His appearance was much in accord with the character which has thus been sketched. He was above the middle height, with a broad and powerful frame, a forward-gait and a strong stride; though, alas, care, labour and sickness, as years rolled on, reduced the frame and lessened its activity. His head was massive, his brow open, his face lined and furrowed, his eye grey and piercing but somewhat small, his hair originally dark but slightly silvered even in middle life, his complexion somewhat sunburnt. His expression was that of majestic simplicity, but when in repose hehad an air of solemnity. His voice in ordinary talk was neither loud nor deep, but under strong emotion it could resound powerfully. The most noteworthy feature was his mouth; for though it might be closely set while the mind was working, yet in moments of ease it was mobile, and constantly opened with a natural grace for smiles, or laughter, or the play of wit and fancy. Withal he was of that rugged type, sometimes termed Cromwellian by his friends, which affords some of the fittest subjects for the painter or the sculptor.
Inthe preceding chapters we have followed the development of John Lawrence’s character amidst his personal surroundings, without dwelling upon the condition of the provinces in which he served. But in this chapter and in the succeeding chapter, we must note specifically the status and the progress of the great Province in which he is engaged. He is now in a commanding position, certainly; but the crisis of his life is not yet come. Against that crisis he is unconsciously to make ready himself and his province. He is to set his house in order straightway, because on such ordering must depend the ability of the Punjab for doing that which it was required to do eight years later. Upon that supreme ability, on the part of him and his at the crucial moment, hung the fate of British dominion in the most important part of the Indian empire. The warship of the Punjab is now in sight, that ship which is not only to brave the battle and the breeze, bearing her own wounds, but is also to tow her wounded, battered, half-disabled consort into the haven of safety. It is well, then, for us to see how she was designed, weldedcompactly, built in water-tight compartments, launched and sent to sea.
Further, though John Lawrence has a commanding position, he is not yet in sole command of the Punjab administration. It is necessary to recount the circumstances whereby he came to be vested locally with that single and individual authority which he wielded with immense effect, during the crisis to be described hereafter.
It has been seen, then, that the Board of Administration for the Punjab was constituted by Lord Dalhousie in March, 1849. Henry Lawrence was President of the Board, and John was his colleague. A third member was also appointed, but after a short time he went away. The successor was Robert Montgomery, who had been the schoolfellow of the two Lawrences at Foyle College and a friend to them both equally. He was the one man in whom each of them would confide, when they differed with one another. Henry would, in his differences with John, open his heart to Montgomery. John too would speak of Montgomery as his bhai or brother. In addition to sterner qualities, the signal display of which will be seen hereafter, Montgomery possessed all those qualities which are needed for a peacemaker and mediator. His position at the Board, then, in conjunction with the two Lawrences was most fortunate. He had the art of making business move smoothly, rapidly and pleasantly. For the two brothers did, as will be explained presently, differ not privately nor fraternally but officially. When differences arise between two such eminent persons as these, each of them must naturally have his own adherents, especiallyas Henry was a military Officer in Staff employ and John a Covenanted Civil Servant, or in simpler phrase the former was a soldier and the latter a civilian. Consequently something like party spirit arose which never was very acute and which has perhaps, under the influence of time, died away. To attempt any description of Henry Lawrence here would be to travel beyond the purpose of this book. But he cannot, even here, be wholly dissociated from the present account of John’s career. In order to avoid the semblance of passing over or disparaging Henry, it may suffice now to state briefly and summarily what he was in 1849, and what he continued to be up to his untimely and lamented death in 1857. This may preferably be done now, before the necessity arrives for explaining the difference (respecting certain public affairs only) which arose between him and his brother.
Henry Lawrence, then, was a man of talent, of poetic temper, of sentiment, of meteoric energy, and of genius. Though destitute of external gifts and graces, he yet possessed qualities which were inner gifts and graces of the soul, and which acted powerfully upon men. From his spirit an effulgence radiated through an ever-widening circle of friends and acquaintances. Being truly lovable, he was not only popular but beloved both among Europeans and Natives. He was generous almost to a fault, and compassionately philanthropic. Indeed his nature was aglow with the enthusiasm of humanity. As might perhaps be expected, he was quick-tempered and over-sensitive. His conversational powers were brilliant, and his literary aptitude was considerable, though needing more culture for perfectdevelopment. His capacity for some important kinds of affairs was vast. In emergencies demanding a combination of military, political and civil measures he has never been surpassed in India. He was mortally wounded by a shell when at the height of his usefulness. Had he lived to confront national danger in its extremity, he would have proved himself to be one of the ablest and greatest men that ever went forth from the shores of England to vindicate the British cause in the East. As a civil governor he had some but not all of the necessary qualifications. He had knowledge, wide and deep, of the Indian people, sympathy with their hopes and fears, tenderness for their prejudices, an abiding sense of justice towards them and an ardent desire for their welfare. He had that mastery of topographical details which is very desirable in administration. He was zealous in promoting public improvement and material development. He had a clear insight into character, and knew perfectly how to select men after his own heart. These he would attach to himself as disciples to a master. But in a civil capacity he had several defects. Though he could despatch affairs spasmodically, he was unsystematic almost unmethodical in business. Though he might make a system succeed in a certain way while he and hisalumnilived or remained present to exercise control, yet he would not have been able to carry measures of complexity and establish them on foundations to stand the test of time. Moreover he was not, and never could have become, a financier; indeed he was not sufficiently alive to financial considerations. Great things have indeed been sometimes accomplished by statesmen and by nations in disregard, even in contravention,of financial principles; yet he might as a civil governor, if uncontrolled, have run the State ship into danger in this respect. Then being by nature impetuous, and possessed with ideas in themselves noble, he was hard to be controlled.
