ... ... 104-105, 257-258.

Ordinances— by G. G. ... ... 60.61,154-157.

n — by Governor ... ... 169.

Orissa ... ... ... 40, 62, 100, 162, 246.

3E*almer.=!ton — Lord ... ... ... 12.

Paramountcy and Supremacy 22. 23, 25, 27—30, 242—245.

Patel -Mr. V. J. ... ... •■. 22.

Patiala—n H. The Maharaja of ... ^ ...37,122,244.

( See also Notes to Sections.)

Police ... ... ..• 64. 94, 165, 26).

Political Department ... ... ... 96. 233. 24C.

Poona Pact ... .t. #♦• ••• 41,

XXXll

Previous sanction of the G. G.

and Governor 68, 72, 76, 79, 98, 177-179, 193, 203.

Prime Minister of England — Opinions of ... 31, 32, 40,

Privy Council — Appeals and applications to &c. 70, 71, 91, 220.
Proclamations... 62, 65, 66-07, 159-161, 170, 173-175.

Proclamations and Royal Messages ,,^ 9, 16, 17, 37, 44.

Protection of existing officers ... ... 96,223.

Provinces — Administration of, boundaries of,

creation of new &c. ...62-65, 100, 162-171, 246.

Public Debt Charges ... ... 58,148.

Pubhc Services — History of the ... ... vi-ix.

Public Service Commission —

Federal and Provincial ... 97-98, 235-237.

History of the ... ... viii, ix.

aihvay-Definitions ... ... ... 259.

Piailway Authority— 75, 86-90, 106,111-112, 191,207-211,260.

Eailway rates ... ... ... 88-89,209.

Railway Tribunal ... ... ...89,210-211.

Reading— Lord ... ... 17, 22, 23, 24, 251.

Regulating Act (of 1773)... ... ...7, i, iii, v, vi.

Reservation of Bills ... ... 57,146,156,168.

Reserve Bank ... ... ... 79, 203.

Revenue Appeals ... ... ... 101, 251.

Round Table Conferences ... ... 35, 39,41.

Safeguards... (See ' Deadlock' and 'Discrimination').

Sapru-The Rt. Hon'ble Sir Tej Bahadur 20, 24, 26, 42, 44, 245.

Scheduled Castes ... ... 110, 261, 265, 266, 283.

Secretary of State — Advisers, recruitment of

Reserved Services by &c. ... 95,98-99, 231, '^39-41.

Superintendence b}'- ... ... 52, 133.

Services — Railway ... ... 97, 231.

Simon Commfssion ... ... 24, 30-S5, 247, xxi.

Sind ... ,.. ... 27, 38, 100, 246.

xxxm

Sinba— Mr. S. P. (afterwards Lord) ... 10, 16, 24.

States —

— Accession of ...50, 51, 100. 118-123, 160
— Adniiiiistintive rel.'iticms of.., 71-74, 182-187.

— AssiiMimeiit of taxes ... ... 7-i-77.

— Committee (See "Butler Committee").
—Contributions by ... 77-79.196-202.

— Crcwn and 49, 58, 77-79, 83, 85, 114-116, 149, 171.

196-202.

—Crown and Indian States 99-100, 241-240.

—Definition of Federated State ... 51,1-0.

— Definition of Indian State ... 258.
—Dignity of Ruleis &c. 52, 59, 131, 132, 15S, 163.

— Entry of into Federation ... 49, 50, 109, 117.
— Execution of Federal Laws in

50, 51, 124-126, 182-187 (See also "Administrations").

— Exemption from Federal taxation of ... 80, 204.
— Federal Court and States

90,91,92, 213,214. 215, il7, 218, 219, 220, 2J1.
— Financial relations ... 74-7 9, 188-196.

—High Courts in ... ... 92,221.

— Hi.s Miije.sty's Representative

with ... ... 49, 89, 100, 114, 115, 245.

— Legislative relations of with

Federation ... 65, 66, 67, 152, 171-173. 175 176.
—Letter of Uequest to ... 91, 186, 219.

— Ministers in Federated ... ... 55.

— Oath of representatives from ... 280, 281.

— Privileges and immunities... 78 79, 199-202.

—Railways and ... ... ... 88.89,209.

— Representation in Federal

Legislature ... ... 53, 108. 136, 267-279.

