Early British Administration 1833-1900 PDF

LESSON 07 EARLY BRITISH ADMINISTRATION 1833 – 1900 Topics 7.1 Introduction 7.2 The Internal and External factors that led to Reforms 7.3 The Colebrook-Cameron Reforms of 1833 7.4 The Constitutional Frame...

LESSON 07 EARLY BRITISH ADMINISTRATION 1833 – 1900 Topics 7.1 Introduction 7.2 The Internal and External factors that led to Reforms 7.3 The Colebrook-Cameron Reforms of 1833 7.4 The Constitutional Framework 7.5 Provincial Administration Concepts i. Unification and centralization. ii. Legislative and an Executive Council. iii. Civil Service iv. Utilitarianism v. The White Man’s Burden vi Plantation Learning Objectives The student is expected to understand the changes that were taken place in Britain and in Sri Lanka that finally led to the Reforms of 1833. There were both external as well as internal factors that influenced the Reforms which was the very first attempt at conscious reforms attempted by the British. The lesson deals with the major changes introduced with the adoption of Colebrooke – Cameron Reforms. 51 7.1 Introduction The Colebrooke-Cameron Reforms of 1832/33 were the very first attempt at reform made by the British after their victory of the subjugation of the whole country in 1815. The reason for delay in reform was due to uncertainty of the status of Sri Lanka as a colony of the British Empire during the first two decades of the 19th century. The Empire was wholly concentrating on defeating Napoleon Bonaparte in Europe that finally became a reality in 1814 with the Battle of Waterloo. Even after the defeat, since there were no demand for reform, the British administration was not that eager to introduce changes. However, after the defeat of Napoleon, the strategic value of the island of Ceylon diminished and since there was a deficit in the islands budget to the British exchequer, it became an irritant to the Colonial Office in London. It was this reason why the Commission of Eastern Inquiry that was assigned to look into the affairs of both the Cape of Good Hope and the island of Mauritius was extended to Ceylon as well. 7.2 The Internal and External factors that led to the Reforms While it was only a deficit in the annual budget of the island of Ceylon that can be attributed as an internal factor that led to the reform of 1832/33, there were a number of external factors that influenced the need for reform in Ceylon of the given period. In fact, the respective Governors of the island during the 1820’s, Edward Barnes and William Horton were surprised as to why the Colonial Office was requesting an inquiry when the country was at peace and was not demanding reform. They were against any inquiry or a reform since their rule was effective at the time. It went to such an extent that they boycotted and did not support the Colebrook-Cameron Commission once they reached the island in 1829. However, there were a number of external reasons as to why the Commission of Eastern Inquiry was extended to Ceylon at the time. The first two decades of the 19th century was an era of reform and changes in England and the British Empire at large. She was now reaping the benefits of the Industrial Revolution that took place in the last quarter of the 18th century. As a result, the political, economic and the social theorists of the time brought out new concepts and theories for the betterment of the citizens of Britain.Utilitarianism, 52 social welfare, capitalism and the White man’s burden were some of these concepts that gained prominence at the time. Thus, the British policy makers in Parliament and the Colonial Office were also influenced by these and it invariably resulted in a change of attitude and the need for reforms even in the colonies. This change and the budget deficit were then the reasons why the Commission of Eastern Inquiry was extended to Ceylon. 7.3 The Colebrook-Cameron Reforms of 1833 WMG Colebrooke had to first look into how the budget deficit could be converted into a surplus. The island of Ceylon did not have any industrial output and neither did it have a sound base for industrial development at that time. Thus, since the island was placed in the tropics and since the island was oriented towards agriculture, he proposed that agriculture should be given priority. However, in order for the Empire to gain a revenue form agriculture, he proposed a different system of agriculture as opposed to subsistence agriculture that was in place in the island st the time. He introduced the concept of plantation agriculture. Through a tender procedure large companies from England were given the right to establish large plantations in the colony and thereby it was proposed to earn revenue. From such a system, he was trying to de-establish the role of the state in the economy and thereby tried to introduce private capital into the economy. Plantation agriculture was thus established and given a boost from hereon. What resulted was the “Coffee Mania” where coffee was produced in large plantations by English companies and a massive profit was earned by the private companies plus the colonial administration in Ceylon. The commission issues was appointed to look into the whole state of the country and then suggest the ways and means of improving the Government of Sri Lanka. In 1833, the whole island of Sri Lanka was unified upon the recommendation of the Colebrooke – Cameron Commission. The main features of the administration of this period are evident from the response to the proposed