This short digression is necessary, in order to do justice to a great and good man who is indissolubly connected with the subject of this book.
The Board of Administration, then, composed of these three men began, founded and built up an administration, which lasted without interruption till 1857, and was the most brilliant that has ever been seen in India. They had co-ordinate authority, and ostensibly acted in solidarity. But among themselves there was a division of labour in ordinary matters: that is to say, Henry took the political and military departments, John the financial and fiscal including the land settlements, Montgomery the judicial and the police; while on important matters pertaining to any department whatever, each of the three members had his voice, the majority of course prevailing. If figuratively Henry was the heart of the Board and Montgomery its arm, then John was veritably its backbone.
Accordingly John had his headquarters permanently fixed at Lahore, and he straightway proceeded to build himself a home there. He found it to be really a Mahommedan city, the ancient capital of Moslem dynasties from Central Asia, which had been retained by the Sikhs as their political centre, while their national and religious centre was at Amritsar, some thirty miles off. Its noble mosques, its fortress-palace, its imperial tombs, must have brought back to his mindthe associations of Delhi. At this time, 1849-50, he was in full health and strength; alas, these were the last years of unimpaired comfort physically that he was ever to enjoy. Those who saw in after years the iron resolution and the energy which even sickness could not subdue, can imagine the magnificent vigour he threw at this time into the work of pacifying a much disturbed province, reducing it to order and calling forth its resources.
There is not space here to describe the territories under the Board of Administration. Suffice it to say that the British territories comprised the Cis and Trans-Sutlej States and the Punjab proper, or the basins of the Indus and its affluents, together with Native States on the east of the Sutlej, and in the Himalayan region, including the famous valley of Cashmere. The name Punjab, a Persian word denoting five-waters, refers to this river-system. The total area of all kinds amounted to one hundred and thirty-five thousand square miles, and the population to just twenty millions; both area and population being exclusive of the Cashmere kingdom. The climate is much the same as that of the Delhi territory already described, except that the winter is sharper and longer while the autumn is more feverish. The people, consisting chiefly of Moslems and Sikhs, was quite the strongest, manliest and sturdiest that the British had ever had to deal with in India. On two sides the country was bordered by British districts, and on one side by the Himalayas. So far, then, the circumstances were favourable. But on the front or western side, the border touched on Afghanistan for eight hundred miles, and was the most arduous frontier in the Eastern empire.
The administration, known as that of the Lawrences in the Punjab, was in its day famous throughout India, and those engaged in it were too busy to reflect upon its characteristics. But after the lapse of a whole generation, or more than thirty years, a retrospect of that epoch may be calmly taken in a summary divested of technicalities.
In 1852 the Board caused a report to be drawn up of their administration; which is known in Indian history as “The First Punjab Report.” But it would not now suffice to state, in the words of this document, that internal peace had been preserved, the frontier guarded, and the various establishments of the State organised; that violent crime had been repressed, the penal law executed, and prison discipline enforced; that civil justice had been administered in a simple and popular manner; the taxation readjusted and the revenue system reformed; that commerce had been set free, agriculture fostered, the national resources developed, and plans for future improvement projected.
Some further explanation is needed to indicate the true position of the Board in the administrative annals of India. For, together with due acknowledgment of the zeal, capacity and knowledge, evinced in all these cardinal matters, it must yet be remembered that these are the very matters which have always been undertaken either promptly or tardily, and with more or less of success, by every administration in every province that has within this century been added to the Indian empire. Nevertheless the Punjab Board had an unsurpassed, perhaps even an unequalled merit; and itis well to note exactly in what that merit consisted; for through this merit alone was the province subdued, pacified and organised in time, so as to be prepared for the political storm which it was destined to confront within eight short years. Time indeed was an essential element in the grand preparation. Upon this preparedness, as we shall see hereafter, the issue was to depend, either for victory or for wide-spread disaster, to the British cause in Northern India.
Now the Board showed its statesmanship because it did straightway, almost out of hand, with comparative completeness, that which others had done elsewhere by degrees at first and sometimes incompletely at last. To enjoin authoritatively the carrying out of such measures and to describe them when carried out may be comparatively easy; but to carry them out all at once in a new province under strange conditions, and in the teeth of innumerable obstacles, is hard indeed. Yet this is what the Board actually accomplished. It set to work simultaneously upon varied and intricate subjects, which other authorities elsewhere had been content, or else had been forced, to undertake by degrees, or piecemeal one by one according to opportunities in the course of years. But to the Board every week was precious and every month was eventful. It thus managed to effect, in a short span of years, as much as had been effected elsewhere in two or more decades. It is indeed but too easily conceivable that work done with rapid energy may result in imperfections injuring the effect of the whole. But the Board’s operations were masterly in conception, thorough in foundation, business-like in details. So far the work has never beenexcelled and seldom rivalled in other provinces, either before or since that era.
