How Fares the Common-Wealth? The Balfour Declaration and the Curzon-Donoughmore Reforms
The architects of imperial policy under the Conservatives: (l to r) George Curzon, Lord Donoughmore and Arthur Balfour
Aside from its domestic and foreign politics, the Cecil administration had an energetic imperial policy which had a lasting impact on world affairs.
In India, the result of the Ripon Reforms had been to entrench the powers of the Anglo-Indian elite while at the same time opening up certain avenues of advancement to local elite Indians through slight improvements in racial justice and career prospects. However, with the entrance of the UK into the Great War in 1917, plans to further expand the franchise in 1918 ahead of elections to the Chamber of Deputies in 1921 (as had been set out in the Ripon Report of 1893) were shelved. In the context of fighting the war, such concerns as were held by the leaders of the two main Indian nationalist parties (the (notionally) secular Indian National Congress (“INC”) and the Islamic-oriented All-India Muslim League (the “League”)) could be tapped down, at least for a while. However, when it became clear that the plans would be shelved for good over the course of 1920 and 1921, nationalist concern began to rise. In the election campaign of 1921, riots broke out across the subcontinent, as masses of people attempted to break into polling booths and cast the ballots to which they believed they were entitled (the fact that many of them would not have been entitled to vote even if the Ripon Report had been implemented was not something that seemed relevant at the time).
In response, the Viceroy Lord Devonshire cancelled the election results and ordered fresh elections to take place in 1922 under his successor, once it was known who that was. In the repression that followed, over 150,000 members of the INC and the League were arrested and 79 people were killed in scuffles with the Army across the subcontinent. It was in these circumstances that, once Cecil had confirmed his cabinet, the new Viceroy, Lord Donoughmore, and India Secretary, George Curzon, began work on what came to be called the Curzon-Donoughmore Reforms. Hastily conceived, the reforms were designed to accomplish three things at the same time: play the Hindu and Muslim communities off against each other; calm tempers down; and not fundamentally alter the balance of power. They created separate franchises and reserved constituencies for Hindus, Sikhs, Muslims and Europeans and ordered a moderate extension of the franchise (to about half the number of people envisioned by the Ripon Report).
However, when the postponed Indian legislative elections eventually took place in 1922, it was clear that the Reforms had failed in every one of those objectives. Rather than splitting moderate Indian voters from their sectarian nationalist parties, they actually widened the INC’s and the League’s appeal, reducing the Liberal Unionist Party (the governing party since 1893 and the one favoured by the Anglo-Indian community and many upper caste and wealthy Indians) to 76 seats in the assembly, a majority of only 3. Beyond that, individual populations were still frustrated by the moderate extension of the franchise and unionists were concerned about the divisive effects of separate franchises based on religion and ethnicity.
At the same time as the government was grappling with the future of India, they were also confronting the issue of the white Dominions (Australia, Canada, Newfoundland, New Zealand and South Africa). As we have seen, the Ottawa agreement on trade and tariffs, which had been in place since 1892, had been stuck to but the feeling in Westminster was that something a bit more formal was needed to replace it. Fortunately for them, the same feeling was afoot in most of the Dominion governments too. Although each Dominion’s government naturally had their own reasons, the effects of the Great War and 30 years of tariff equalization had made the different nations’ economies and cultures almost inseparable, creating a receptive audience for further harmonisation.
The London Conference of 1922 produced a wide-ranging memorandum which is commonly known as the ‘Balfour Declaration’, after the conference’s chairman Arthur Balfour. Although the Balfour Declaration did not commit the UK or the Dominions to any specific legislative programme, it set out a framework for governing the relations of those countries with each other, with the empire and with the wider world.
In the first place, the notion of the ‘British Commonwealth’ was created to describe all the signatories to the declaration. In the Commonwealth, all of the signatories were equal in status, even if the UK remained, de facto, the first amongst equals (it was, for example, up to the Westminster government to grant to any colony the necessary conditions to join the Commonwealth or strip a country of this status). In addition, the Declaration set out the following factors which would determine membership of the Commonwealth (as opposed to the empire more widely) and the relationship between them in the future:
- The British monarch shall be the constitutional Head of the Commonwealth;
- Free trade should exist between the Dominions and they should have a common set of external tariffs to be decided by annual meetings of relevant politicians and officials;
- There shall be annual meetings of prime ministers and/or their representatives to coordinate inter-Dominion policy; and
- The domestic affairs of a Dominion shall be left undisturbed.
At the same time, the nations of the new Commonwealth signed the separate (but inextricably linked) Commonwealth Fuel and Steel Treaty. The Treaty created a common market for energy and steel within the Commonwealth, with regulations overseen by a Special Council (made up of one official appointed by each Commonwealth nation) and a Council of Arbitration (made up of one judge appointed by each Commonwealth nation). Of little notice at the time, but which was enormously important, was the Common Agreement on Broadcasting, which appeared as an extended annex to the Fuel and Steel Treaty. Under the terms of the treaty, the various national broadcasting companies of the Commonwealth would be amalgamated into a single entity governed by a royal charter and paid for by the sale of licence fees to the makers of radios: a manufacturer or seller would have to buy a licence on the condition that the equipment used be “Approved by the terms of this Agreement.” In practice, this was a tax on the sale of radio sets which was hypothecated for the new broadcasting entity, which came into existence as the Commonwealth Broadcasting Company (“CBC”) on 1 January 1924.
This rudimentary administrative organisation was skeletal and tortured by compromise. The point about staying out of domestic politics was included in order to satisfy the South Africans, whose domestic politics was increasingly dominated by the question of race relations. Furthermore, while a common tariff area was instigated at the insistence of Australian, New Zealand and Newfoundland politicians (largely thanks to agricultural and fishing interests), private promises were made behind the scenes to the Canadian delegation (who were concerned that the tariffs limited their ability to pursue a separate trade policy with the US) that tariffs wouldn’t be increased in the foreseeable future. Nevertheless, it was an important development in intra-Commonwealth relations and was welcomed as such: when it was reported back to the House of Commons, the Liberal leader Austen Chamberlain praised it as the keystone of his father’s imperial vision.