reforms of Colebrooke and Cameron and the attempts of the government to restore the efficiency in administration. Through an efficient colonial administration what was attempted was to cut waste and inefficiency which were costing the colonial administration a lot. 53 On Colebrooke’s recommendation, the administration of the whole island was unified and centralized and five provinces were established. In 1846, with the creation of the North Western Province, the number of provinces was increased to six. In 1873, Sir William Gregory (1872 – 1877) created the North Central Province with Anuradhapura as its capital city as he found the Northern Province was too large as an administrative unit. This too tried to minimise expenditure and stress on efficiency. As the means of communication within the island was increased and as the island began to be cultivated with the new crop coffee and later tea, two more provinces were created. In 1886 Sir Arthur Gordon (1833 – 1890) established the Province of Uva with Badulla as its capital city. The new province was created by detaching Bintenna, Viyaluwa, Wellasa, Udakinda and Yatikinda from the Central Province and adding to them the Wallavaya and Buttala divisions of the Southern Province. The Province of Sabaragamuwa too was created during the administration of Governor Sir Arthur Gordon. In 1889 the Kegalle and Ratnapura districts were detached from the Western Province and combined to form the Province of Sabaragamuwa with Ratnapura as its capital city. Thus by 1889 the total number of Provinces in the island had increased to nine, which remained constant till Independence in 1948. 7.4 The Constitutional Framework In 1833, as a result of the Colebrooke – Cameron Reforms, a Legislative Council and an Executive Council were set up. The Executive Council consisted of senior government officials who controlled the acts and proceedings of the Governor. The Legislative Council consisted both a group of officials as well as non-officials who were to ensure an open discussion of public affairs and protected the people from precipitate changes in laws affecting their rights and interests. Initially, the Legislative Council comprised of the Governor and fifteen other officials out of whom nine were officials and six nonofficials who were nominated by the Governor on a communal basis. The Governor was subject to the control of the Colonial Office in all matters concerning the administration of Sri Lanka during the nineteenth century. The Secretary of State (in Britain) had the power to recall a Governor, since the Governor 54 owed his appointment to him. But in practice however, the governor enjoyed almost absolute power within the island. He made laws in the name of the government in the form of Ordinances with the advice and consent of the Legislative Council. However, in practice the Governor had a full control over legislation. He could both legislate and vote legislation. He could also direct his official majority to vote on legislative measures according to his direction. Within this constitutional framework the government continued to be carried on during the whole of the nineteenth century and there was no significant constitutional change till 1910. It was the basic structure which Colebrook-Cameron devised that was in operation up until 1931. The minor changes that were introduced in and after 1910 were to do with the increase the number of the non-official group to be more than the official group, the introduction of a restricted suffrage based on wealth and education, the right to discuss and debate budget issues and lastly the appointment of a Finance Committee. With the adoption of the reforms recommended in the Colebrooke Report major changes came to be introduced in the sphere of Civil Service. The salaries of the Civil Servants were reduced and their pensions and some of the existing cadre positions were abolished. This caused great hardship to the Civil Servants and many of them resigned from the posts. Hence in 1845 the Colonial Office introduced a set of reforms which gradually remedied the harm that was done to the Civil Service. A Pension Scheme was reintroduced and the salaries of the civil servants were raised. They were not allowed to engage in plantation agriculture as they had done earlier when they were not paid. Civil servants who took to planting and trade to compensate themselves for the reduction in salaries were found to be negligent and indifferent to their duties. During the period from 1832 to 1885, the Civil Service went through many changes and in 1885 it assumed the final form in which it remained for many years. The British administration of the island during the nineteenth century was organized on the usual Crown Colony model. The Governor was assisted and advised by the Colonial Secretary who supervised and controlled the administration in its day to day work. The Colonial Secretary had as his assistants, the Auditor General as hisassistants and the Treasurer. 