On the other hand, the Board enjoyed several advantages which were almost unique. Its genius was partly shown in this that such advantages were seized, grasped tightly and turned to the best use. A mass of valuable experience has been garnered up amidst the older provinces, and was available for guidance or encouragement. Thus many projects became demonstrably practicable as well as desirable, which might otherwise have been disputable or untenable. The Governor-General, Lord Dalhousie, having annexed the Punjab, had justly the strongest motives for ensuring speedy success for the administration of the province. He had at his disposal the imperial resources, and these were consequently placed at the disposal of the Board to an extent which has never been seen in any other Indian province. Again, there was something in the strategic position, the historic repute, and in the internal circumstances of the Punjab, to attract the idiosyncrasy of the Anglo-Indian Services; therefore able and aspiring men were willing to volunteer for service there, even with all its risks and hardships. Among the internal circumstances was the national character of the inhabitants, who were known to be sturdier and straighter than those of other provinces, and were expected to present more fully atabula rasa, for the proceedings of British rule. The Board had an insight into character, and a faculty for choosing men for the administration. Believing its own reputation, as well as the public good, to depend on this choice, it pursued the object with circumspection and single-mindedness.Though India is essentially the land of administrators, yet no governing body in any province has ever possessed at one time so many subordinates with talents applicable to so many branches, as the Board had for several years.
Thus the Board owed something to its auspicious star, but still more to its own innate power and inherent aptitude.
Apart from the general administration, some few measures may be noticed here as being peculiar to the Punjab. The first step after annexation was the disbandment of the late Sikh army. The men had been drawn chiefly from the class of peasant proprietors. They now reverted to the ancestral holdings, where their rights and interests were found to be secured by British arrangements. They were disarmed on being discharged, and no swords were left to be turned into ploughshares. But they settled down at once to agriculture, which was at that time more prosperous and profitable that it had ever been within living memory. Next, the people at large, by a disarming proclamation, were required to give up their arms. This they did without hesitation and almost without fail. Their minds had been overawed by the British victories and their spirit stupefied by recent defeat. This general disarming tended to the immediate pacification of the province, and ultimately proved of priceless advantage during the crisis which supervened eight years afterwards. If at that moment any men were disposed to raise their hands against us, they had no weapons to wield.
Then, defensive arrangements were made for the Trans-Indus Frontier, running as it did for full eighthundred miles at the base of the mountains which surround the valley of Peshawur and then stretching southwards, separate India from Afghanistan. The British border, thus formed, was itself inhabited by wild Moslem races, and was subject to incursions from still fiercer tribes dwelling in the adjacent hills. To guard this long-extended frontier a special body of troops, some twelve thousand men horse and foot, was organised and styled “The Punjab Frontier Force”; and it was placed not under the Commander-in-Chief of the Army, but under the Board of Administration. This frontier service immediately became an object of ambition to the European officers of the army as affording a school for soldiers and a field for distinction. Consequently the Board were able to draw from the ranks of the regular army many of the most promising officers of the day. The Native soldiers were recruited from among the most martial tribes in the border mountains, and the Native officers were chosen for personal merit and social status. Indeed this Force became perhaps the finest body of Native troops ever arrayed under British banners in India. As will be seen hereafter, it was able within eight years from this time to render signal service to the empire during the War of the Mutinies. In these arrangements the experience and talent of Henry Lawrence were conspicuously valuable.
Works of material improvement were at once to be undertaken in all parts of the province, and the Board were fortunate in being able to obtain for the direction of these operations the services of Major Robert Napier—now Lord Napier of Magdala.
In those days, before the introduction of railways,the primary object was to construct the main trunk lines of roads. Such a trunk line had already been constructed through the older provinces from Calcutta to Delhi, a distance of about twelve hundred miles. The Board decided to continue this line from Delhi to Peshawur, a further distance of eight hundred miles. The viaducts over the Five Rivers were to be postponed, but the bridging of all lesser streams in the champaign country was to be undertaken, and especially a good passage made through the rugged region between the Jhelum and the Indus. At the outset, hopes were entertained that the Five Rivers would become the water-highways between this inland province and the coast, and be navigated by vessels with much steam power and yet with light draught. But there was difficulty for some years in building suitable vessels for service in the shifting and shallow channels; and in the end this idea vanished before the railway system which was advancing from the east.
In the land of the Five Rivers artificial irrigation occupied a prominent place. A new canal was now undertaken, to be drawn from the river Ravi, near the base of the Himalayas. It was to water the territory near Lahore the political capital, and Amritsar the religious centre, of the Sikhs. This territory was the home of the Sikh nationality and the most important part of the Punjab.
A feudal system had existed under the Sikh rule and ramified over the whole country. The status of the Native aristocracy depended mainly upon it. This system was absorbing much of the State resources, and could not be maintained under British rule. Its abolition gave rise to individual claims of intricacy, even ofdelicacy. These had to be treated generously and considerately so far as such treatment might consist with the policy itself, and with the just interests of public finance. In this department the kindly influence of Henry Lawrence was especially felt, and he did much to bridge over the gulf between Native and British rule.