— Hulers of ... ... ... 59, 153.

—Table of Seats for ... ... 273-279,

xxxiv

States: —

—Treaty rights of ... ... 241-245.

(See "Paramountcy" and "Butler Committee" also)

— Water Supplies
State subject
Suits

Sunda — Mr. E S.
Supreme Court
Surcharges
Swarajya Party

TTransitional Provisions ...
Treaties — with Indian States
Tribal areas...

XJnited Provinces
Franchise

"XTictoria— Queen Empress
Visweswarayya — Sir M.

^^TU'ar— The Great of 1914.

Water Supplies

White Paper

Willing Ion — Marquis of ...

Women Franchise

... (See Water Suj plies).

... 97, 10', 110, 234, 281.

... 84, 85, 206.

212, 214, -220.

75, 190, 193 195.
IQ 29

105 106,259.

...241-242, (See "States").

52,58,59, 71, 73, 129, 148, 153.

• « •

62,

162.

• ••

287

-293.

• • •

xii,

xiii.

««•

• • •

12.

• » *

- r-^

12.

« • •

... 73 74,

187.

« • »

43,

45, 46, 47,

xxii.

• • •

... 39,44

, 46.

• • •

285,

286, 287, 290,

292.

(See

also

'Fi

iiuchise").

ERRATA.

Page. Line. Corrections.

for 'paiiiciples' read 'principles',
insert comma after 'liealth'.

,, inverted commas after 'intervar,
for 'Enqiury' i-ead 'Enquiry'.

insert dots before '7'.

for 'subiect' lead 'subject',
insert 'of before 'Indian'.
„ comma before 'State'.
„ comma after 'experience',
for *woud' read 'would'.

, 'subsequently' read 'subsequently',
omit 'the' before '5-3-31'.
for 'for' read 'far'.
,, 'relevent' read 'relevant',
read thus: — "prevention of action subjecting

British or Burmese goods to ".

65 ... 24 ... insert *a' after 'be'.

for 'so foi-' read 'so far'.
,, 'subsides' read 'subsidies'.
,, 'prastice' ,, 'practise'.
„ 'liad' „ 'has'.

,, 'meance' „ 'menace',
for 'Sezerainty' read 'suzerainty'.
„ 'the the' „ 'the'.

,, 'coviction' ,, 'conviction,
insert 'of the' before 'Province'.
„ 'to' after 'letter'.

... 13

... 23

... 11

... 9

... 10

... 25

... 13

... 27

... 17

... 29

... 5

... 18

12&13

>•

)}

69 .

.. 6

.. 3

.. 18

73 .

.. 13

78 .

.. 14

94 .

>»

.. 15

108

.. 9

122

/,>E/ge. Line. ;. ConREcnoNs.

145 ... 9 ... for 'is' read 'in'.
* 195 ... 20 ... „ 'form' read 'from'.

196 ... 3 ... „ 'recemmendations ' read

'recommendations'.
205 Section 171... ,, 'accounts' read 'accounts'.
232 ... 22 ... „ 'wrote' „ 'stated'.
243 ... 25 ... ,, 'convniently' read 'conveniently'.
267 ... 2 ... ,, 'Representaives' read

' Representatives'.
288 ... 6 ... ,, 'electoral' read 'electoral'.
290 ... 9 ... ,, 'pro^'cd' „ 'proved'.
,, ... 11 .., ,. 'posssesses' ,, 'possesses'.
292 ... 2 ... „ 'officer' „ 'officer.
294 ... 12 ... ,, 'intellligence' read 'intelligence',
xviii ... 19 ... ,, 'of of read 'of.
xxi ... 20 ... insert full stop after 'India',
xxiii ... 13 ... for 'incompatiable' read 'incompatible'.

In the Foreword, first page, line four, please read 'Law'
with a small '1' and in line five 'Constitution' with a small 'c';
and in the second page, line one, 'Great Experiment' with
small 'g' and small 'e'. In line four of the same page,
'Constitution' has only a small 'c'.

PLEASE DO NOT REMOVE
CARDS OR SLIPS FROM THIS POCKET

UNIVERSITY OF TORONTO LIBRARY

JQ iiiyar, V. R, Subrahmanya

231 The Indian constitution

'■i;.,ii/;.

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