55 Among the principal duties performed by the Colonial Secretary were the preparation of the annual budget and the Blue Books of Statistics. He was generally responsible for the efficient operation of the island’s administration. The Colonial Secretary was appointed by the Secretary of State for the Colonies in London. The Treasurer dealt with the collection and expenditure of the island’s revenue. The Auditor audited the accounts of the Government Agents who were in charge of the Provinces and of the Assistant Government Agents who were in charge of the districts. He criticized any expenditure on any items which he considered unnecessary and generally ensured financial regularity and ordered collection and expenditure of money. The Civil Engineer cum Surveyor-General was the Head of the Public Works Department. He was responsible for land surveys and the construction of public works such as roads and bridges within the island. The only department of government which was completely independent of control by the Chief Secretary was the judiciary and it was impossible for the Governor to interfere with the course of justice. The other departments of the secretariat at Colombo which assisted the Governor were those of the Inspector General of Police responsible for the maintenance of law and order and various special departments such as Education and Health which handled those social functions. Activity :1 prepare a list on chronological order of the creation of provinces from 1833 to 1889 7.5 Provincial Administration Provincial administration was left in charge of the Government Agents who, with the aid of Assistant Government Agents and their sub-ordinate officers supervised the administration of the provinces. The office of Government Agent was created by Colebrooke in 1833. Previously there had been collectors in Charge of districts. The Government Agents discharged the duties which had been formerly performed by the Dissavas. Government Agents were responsible to the Colonial Secretary and 56 supervised the collection of revenue, agricultural activities and the sale of crown lands within their provinces. The Government Agents communicated the orders of the government to the people and in turn represented the needs of the people to the government. The nine provinces were sub-divided into twenty one districts and each district was in charge of an Assistant Government Agent. Each district was sub- divided into Korales and Pattus. For administration of Korales and Pattus the government made use of the native headman. They provided an essential and useful link between the European Civil Servants and the local people. After the rebellion of 1818 the attitudes of the government towards the headmen gradually changed. The government realized that it could not rule the country efficiently unless it trusted these indispensable local auxiliaries. Hence the headmen were given back some of the powers of which they had been deprived earlier. For example, in 1874 the presidentship of the Gamsabhawas was given to the chief headmen. However, the indigenous officials had considerably lesser power than they had previously enjoyed under the local rulers. British Governors – 1833 to 1900 Sir Robert Wilmot Horton - 1831 - 1837 J.A. Steuart Mackenzie - 1837 - 1841 Sir Colin Campbell - 1841 - 1847 Viscount Torrington - 1847 - 1850 Sir George Anderson - 1850 - 1855 Sir Henry Ward - 1855 - 1860 Sir Charles Mac Carthy - 1860 - 1863 Sir Hercules Robinson - 1863 - 1872 Sir William Gregory - 1872 - 1877 Sir James Longden - 1877 - 1883 Sir Arthur Gordon - 1883 - 1890 Sir Arthur Havelock - 1890 - 1896 Sir West Ridgeway - 1896 - 1903 57 All in all the Colebrooke-Cameron reforms introduced significant changes to the islands administration. There were reforms with regards to the political, economic and social set up of the island and they represented the changes that had taken place in Britain, the British Empire and in the whole of Europe of the early 19th century. While the political developments can be attributed to Jeremy Bentham’s philosophies, the economic developments were with the establishment of a capitalist economy in the island. The social developments were the result of the concept of the white man’s burden and the social welfare state. Under such a concept, (a) the introduction of English as the language of administration, (b) the establishment of missionaries and state schools with English as the medium of instruction, (c) the opening of the civil service to the Sri Lankans and the like were done. Activity:2 List the officials assisted the Governor in his administration of Sri Lanka during the later part of 19th century. Summary The British Empire was uncertain of its position in the whole of South Asia including Ceylon, during the first two decades of the 19th century. This was so because of the threat of French and Napoleon Bonaparte. The latter’s objective was to be supreme in Europe and this threatened British and its Empire. But with the victory at the Battle of Waterloo in 1814, British supremacy was re-established and it was from hereon that Britain concentrated more on South Asia. Reforms were seen in Britain and these invariably seeped into the colonies as well and the Colebrook-Cameron Reforms of 1832/33 with regards to Ceylon was one of them. Political, economic and social reforms were thus laid down in the proposals and what was seen throughout the 19th century was its unravelling. 58 Review Question 1. Describe briefly how the island came to be divided into nine provinces for purposes of administration. 2. What were the Colebrook-Cameron Reforms of 1832/33 Recommended Readings 1. C R De Silva, Ceylon Under the British Occupation, 1796 – 1832, (2 Vols). (Colombo 1962) 2. KM De Silva, (ed.) University of Ceylon; History of Ceylon, Vol. III (Univ of Peradeniya, 1973 3. KM De Silva, A History of Sri Lanka, (Delhi: 1981). 4. GC Mendis, Ceylon Under the British, (Colombo: 1952). 5. LA Mills, Ceylon Under the British Rule, 1795 – 1932, (Oxford: 1933) 59