In the civil administration the Board desired that, in the first instance at least, the forms of British procedure should be simplified, cheap, speedy and substantial justice dispensed, and affairs conducted after what was termed the patriarchal model. The native races here were more frank in their utterance, more open in their demeanour, more direct in all their ways, than is usual in most parts of India. Every European officer was directed to cultivate from the outset a friendly understanding with them, so as to banish all sense of strangeness from their minds, and to make them feel at home and at ease under the British rule. This object is indeed aimed at universally in India, but it was attained with unrivalled success in the Punjab, and thereby was laid the foundation of that popular contentment which stood the Government in good stead during the season of dire trial eight years later in 1857.
The intense application, bestowed by the Board on many diverse subjects simultaneously, aggravated the toils of the members. But they derived relief and benefit from the division of labour (already mentioned) whereby for ordinary business the political and military branches were allotted to Henry, the fiscal and financial to John, the judicial to Montgomery.
In the fiscal department John found the noblest sphere for his special ability, because herein was includedthe settlement of the land revenue, the all-important scope of which has been explained in a preceding chapter. Then despite his unfavourable recollections of Etawah in 1838-39, he must have looked back with some gratitude to that place which had given him priceless experience in settlement-work. Here he was, happily for the Punjab, at home and in his element; as a consequence the field-survey, the assessment of the land-tax, the adjudication of rights and interests, the registration of tenures, were conducted with admirable completeness, promptitude and efficiency. He well knew that such operations were not likely to be turned out complete offhand; the affairs themselves were novel both to the officials and to the people; errors, failures, oversights, would occur, but he would have them rectified, again and again, until at last after re-constructing, re-casting, re-writing,—a full, accurate and abiding result was obtained. This cardinal operation has been one of the first cares of the Government in every province of India; but in no province has it ever been effected so completely, within a comparatively short time, as it was in the Punjab under his supervision. Its success conduced largely to that popular contentment which proved a bulwark of safety to British rule, during the danger which eight years afterwards menaced the Province.
Before the Native population, before the world, and for the most part before the European officers, the Board preserved an unbroken front and kept up the appearance of solidarity. But though the wheels of the great machine moved powerfully, and with apparent smoothness, still within the Board itself there was increasing friction. It became known, not perhaps to the public,but to the European officers around the centre of affairs, that Henry and John were not always in accord regarding policy and practice. And this matter affected the future for both of them, and especially for John.
Between Henry and John there was agreement in many essential matters such as the military occupation and the pacification of the province, the guarding of the Trans-Indus Frontier, the political relations with the Native States comprised within the Punjab, the development of material resources, the progressive policy of the administration. They were absolutely united in the diffusion of zeal among all grades and classes of officers and officials, and in stamping the best possible characteristics upon the public service. But they differed more or less on certain other points, and this difference must unavoidably be noticed, however briefly, because among other consequences, it had a considerable effect on the subsequent career of John. It was, however, official only and did not affect the sentiments of admiration and affection with which each regarded the other.
The difference then related to three points: the system of collecting the land revenue, the management of the finances, and the treatment of the feudal classes on the introduction of British rule. Some brief allusion must be made to each of these three points.
Under Native rule the land revenue had been collected sometimes in kind and sometimes in cash. John abhorred the system of collection in kind, as being the parent of oppressive abuses. His voice was consonant with the best traditions of British rule, and was at first popular with the agriculturists. But from various circumstances the prices of produce fell forseveral years abnormally, and the men had difficulty in obtaining money for their produce wherewith to pay their land-tax in cash. So they began to ask that it might as heretofore be paid in kind. Henry, partly from tenderness to old customs under Native rule, partly too from want of familiarity with fiscal abuses, inclined his ear to these murmurs which were indeed coming to be requests. John of course insisted on the cash system being maintained, though he was willing, indeed anxious, that the tax should be so assessed that the people could pay it easily even in the altered circumstances.
The finance of the province was ever present to the mind of John. Though keenly anxious for improvements of all sorts, he held that such measures must be regulated according to the financial means available within the province. Henry would not deny this in theory but would overlook it in practice. Having initiated projects tending to civilisation in a newly annexed province, he would press them forward without adequately considering how the cost was to be defrayed. He had an inner conviction that once a very desirable thing had been accomplished successfully, the difficulties on the score of expenses would either vanish or right themselves.
The treatment of the feudal classes on the introduction of British rule depended on a certain method which had been adopted under Native rule in the Punjab as in other parts of India. The land revenue belonged to and was the mainstay of the State. The ruler of the day would assign to an individual the revenue thus receivable from specified lands or villages. The right of the assignee extended only to the receipt of the land revenue. Itdid not necessarily affect the right to the property, that is to say, he had not thereby any title to collect the rent, as that would depend on whether he did or did not acquire the property. The assignment would be made generally on one or other of three grounds, the maintenance of religious establishments, the bestowal of favour, the reward or remuneration of services. The difference of opinion between Henry and John showed itself less on the first of the three grounds, but more on the second, and still further on the third. The discussion between the two brothers on the third or feudal ground may be summarised in this wise.
The Native ruler or sovereign would assign temporarily to his chieftains the land revenue of certain villages, or whole tracts of territory, on the condition of feudal service, chiefly military, being rendered. This service is not wanted under British rule, and cannot be maintained; then the question arises whether the assignment of the land revenue is to be continued. Similarly, allowances in cash from the State treasury are made to local chiefs in consideration of duty nominal or real being performed. This duty cannot be accepted under British rule, and a discussion springs up regarding the extent to which the allowances are to be withdrawn. When these cases exist on a large scale, involving extensive interests, it will be seen at a glance that there is much room for divergence of opinion between statesmen equally able, humane and conscientious. Henry thought that liberal concessions ought to be made to these feudal classes, for reasons of policy in allaying discontent among influential sections of the community. He held that the greater part of the former grants ought to be continued,although the obligation of service might be remitted. This must be effected, despite the financial cost which such arrangements might involve. John would rejoin that these grants must at once be curtailed, and provision made for their cessation on the demise of present incumbents. The government could not bear the double expense of continuing grants for the old service just dispensed with, and of defraying the charge of the newly organized service which the British Government must introduce according to its own ideas.
This is but a bare summary of a large and complex question, affecting not only thousands but tens of thousands of cases scattered all over the country. Upon such a question as this the social contentment and the financial equilibrium of the province largely depended. This much of notice is needed in order to show how the matter concerned the career and fortunes of John.
The Governor-General, Lord Dalhousie, became aware of the growing difference of opinion between Henry and John, but viewing it from afar he thought at first that more good than harm would result. He had the highest respect for both the brothers, but knowing them to have an independent will and potential force of character, he surmised that each might be inclining towards an extreme and that one would correct the other. Moreover he saw that the friction produced apparently that mental heat which supplied force to move the administration on and on towards success. With the excellent results displayed before him in the “First Punjab Report” in 1852, he was little disposed to interfere with the mechanism, and hoped that the two eminent brothers might gradually learncomponerelites. But afterwards he began to perceive that this difference was working harm inasmuch as the discussions not only produced delay, but sometimes caused important matters to be put aside on account of the diversity of argument, for which no solution could be found.
Had these conditions lasted, moreover, an additional evil must have arisen; for in the ranks of the public service two parties would have sprung up. Each brother was loyal to the other, and was as reticent as possible regarding the difference in opinion between them. Still inevitably the fact transpired, and accordingly some officers agreed with Henry and others with John. Though these good men obeyed orders, yet those orders would be issued only after their views had been submitted and considered. These views would become tinged with the colouring of the thought in two schools of opinion. It must be added that the Natives, who had concessions to ask, were persuasively insistent with their requests. Eloquence is one of nature’s gifts to Oriental races. The skill with which a native will plead his cause in the ear of a listening official, is conceivable only to those Europeans who have experienced it. In these particular cases much that was dramatic or historical, affecting or pathetic, would be urged. Even the sterner mind of John would be touched sometimes, and much more so the more susceptible heart of Henry. Then the susceptibilities of the latter would be taken up by the officers who had been chosen by him for service in the Punjab. In the turn which events took, the formation of two parties, and the detriment to the public service which would have followed, were avoided.
Soon Lord Dalhousie and his Council at Calcutta concluded that an opportunity must be taken to effect a change; and that as one only of the two brothers should remain in the Punjab, John must be the man. While this conclusion was affecting the mind of the Governor-General, it so happened that, on an important vacancy occurring elsewhere, both brothers simultaneously offered to resign their positions in the Punjab and take service in some other part of India. This precipitated the decision of the Supreme Government.
That decision was communicated to Henry Lawrence by Lord Dalhousie in a memorable letter, from which some passages may be quoted to show historically how the matter stood.
“It has for some time been the recorded opinion of the Supreme Government that, whenever an opportunity occurred for effecting a change, the administration of the Punjab would best be conducted by a Chief Commissioner, having a Judicial and a Revenue Commissioner under him. But it was also the opinion of the Government that, whenever the change should be made, the Chief Commissioner ought to be an officer of the Civil Service. You stand far too high, and have received too many assurances and too many proofs of the great estimation in which your ability, qualities, and services have been held by the successive governments under which you have been employed, to render it necessary that I should bear testimony here to the value which has been set upon your labours and upon your service as the head of the administration of the Punjab by the Government over which I have had the honour to preside. We do not regard it as in any degree disparaging to you that we, nevertheless, do not consider it expedient to commit the sole executive charge of the administration of a kingdom to any other than to a thoroughly trained and experienced civil officer. Although the Regulations do not prevail in the Punjab, and althoughthe system of civil government has wisely and successfully been made more simple in its forms, still we are of opinion that the superintendence of so large a system, everywhere founded on the Regulations, and pervaded by their spirit, can be thoroughly controlled and moulded, as changes from time to time may become necessary, only by a civilian fully versed in the system of the elder provinces and experienced in its operation.“As the Government entertained these views, it became evident that the change it contemplates in the form of administration could not be effected, nor could the dissensions existing be reconciled, unless it were agreeable to you to transfer your services to some other department.“The result of our consideration was the statement I have now to make, that if you are willing to accept Rajputana, the Government will be happy to appoint you to it, with a view to effecting the change of the form of administration in the Punjab, to which I have already referred.”
“It has for some time been the recorded opinion of the Supreme Government that, whenever an opportunity occurred for effecting a change, the administration of the Punjab would best be conducted by a Chief Commissioner, having a Judicial and a Revenue Commissioner under him. But it was also the opinion of the Government that, whenever the change should be made, the Chief Commissioner ought to be an officer of the Civil Service. You stand far too high, and have received too many assurances and too many proofs of the great estimation in which your ability, qualities, and services have been held by the successive governments under which you have been employed, to render it necessary that I should bear testimony here to the value which has been set upon your labours and upon your service as the head of the administration of the Punjab by the Government over which I have had the honour to preside. We do not regard it as in any degree disparaging to you that we, nevertheless, do not consider it expedient to commit the sole executive charge of the administration of a kingdom to any other than to a thoroughly trained and experienced civil officer. Although the Regulations do not prevail in the Punjab, and althoughthe system of civil government has wisely and successfully been made more simple in its forms, still we are of opinion that the superintendence of so large a system, everywhere founded on the Regulations, and pervaded by their spirit, can be thoroughly controlled and moulded, as changes from time to time may become necessary, only by a civilian fully versed in the system of the elder provinces and experienced in its operation.
“As the Government entertained these views, it became evident that the change it contemplates in the form of administration could not be effected, nor could the dissensions existing be reconciled, unless it were agreeable to you to transfer your services to some other department.
“The result of our consideration was the statement I have now to make, that if you are willing to accept Rajputana, the Government will be happy to appoint you to it, with a view to effecting the change of the form of administration in the Punjab, to which I have already referred.”
So Henry departed for Rajputana in 1853, with honour acknowledged of all men, and amidst the sorrowing farewells of friends, European and Native. He left a fragrant memory behind him as he crossed the Sutlej for the last time on his way to Rajputana, whither countless good wishes followed his course. But no man then anticipated the grave events which, within four years, would open out for him in Oude a sphere as grand as that which he was now quitting.
Thus after a term of four years’ service in the Board of Administration, that is from 1849 to 1853, John Lawrence was left in sole command of the Punjab. But though his nerve was unimpaired, his capacity developed, his experience enlarged, he was not physically the same man at the end of this term that he was at the beginning. In October, 1850, at Lahore, he hadbeen stricken down by a severe fever, as bad as that from which he had suffered just ten years previously at Etawah, and his health never was fully restored after that shock. He, however, recovered sufficiently to accompany Lord Dalhousie on a march in the Punjab during the winter months, and afterwards in the following spring 1851 to examine the condition of the Peshawur valley. The ensuing months he spent at Simla in company with his wife and children.
Then, for the first time in his toil-worn life, he enjoyed the blessings of a Himalayan retreat, after the torrid heat and the depressing damp of twenty previous summers. He resorted thither, not on leave but on duty, by the special direction of Lord Dalhousie who was there also. He was indeed obliged to quit Lahore for that summer, and had not a retreat to Simla been open to him, he must for a time have relinquished his office in the Punjab. As he ascended the Simla mountains, seven to nine thousand feet above sea-level, the sight of the Himalayas was not new to him, for he had seen them in the Trans-Sutlej States; twice also he had paid brief visits to Simla itself. How pleasant, then, through the summer of 1851, was it for him to bask in mild sunshine, to drink in the balmy air, to recline in the shadows of oaken glades, to roam amidst forests of pine and cedar, to watch the light gilding peak after peak in the snowy range at sunrise, to perceive through a field-glass at sunset the familiar Sutlej winding like the thinnest of silver threads through the distant plains, to note the rain-clouds rolling up the mountain sides, to hear the thunder-peals echo among the crags! These things would have been delights tohim even as a visitor in the easiest circumstances, in hale robustness, in all the pride of life; but no pen can describe what they were to the over-taxed brain, the strained nerves, the fevered constitution, the shaken strength—such as his. He revived apace and remained in official harness, having taken the most important part of his work with him, and receiving by the daily post his papers and despatches from Lahore. Further, he had the advantage of personal intercourse with Lord Dalhousie, and thus formed a friendship which, at first official, soon became personal. After two or three months of this changed life, his old vivacity returned, and his conversation was almost as it had been in England and Ireland. But recurrence of Indian fever after an interval is almost a rule, and his case was no exception. At Simla in the autumn his Lahore fever reappeared severely, just a year after its original appearance. This time he was stronger to meet the attack, and so threw it off. But he rose from the sick-bed, for the second time in thirteen months, with vitality impaired. He was, as the event proved, sufficiently recovered to escape any serious illness for nearly three years, and to work without interruption till 1854. But during this summer of 1851, he calmly reviewed his position. He thus actually prepared himself for closing the important part of his career, and for speedily retiring from the public service. With his usual forethought, and in his unassuming way, he would reckon up his resources, and estimate how to live in some quiet and inexpensive place in England on a modest competency. But Providence decreed otherwise, and the possible necessity, though ever borne in mind, did not reachthe point of action. So in the early winter he returned to his post at Lahore, to mix in all the troublous discussions, and to bear the official fatigues which have been already mentioned, until the spring of 1853, from which point our narrative takes a fresh departure.
Though now left, in his own phrase, to walk alone—the very course most acceptable to him—he ever remembered his absent brother. In after years he was anxious that Henry’s name should be linked with his own in the annals of the Punjab. At Lahore in 1864, at the culminating point of his fame, and in the plenitude of his authority—when the memory of former differences had long been buried in his brother’s grave—he used these words in a speech to the assembled princes and chiefs of the province: “My brother Henry and I governed this province. You all knew him well, and his memory will ever dwell in your hearts as a ruler who was a real friend of the people. We studied to make ourselves acquainted with the usages, feelings and wants of every class and race, and to improve the condition of all.”
Thegoverning idea, as set forth at the outset of the last chapter, must be sustained in this chapter also. The administration of the Punjab, already sketched, must be yet further delineated; for upon its completeness depended the ability and sufficiency of the province to keep its own head aloft in the rising tide, and to hold up its neighbours amidst the dashing breakers of the rebellion destined to occur only four years later. We need not ask what would have happened had the Punjab been governed with feebleness and inefficiency, because such defects are not to be anticipated under British rule; but the chance was this, that even under an ordinarily fair administration, the preparation of the province might not have been effected within the too short time allowed by events,—that, for instance, the pacification had not been perfect, the frontier tribes not entirely over-awed, the dangerous classes not fully disarmed, the feudal classes not conciliated by timely concessions, the land-settlement not complete, the agrarian disputes not quite composed, the official establishments not so organized as to call forth all the provincialresources at a moment’s notice. For all these things in combination, an extraordinarily good administration was needed, and that the Punjab had. Without that, the province must have been submerged by the floods of rebellion in 1857, and then all Northern India, the finest part of the Indian empire, must have succumbed.
John Lawrence was now, during the spring of 1853, installed in the sole and chief command of the Punjab, with the title of Chief Commissioner, and without any colleague of equal station with himself. This title was created on this occasion for the first time in India, and has since been borne by other men in other provinces; but the fact of its being originally borne by him has invested it with peculiar dignity, and rendered every one proud to bear it. The Punjab had been divided from the beginning of British rule, under his Board, into seven divisions, each being under the civil command of a Commissioner—namely, the Cis-Sutlej on the east of that river, the Trans-Sutlej on the west, the central or Lahore division round the capital, the southern division around Mooltan near the confluence of the Indus and its tributaries, the Sind Sagar division on the east of the Middle Indus,—Sind being the original name of Indus—the Peshawur division comprising that famous valley with the surrounding hills, and the Derajat division at the base of the Sulemani range dividing India from Afghanistan. These seven divisions or commissionerships being placed under him, he was styled the Chief Commissioner. In the management of the country he was assisted by two high officers styled the Judicial Commissioner for law and justice, and the Financial Commissioner for revenue andgeneral administration. His colleague in the late Board, Montgomery, filled the Judicial Commissionership. The Financial Commissionership was, after a year, filled by Donald Macleod, who had been for some time Commissioner of the Trans-Sutlej division. Macleod was eminently worthy of this post in all respects save one. Though prompt and attentive in ordinary affairs, and most useful in emergencies, he had a habit of procrastination in matters requiring deliberative thought. Despite this drawback, he was one of the most eminent men then in India. His scholar-like acquirements, his profound knowledge of eastern life and manners, his refined intellect and polished manner, rendered him an ornament to the Punjab service. Moreover, he had a serene courage, a calm judgment amidst turmoil and peril, which, during the troublous years to come, stood him and his country in good stead.
Thus John Lawrence was blessed with two coadjutors after his own heart, who were personally his devoted friends, who set before all men the example which he most approved, and diffused around the very tone which he wished to prevail. He was in complete accord with them; they were proud to support him, he was thankful to lean on them. No doubt the recent tension with his brother, amidst the urgency of affairs, had affected his health. With him as with other men, the anxiety of undecided controversy, the trial of the temper, the irritating annoyance of reiterated argument, caused more wear and tear than did labour and responsibility. But now he began to have halcyon days officially. His spirits rose as the fresh air of undivided responsibility braced his nerves. Though far frombeing physically the man he was before the illness of 1850, he was yet sufficiently well to give a full impulse to the country and its affairs, and he girded himself with gladness for the work before him. Like the good shipArgoof old, he propelled himself with his own native force—
“Soon as clear’d the harbour—like a bird—Argosprang forward with a bound, and bentHer course across the water-path.”
“Soon as clear’d the harbour—like a bird—Argosprang forward with a bound, and bentHer course across the water-path.”
“Soon as clear’d the harbour—like a bird—Argosprang forward with a bound, and bentHer course across the water-path.”
The administration of the county proceeded in the same course, even along the same lines and in the same grooves, under him as under the late Board. There may have been some change in tendency here and there, or rather existing tendencies may have been drawn a little in this or that direction; but for the most part he introduced no perceptible modification. This fact may appear strange, when the differences of opinion between him and his brother are remembered. These differences, however, had been reserved as much as possible for discussioninter se, and so kept back from the public eye; thus many important matters had for a time been laid aside; consequently he had not anything to undo in these matters, for in fact nothing had finally been done. So he had no decisions to reverse in cases which had for a while been left undecided. But being relieved from the irritation of controversy, he paid more regard to the known opinions or the recorded convictions of his now absent brother, than perhaps he had done when the brother was present to press the counter-arguments. Thus he succeeded in carrying on the administration without any external break of continuity. If anything like the formation or growth of two schools orparties of opinion among the civil officers had begun, that ceased and disappeared at once. All men knew that the public policy would be directed by one guiding hand, and that when all those who had a claim to be consulted had said their say, a decision would be pronounced which must be obeyedex animo. But this obedience was rendered easy, because no marked deflection from former principle or procedure was perceptible. It had for some time been notified in various ways that the expenses were growing too fast for the income, and greater financial strictness would be required. None were surprised, therefore, when a more rigid adjustment of expenditure in reference to revenue, and of outlay to resources, was introduced. The Board had designed to adjust the income and expenses so that the Province should from its provincial revenues defray the cost of its administration and contribute a share towards defraying the cost of the army cantoned within its limits; and he carried that financial design into full effect. It was not expected of him that his Province should pay for the whole of that army which defended the empire as well as the Province. But he managed that his provincial treasury should give its proper quota.
In most, perhaps almost all, other respects the conduct of business was the same as that described as existing under the late Board. The march of affairs was rapid and the stream flowed smoothly. The only novelty would be the introduction of additional improvements according to the opportunities of each succeeding year, and the growing requirements of the time. Such improvements were a brief digest of Native law and of British procedure for the use of the courts ofjustice, commonly called at the time the Punjab Code; the taking of a census and other statistics; the introduction of primary education under State agency, and others.
In weighing the burden which now fell on John Lawrence’s shoulders, it is to be remembered that though before the public and at the bar of history he was the virtual Governor of the Punjab, yet the Government was not technically vested in him, nor had he the status and title of Lieutenant-Governor. As Chief Commissioner he was the deputy of, or the principal executive authority under, the Governor-General in Council. Not only was he under the constant control of the Government of India, but also he had to obtain the specific sanction of that supreme authority for every considerable proceeding, and for the appointment of every man to any office of importance. Being high in the confidence of the Government of India, he was almost always able to obtain the requisite sanction, which was, as a general rule, given considerately and generously. On a historic retrospect it may appear that he ought then to have been appointed Lieutenant-Governor of the Punjab, on an equal footing with the Lieutenant-Governors of the North-Western Provinces and of Bengal, and that he who really did the work and bore the responsibility should also have had the rank and the status. But at that timedîs aliter visum. The point ought however to be mentioned here, because it greatly affected the extent of his labours and anxieties. It was one thing for him to devise and arrange what ought to be done, and to prepare for carrying it out; but it was an additional thing for him to obtain the sanction on grounds to be set forth in every important case. The selection of the right men to fillthe various offices of trust fell upon him. But instead of appointing them straightway to the places, he had to obtain sanction, in view of which sanction some explanation would have to be rendered. Sometimes, too, the Government of India might desire to appoint some officer other than the one whom he had recommended. Thereupon he would be sure to press his view, believing that the success and efficiency of his work depended on the fitting man being placed in the right position. Being regarded by the Governor-General with generous confidence, he almost invariably carried his point. But the correspondence, official and private, caused hereby was considerable, and the anxiety was greater still. But although as Chief Commissioner he found the work more laborious than it would have been to him as Lieutenant-Governor, still he gladly accepted the position with this drawback, because within his jurisdiction he had his own way. He must come to an understanding with the Government of India indeed; but once he had succeeded in that, no colleague at home, no high officer near his provincial throne, could challenge his policy. This autonomy, even with its unavoidable limitations, was a great boon to a man of his temperament.
Having set to work under new and favourable conditions, he pursued his task with what in many men would be termed ardour and enthusiasm. These qualities were evinced by him, no doubt, but in his nature they were over-borne by persistency and determination. Thus it would be more correct to say that he urged on the chariot of state with disciplined energy. He well knew, as the Board before him had known, that the results of large operations must in the long run be well reportedfor public information. But he held that the reporting might be deferred for a short season. Meanwhile he would secure actual success; the work should from beginning to end be accurately tested; it should be tempered and polished like steel and finishedusque ad unguem. Some officers would ensure an excellent quality of work with great pains, but then they would fall short in quantity; others would despatch a vast quantity, but then it would be of inferior quality; he would have both quality and quantity, all the work that came to hand must be performed in time, but then it must also be done well. Nothing is more common even for able administrators than to lean too much towards one or the other of these two alternatives; no man ever held the balance between the two better than he, and very few could hold it as well. In no respect was his pre-eminence as an administrator more marked than in this. In the first instance he would prepare no elaborate despatches, indite no minutes, order no detailed reports to be prepared, write no long letters. He would have action absolutely, and work rendered complete. His management of men may be aptly described by the following lines from Coleridge’s translation of Schiller: