Presidential Address at the 51st Session of the Indian National Congress held at Haripura

Mr Chairman and Friends,

I am deeply sensible of the honour you have done me by electing me as the President of the Indian National Congress for the coming year. I am not so presumptuous as to think for one moment that I am in any way worthy of that great honour. I regard it as a mark of your generosity and as a tribute to the youths of our country, but for whose cumulative contribution to our national struggle, we would not be where we are today. It is with a sense of fear and trepidation that I mount the tribune which has hitherto been graced by the most illustrious sons and daughters of our motherland. Conscious as I am of my numerous limitations, I can only hope and pray that with your sympathy and support I may be able in some small measure to do justice to the high office which you have called upon me to fill.

At the outset, may I voice your feelings in placing on record our profound grief at the death of Shrimati Swaruprani Nehru, Acharya Jagadish Chandra Bose and Dr Sarat Chandra Chatterji? Shrimati Swaruprani Nehru was to us not merely the worthy consort of Pandit Motilal and the revered mother of Pandit Jawaharlal Nehru. Her suffering, sacrifice and service in the cause of India's freedom were such as any individual could feel proud of. As compatriots we mourn her death and our hearts go out in sympathy to Pandit Nehru and other members of the bereaved family.

To Acharya Jagadish Chandra Bose India will always remain beholden for being the first to secure for her an honoured place in the modern scientific world. A nationalist to the core of his heart, Acharya Jagadish gave his life not merely to science, but to India as well. India knows it and is grateful for it. We convey our heartfelt sympathy to Lady Bose.

Through the untimely death of Dr Sarat Chandra Chatterji, India has lost one of the brightest stars in her literary firmament. His name, for years a household word in Bengal, was not less known in the literary world of India. But if Sarat Babu was great as a litterateur, he was perhaps greater as a patriot. The Congress in Bengal is distinctly poorer today because of his death. We send our sincerest condolence to the members of his family.

Before I proceed further I should like to bow my head in homage to the memory of those who have laid down their lives in the service of the country since the Congress met last year at Faizpur. I should mention especially those who died in prison or in internment or soon after release from internment. I should refer in particular to Sjt. Harendra Munshi, a political prisoner in the Dacca Central Jail, who laid down his life the other day as a result of hungerstrike. My feelings are still too lacerated to permit me to say much on this subject. I shall only ask you if there is not 'something rotten in the state of Denmark' that such bright and promising souls as Jatin Das, Sardar Mahabir Singh, Ramkrishna Namadas, Mohit Mohan Maitra, Harendra Munshi and others should feel the urge not to live life but to end it.

When we take a bird's eye view of the entire panorama ofhuman history, the first thing that strikes us is the rise and fall of empires. In the East as well as in the West, empires have invariably gone through a process of expansion and after reaching the zenith of prosperity, have gradually shrunk into insignificance and sometimes death. The Roman empire of the ancient times and the Turkish and Austro-Hungarian empires of the modern period are striking examples of this law. The empires in India - the Maurya, the Gupta and the Mogul empires - are no exceptions to this rule. In the face of these objective facts of history, can anyone be so bold as to maintain that there is in store a different fate for the British empire? That empire stands today at one of the crossroads of history. It will either go the way of other empires or it must transform itself into a federation of free nations. Either course is open to it. The Czarist empire collapsed in 1917 but of its debris sprang the Union of Soviet Socialist Republics. There is still time for Great Britain to take a leaf out of Russian history. Will she do so?

The British empire is a hybrid phenomenon in politics. It is a peculiar combination of self-governing countries, partially self-governing dependencies and autocratically governed colonies. Constitutional device and human ingenuity may bolster up this combination for a while, but not for ever. If the internal incongruities are not removed in good time, then quite apart from external pressure, the empire is sure to break down under its own strain. But can the British empire transform itself into a federation of free nations with one bold sweep? It is for the British people to answer this question. One thing, however, is certain. This transformation will be possible only if the British people become free in their own homes; only if Great Britain becomes a socialist state. There is an inseparable connection between the capitalist ruling classes in Great Britain and the colonies abroad. As Lenin pointed out long ago, 'reaction in Great Britain is strengthened and fed by the enslavement of a number of nations'. The British aristocracy and bourgeoisie exist primarily because there are colonies and overseas dependencies to exploit. The emancipation of the latter will undoubtedly strike at the very existence of the capitalist ruling classes in Great Britain and precipitate the establishment of asocialist regime in that country. It should, therefore, be clear that a socialist order in Great Britain is impossible of achievement without the liquidation of colonialism and that we who are fighting for the political freedom of India and other enslaved countries of the British empire are incidentally fighting for the economic emancipation of the British people as well.

It is well-known truism that every empire is based on the policy of divide and rule. But I doubt if any empire in the world has practised this policy so skilfully, systematically and ruthlessly as Great Britain. In accordance with the policy, before power was handed over to the Irish people, Ulster was separated from the rest of Ireland. Similarly, before any power is handed over to the Palestinians, the Jews will be separated from the Arabs. An internal partition is necessary in order to neutralise the transference of power. The same principle of partition appears in a different form in the new Indian Constitution. Here we find an attempt to separate the different communities and put them into watertight compartments. And in the Federal Scheme there is juxtaposition of autocratic princes and democratically elected representatives from British India. If the new Constitution is finally rejected, whether owing to the opposition of British India or owing to the refusal of the princes to joining it, I have no doubt that British ingenuity will seek some other constitutional device for partitioning India and thereby neutralising the transference of power to the Indian people. Therefore, any Constitution for India which emanates from Whitehall must be examined with the utmost care and caution.

The policy of divide and rule, though it has its obvious advantages, is by no means an unmixed blessing for the ruling power. As a matter of fact, it creates new problems and new embarrassments. Great Britain seems to be caught in the meshes of her own political dualism resulting from her policy of divide and rule. Will she please the Muslim or the Hindu in India? Will she favour the Arab or the Jew in Palestine; the Arab or the Kurd in Iraq? Will she side with the King or the Wafd in Egypt? The same dualism is visible outside the empire. In the case of Spain, British politicians are torn between such alternatives as Franco and the lawful government; and in the wider field of European politics, between France and Germany. The contradictions and inconsistencies in Britain's foreign policy are the direct outcome of the heterogeneous composition of her empire. The British Cabinet has to please the Jews because she cannot ignore Jewish high finance. On the other hand, the India Office and Foreign Office have to placate the Arabs because of imperial interests in the Near East and India. The only means whereby Great Britain can free herself from such contradictions and inconsistencies is by transforming the empire into a federation of free nations. If she could do that, she would be performing a miracle in history. But if she fails, she must reconcile herself to the gradual dismemberment of a vast empire where the sun is supposed not to set. Let the lesson of the Austro-Hungarian empire be not lost on the British people.

The British empire at the present moment is suffering from strain at a number of points. Within the empire, in the extreme West, there is Ireland and in the extreme East, India. In the middle lies Palestine with the adjoining countries of Egypt and Iraq. Outside the empire, there is the pressure exerted by Italy in the Mediterranean and Japan in the Far East, both of these countries being militant, aggressive and imperialist. Against this background of unrest stands Soviet Russia, whose very existence strikes terror into the heart of the ruling classes in every imperialist state. How long can the British empire withstand the cumulative effect of this pressure and strain?

Today, Britain can hardly call herself'the Mistress of the Seas.' Her phenomenal rise in the 18th and 19th centuries was the result of her sea power. Her decline as an empire in the 20th century will be the outcome of the emergence of a new factor in world history - air force. It was due to this new factor, air force, that an impudent Italy could successfully challenge a fully mobilised British Navy in the Mediterranean. Britain can rearm on land, sea and air up to the utmost limit. Battleships may still stand up to bombing from the air, but air force as a powerful element in modern warfare has come to stay. Distances have been obliterated and despite all anti-aircraft defences, London lies at the mercy of any bombing squadron from a continental centre. In short, air force has revolutionised modern warfare, destroyed the insularity of Great Britain and rudely disturbed the balance of power in world politics. The clay feet of a gigantic empire now stand exposed as these have never been before.

Amid this interplay of world forces India emerges much stronger than she has ever been before. Ours is a vast country with a population of 350 million. Our vastness in area and in population has hitherto been a source of weakness. It is today a source of strength if we can only stand united and boldly face our rulers. From the standpoint of Indian unity the first thing to remember is that the division between British India and the Indian states is an entirely artificial one. India is one and the hopes and aspirations of the people of British India and of the Indian states are identical. Our goal is that of an Independent India and in my view that goal can be attained only through a federal republic in which the provinces and the states will be willing partners. The Congress has, time and again, offered its sympathy and moral support to the movement carried on by the states' subjects for the establishment of democratic government in what is known as Indian India. It may be that at this moment our hands are so full that the Congress is not in a position to do more for our compatriots in the states. But even today there is nothing to prevent individual Congressmen from actively espousing the cause of the states' subjects and participating in their struggle. There are people in the Congress like myself who would like to see the Congress participating more actively in the movement of the states' subjects. I personally hope that in the near future it will be possible for the Indian National Congress to take a forward step and offer a helping hand to our fellow-fighters in the states. Let us not forget that they need our sympathy and our help.

Talking of Indian unity the next thing that strikes us is the problem of the minorities. The Congress has, from time to time, declared its policy on this question. The latest authoritative pronouncement made by the All India Congress Committee at its meeting in Calcutta in October, 1937, runs thus:

The Congress has solemnly and repeatedly declared its policyin regard to the rights of the minorities in India and has stated that it considers it its duty to protect these rights and ensure the widest possible scope for the development of these minorities and their participation in the fullest measure in the political, economic and cultural life of the nation. The objective of the Congress is an independent and united India where no class or group or majority or minority may exploit another to its own advantage, and where all the elements in the nation may cooperate together for the common good and the advancement of the people of India. The objective of unity and mutual cooperation in a common freedom does not mean the suppression in any way of the rich variety and cultural diversity of Indian life, which have to be preserved in order to give freedom and opportunity to the individual as well as to each group to develop unhindered according to its capacity and inclination.

In view, however, of attempts having been made to misinterpret the Congress policy in this regard, the All India Congress Committee desire to reiterate this policy. The Congress has included in its resolution on Fundamental Rights that:
(i)    Every citizen of India has the right of free expression of opinion, the right of free association and combination, and the right to assemble peacefully and without arms, for a purpose not opposed to law or morality;
(ii)    Every citizen shall enjoy freedom of conscience and the right freely to profess and practise his religion, subject to the public order and morality;
(iii)    The culture, language and script of the minorities and of the different linguistic areas shall be protected;
(iv)    All citizens are equal before the law, irrespective of religion, caste, creed or sex;
(v)    No disability attaches to any citizen by reason of his or her religion, caste, creed or sex, in regard to public employment, office of power or honour, and in the exercise of any trade or calling;
(vi)    All citizens have equal rights and duties in regard to wells, tanks, roads, schools and places of public resort, maintained out of state, or local funds, or dedicated by private persons for the use of the general public;
(vii)    The state shall observe neutrality in regard to all religions;
(viii)    The franchise shall be on the basis of universal adultsuffrage;
(ix)    Every citizen is free to move throughout India and to stay and settle in any part thereof, to acquire property and to follow any trade or calling, and to be treated equally with regard to legal prosecution or protection in all parts of India. These clauses of the Fundamental Rights resolution make it clear that there should be no interference in matter of conscience, religion, or culture, and a minority is entitled to keep its personal law without any change in this respect being imposed by the majority.

The position of the Congress in regard to the communal decision has been repeatedly made clear in Congress resolutions and finally in the Election. Manifesto issued last year. The Congress is opposed to this decision as it is antinational, antidemocratic and is a barrier to Indian freedom and the development of Indian unity. Nevertheless, the Congress has declared that a change in or supersession of the Communal Decision should only be brought about by the mutual agreement of the parties concerned. The Congress has always welcomed and is prepared to take advantage of any opportunity to bring about such a change by mutual agreement.

In all matters affecting the minorities in India, the Congress wishes to proceed by their cooperation and through their goodwill in a common undertaking and for the realization of a common aim which is the freedom and betterment of all the people of India.

The time is opportune for renewing our efforts for the final solution of this problem. I believe I am voicing the feelings of all Congressmen when I say that we are eager to do our very best to arrive at an agreed solution, consistent with the fundamental principles of nationalism. It is not necessary for me to go into details as to the lines on which a solution should take place. Muchuseful ground has already been covered in past conferences and conversations. I shall merely add that only by emphasising our common interests, economic and political, can we cut across communal divisions and dissensions. A policy of live and let live in matters religious and an understanding in matters economic and political should be our objective. Though the Muslim problem looms large whenever we think of the question of the minorities and though we are anxious to settle this problem finally, I must say that the Congress is equally desirous of doing justice to other minorities and especially the so-called depressed classes whose number is a very large one. I would put it to the members of the minority communities in India to consider dispassionately if they have anything to fear when the Congress programme is put into operation. The Congress stands for the political and economic rights of the Indian people as a whole. If it succeeds in executing its programme, the minority communities would be benefited as much as any other section of the Indian population. Moreover, if after the capture of political power, national reconstruction takes place on socialistic lines; as I have no doubt it will; it is the 'have-nots' who will benefit at the expense of the 'haves' and the Indian masses have to be classified among the 'have-nots'. There remains but one question which may be a source of anxiety to the minorities, viz., religion and that aspect of culture that is based on religion. On this question the Congress policy is one of live and let live; a policy of complete noninterference in matters of conscience, religion and culture as well as of cultural autonomy for the different linguistic areas. The Muslims have, therefore, nothing to fear in the event of India winning her freedom; on the contrary, they have everything to gain. So far as the religious and social disabilities of the so-called depressed classes are concerned, it is well-known that during the last seventeen years the Congress has left no stone unturned in the effort to remove them, and I have no doubt that the day is not far off when such disabilities will be things of the past.

I shall now proceed to consider the method which the Congress should pursue in the years to come as well as its role in the national struggle. I believe more than ever that the method should be Satyagraha or non-violent noncooperation in the widest sense of the term, including civil disobedience. It would not be correct to call our method passive resistance. Satyagraha, as I understand it, is not merely passive resistance but active resistance as well, though that activity must be of a nonviolent character. It is necessary to remind our countrymen that Satyagraha or non-violent non-cooperation may have to be resorted to again. The acceptance of office in the provinces as an experimental measure should not lead us to think that our future activity is to be confined within the limits of strict constitutionalism. There is eveiy possibility that a determined opposition to the forcible inauguration of Federation may land us in another big campaign of civil disobedience.

In our struggle for independence we may adopt either of two alternatives. We may continue our fight until we have our full freedom and in the meantime decline to use any power that we may capture while on the march. We may, on the other hand, go on consolidating our position while we continue our struggle for Purna Swaraj or complete independence. From the point of view of principle, both the alternatives are equally acceptable and a priori considerations need not worry us. But we should consider very carefully at every stage as to which alternative would be more conducive to our national advancement. In either case, the ultimate stage in our progress will be the severance of the British connection. When that severance takes place and there is no trace left of British domination, we shall be in a position to determine our future relations with Great Britain through a treaty of alliance voluntarily entered into by both parties. What out future relations with Great Britain will or should be, it is too early to say. That will depend to a large extent on the attitude of the British people themselves. On this point I have been greatly impressed by the attitude of President de Valera. Like the President of Eire, I should also say that we have no enmity towards the British people. We are fighting Great Britain and we want the fullest liberty to determine our future relations with her. But once we have real self-determination, there is no reason why we should not enter into the most cordial relations with the British people.

I am afraid there is a lack of clarity in the minds of many Congressmen as to the role of the Congress in the history of our national struggle. I know that there are friends who think that after freedom is won, the Congress Party having achieved its objective, should wither away. Such a conception is entirely erroneous. The party that wins freedom for India should be also the party that will put into effect the entire programme of post-war reconstruction. Only those who have won power can handle it properly. If other people are pitchforked into seats of power which they were not responsible for capturing, they will lack that strength, confidence and idealism which is indispensable for revolutionary reconstruction. It is this which accounts for the difference in the record of the Congress and non-Congress ministries in the very narrow sphere of Provincial Autonomy.

No, there can be no question of the Congress Party withering away after political freedom has been won. On the contrary, the Party will have to take over power, assume responsibility for administration and put through its programme of reconstruction. Only then will it fulfill its role. If it were forcibly to liquidate itself, chaos would follow. Looking at post-war Europe we find that only in those countries has there been orderly and continuous progress where the party which seized power undertook the work of reconstruction.

I know that it will be argued that the continuance of a party in such circumstances, standing behind the state, will convert that state into a totalitarian one; but I cannot admit the charge. The state will possibly become a totalitarian one, if there be only one party as in countries like Russia, Germany and Italy. But there is no reason why other parties should be banned. Moreover, the party itself will have a democratic basis, unlike, for instance, the Nazi Party which is based on the 'leader principle'. The existence of more than one party and the democratic basis of the Congress Party will prevent the future Indian state becoming a totalitarian one. Further, the democratic basis of the party will ensure that leaders are not thrust upon the people from above, but are elected from below.

Though it may be somewhat premature to give a detailed plan of reconstruction, we might as well consider some of the principles according to which our future social reconstruction should take place. I have no doubt in my mind that our chief national problems relating to the eradication of poverty, illiteracy and disease and to scientific production and distribution can be effectively tackled only along socialistic lines. The very first thing which our future national government will have to do, would be to set up a commission for drawing up a comprehensive plan of reconstruction. This plan will have two parts; an immediate programme and a long-period programme. In drawing up the first part, the immediate objectives which will have to be kept in view will be three-fold; first, to prepare the country for self-sacrifice; secondly, to unify India; and thirdly, to give scope for local and cultural autonomy. The second and third objectives may appear to be contradictory, but they are not really so. Whatever political talent or genius we may possess as a people, will have to be used in reconciling these two objectives. We shall have to unify the country so that we may be able to hold India against any foreign invasion. While unifying the country through a strong central government, we shall have to put all the minority communities as well as the provinces at their ease, by allowing them a large measure of autonomy in cultural as well as governmental affairs. Special efforts will be needed to keep our people together when the load of foreign domination is removed, because alien rule has demoralised and disorganised us to a degree. To promote national unity we shall have to develop our lingua franca and a common script. Further, with the help of such modern scientific contrivances as aeroplanes, telephone, radio, films, television, etc., we shall have to bring the different parts of India closer to one another and through a common educational policy we shall have to foster a common spirit among the entire population. So far as our lingua franca is concerned, I am inclined to think that the distinction between Hindi and Urdu is an artificial one. The most natural lingua franca would be a mixture of the two, such as is spoken in daily life in large portions of the country and this common language may be written in either of the two scripts - Nagari or Urdu. I am aware that there are people in India who strongly favour either of the two scriptsto the exclusion of the other. Our policy, however, should not be one of exclusion. We should allow the fullest latitude to use either script. At the same time, I am inclined to think that the ultimate solution, and the best solution would be the adoption of a script that would bring us into line with the rest of the world. Perhaps, some of our countrymen will gape with horror when they hear of the adoption of the Roman script, but I would beg them to consider this problem from the scientific and historical point of view. If we do that, we shall realise at once that there is nothing sacrosanct in a script. The Nagari script, as we know it today, has passed through several phases of evolution. Besides, most of the major provinces of India have their own script and there is the Urdu script which is used largely by the Urdu-speaking public in India and by both Muslims and Hindus in provinces like the Punjab and Sind. In view of such diversity, the choice of a uniform script for the whole of India should be made in a thoroughly scientific and impartial spirit, free from bias of every kind. I confess that there was a time when I felt that it would be anti-national to adopt a foreign script. But my visit to Turkey in 1934 was responsible for converting me. I then realised for the first time what a great advantage it was to have the same script as the rest of the world. So far as our masses are concerned, since more than 90 per cent are illiterate and are not familiar with any script, it will not matter to them which script we introduce when they are educated. The Roman script will, moreover, facilitate their learning a European language. I am quite aware how unpopular the immediate adoption of the Roman script would be in our country. Nevertheless, I would beg my countrymen to consider what would be the wisest solution in the long run.

With regard to the long-period programme for a Free India, the first problem to tackle is that of our increasing population. I do not desire to go into the theoretical question as to whether India is overpopulated or not. I simply want to point out that where poverty, starvation and disease are stalking the land, we cannot afford to have our population mounting up by thirty million during a single decade. If the population goes up by leaps and bounds, as it has done in the recent past, our plans are likely to fall through. It will, therefore, be desirable to restrict our population until we are able to feed, clothe and educate those who already exist. It is not necessary at this stage to prescribe the methods that should be adopted to prevent a further increase in population, but I would urge that public attention be drawn to this question.

Regarding reconstruction, our principal problem will be how to eradicate poverty from our country. That will require a radical reform of our land system, including the abolition of landlordism. Agricultural indebtedness will have to be liquidated and provision made for cheap credit for the rural population. An extension of the cooperative movement will be necessary for the benefit of both producers and consumers. Agriculture will have to be put on a scientific basis with a view to increasing the yield from the land.

To solve the economic problem agricultural improvement will not be enough. A comprehensive scheme of industrial development under state ownerships and state control will be indispensable. A new industrial system will have to be built up in place of the old one which has collapsed as a result of mass production abroad and alien rule at home. The planning commission will have to carefully consider and decide which of the home industries could be revived despite the competition of modern factories and in which sphere large scale production should be encouraged. However much we may dislike modern industrialism and condemn the evils which follow in its train, we cannot go back to the pre-industrial era, even if we desire to do so. It is well, therefore, that we should reconcile ourselves to industrialisation and devise means to minimise its evils and at the same time explore the possibilities of reviving cottage industries where there is a possibility of their surviving the inevitable competition of factories. In a country like India, there will be plenty of room for cottage industries, especially in the case of industries including hand-spinning and hand-weaving allied to agriculture.

Last but not the least, the state on the advice of a planning commission, will have to adopt a comprehensive scheme for gradually socialising our entire agricultural and industrial system in the spheres of both production and appropriation. Extra capital willhave to be procured for this, whether through internal or external loans or through inflation.

Opposing or resisting the provincial part of the Constitution will be hardly possible now, since the Congress Party has accepted office in seven out of eleven provinces. All that could be done would be to strengthen and consolidate the Congress as a result of it. I am one of those who were not in favour of taking office - not because there was something inherently wrong in doing so, not because no good could come out of that policy, but because it was apprehended that the evil effects of office acceptance would outweigh the good. Today I can only hope that my forebodings were unfounded.

How can we strengthen and consolidate the Congress while our ministers are in office? The first thing to do is to change the composition and character of the bureaucracy. If this is not done, the Congress Party may come to grief. In every country, the ministers come and go, but the steel frame of the permanent services remains. If that is not altered in composition and character, the governmental party and its cabinet are likely to prove ineffective in putting their principles into practice. This is what happened in the case of the Social Democratic Party in postwar Germany and perhaps in the case of the Labour Party in Great Britain in 1924 and 1929. It is the permanent services who really rule in every country. In India they have been created by the British and in the higher ranks they are largely British in composition. Their outlook and mentality are in most cases neither Indian nor national and a national policy cannot be executed until the permanent services become national in outlook and mentality. The difficulty, of course, will be that the higher ranks of the permanent services being, under the Statute, directly under the Secretary of State for India and not under the Provincial Government, it will not be easy to alter their composition.

Secondly, the Congress ministers in the different provinces should, while they are in office, introduce schemes of reconstruction in the spheres of education, health, prohibition, prison reforms, irrigation, industry, land reform, workers' welfare etc. In this matter, attempts should be made to have as far as possible, a uniform policy for the whole of India. This uniformity could be brought about in either of two ways. The Congress ministers in the different provinces could themselves come together; as the Labour Ministers did in October, 1937, in Calcutta; and draw up a uniform programme. Over and above this, the Congress Working Committee, which is the supreme executive of the Congress could lend a helping hand by giving directions to the different departments of the Congress-controlled provincial governments in the light of such advice as it may get from its own experts. This will mean that the members of the Congress Working Committee should be conversant with the problems that come within the purview of the Congress governments in the provinces. It is not intended that they should go into the details of administration. All that is needed is that they should have a general understanding of the different problems so that they could lay down the broad lines of policy. In this respect, the Congress Working Committee could do much more than it has hitherto done and unless it does so, I do not see how that body can keep an effective control over the different Congress ministries.

At this stage I should like to say something more about the role of the Congress Working Committee. This Committee, in my judgement, is not merely the directing brain of the national army of fighters for freedom. It is also the Shadow Cabinet of Independent India and it should function accordingly. This is not an invention of my own. It is the role which has been assigned to similar bodies in other countries that have fought for their national emancipation. I am one of those who think in terms of a Free India; who visualise a national government in this country within the brief span of our own life. It is consequently natural for us to urge that the Working Committee should feel and function as the Shadow Cabinet of a Free India. This is what President de Valera's Republican Government did when it was fighting the British Government and was on the run. And this is what the Executive of the Wafd Party in Egypt did before it got into office. The members of the Working Committee while carrying on their day to day work should accordingly study the problems they will have to tackle in the event of their capturing political power.

More important than the question of the proper working of the Congress Governments is the immediate problem of how to oppose the inauguration of the federal part of the Constitution. The Congress attitude towards the proposed Federal Scheme has been clearly stated in the resolution adopted by the Working Committee at Wardha on February 4, 1938, which will be placed before this Congressafter the Subjects Committee has considered it. That resolution says:

The Congress has rejected the new Constitution and declared that a Constitution for India which can be accepted by the people must be based on Independence and can only be framed by the people themselves by means of a Constituent Assembly without the interference by any foreign authority. Adhering to this policy of rejection, the Congress has, however, permitted the formation in provinces of Congress Ministries with a view to strengthening the nation in its struggle for Independence. In regard to the proposed Federation, no such consideration applies even provisionally, or for a period, and the imposition of this Federation, will do grave injuries to India and tighten the bonds which hold her under the subjection of an imperialist domination. This scheme of Federation excludes from the sphere of responsibility the vital function of a government.

The Congress is not opposed to the idea of Federation but a real Federation must, even apart from the question of responsibility, consist of free units, enjoying more or less the same measure of freedom and civil liberty and representation by a democratic process of election. Indian states participating in the Federation should approximate to the provinces in the establishment of representative institutions, responsible government, civil liberties and the method of election to the Federal House. Otherwise Federation as it is now contemplated will, instead of building Indian unity, encourage separatist tendencies and involve the states in internal and external conflict.

The Congress, therefore, reiterates its condemnation of the proposed scheme and calls upon Provincial and Local Congress Committees and the people generally as well as Provincial Governments and Ministries to prevent its inauguration. In the event of an attempt being made to impose it, despite the declared will of the people, such an attempt must be combated in every way and the Provincial Government and Ministries must refuse to cooperate with it.

In case such a contingency arises, the AICC is authorised and directed to determine the line of action to be pursued in this regard.

I should like to add some more arguments to explain our attitude of uncompromising hostility towards the proposed Federation. One of the most objectionable features of the Federal Scheme relates to the commercial and financial safeguards in the new Constitution. Not only will the people continue to be deprived of any power over defence or foreign policy, but the major portion of the expenditure will also be entirely out of popular control. According to the budget of the Central Government for the year 193738, the army expenditure comes to 44.61 crores of rupees (£ 33.46 million) out of a total expenditure of 77.90 crores of rupees (£ 58.42 million); that is, roughly 57 per cent of the total expenditure of the Central Government. It appears that the reserved side of Federal Government which will be controlled by the GovernorGeneral will handle about 80 per cent of the Federal expenditure. Moreover, bodies like the Reserve Bank and the Federal Railways Authority are already created or will be created which will work as imperium in imperio uncontrolled by a Federal Legislature. The Legislature will be deprived of the powers it possesses at present to direct and influence railway policy, and it will not have any voice in determining the currency and exchange policy of the country which has a vital bearing on its economic development.

The fact that external affairs will be a reserved subject under the Federal Government will prejudicially affect the freedom of the Indian Legislature to conclude trade agreements and will seriously restrict, in effect, fiscal autonomy. The Federal Government will not be under any constitutional obligation to place such trade agreements before the Legislature for their ratification, even as they decline at present to give an undertaking to place the Indo-British Trade Agreement before the Indian Legislative Assembly. The so-called fiscal autonomy convention will have no meaning unless it is stipulated that no trade agreement on behalf of India shall be signed by any party without its ratification by the Indian Legislature. In this connection, I should like to state that I am definitely of opinion that India should enter into bilateral trade agreements with countries like Germany, Czechoslovakia, Italy and the United States of America with whom she had close trade relations in the past. But under the new Constitution, it will not be within the power of the Federal Legislature to force the Federal Government to enter into such bilateral trade agreements. The iniquitous and inequitable commercial safeguards embodied in the Act will make it impossible for any effective measure to be adopted in order to protect and promote Indian national industries especially where they might, as they often do, conflict with British commercial or industrial interests. In addition to the Governor General's special responsibility to see that provisions with regard to discrimination, as laid down in the Act, are duly carried out, it is also his duty to prevent any action which would subject British goods imported into India to any kind of discriminatory or penal treatment. A careful study of these stringent and wide provisions will show that India can adopt no measures against British competition which the GovernorGeneral cannot, in effect, stultify or veto, whether in the legislative or in the administrative sphere. It is, of course, preposterous to permit foreigners in this country to compete with the nationals on equal terms and there can be no genuine Swaraj if India is to be denied the power to devise and adopt a national economic policy including the right, if her interests so require, of differentiating between nationals and non-nationals.

In a famous article in Young India, under the caption 'The Giant and the Dwarf' written soon after the conclusion of the Gandhi-Irwin Pact in 1931, Mahatma Gandhi declared plainly that "to talk of no discrimination between Indian interests and English or European, is to perpetuate Indian harlotage. What is equality of rights between a giant and a dwarf?" Even the meagre powers enjoyed by the Central Legislature at present to enact a measure like the reservation of the Indian coastal trade for Indian-owned and Indian-managed vessels has been taken away under the so-called reformed Constitution. Shipping is a vital industry which is essential for defensive as well as for economic purposes, but all the accepted and legitimate methods of developing this key industry including those adopted even by several British Dominions are henceforth rendered impossible for India. To justify such limitations on our sovereignty on the ground of'reciprocity' and 'partnership' is literally to add insult to injury.

The right of the future Indian Parliament to differentiate or discriminate between nationals and non-nationals, whenever Indian interests require it, should remain intact and this right we cannot sacrifice on any account. I would like in this connection to cite the Irish parallel. The Irish Nationality and Citizenship Act of 1935 provides for a distinct Irish citizenship in connection with the electoral system, entry into public life, merchant shipping law, aircraft, as also in connection with special privileges which it thought proper to reserve for Irish nationals, such as those conferred through measures for assisting Irish industry. Irish citizenship, in other words, is distinct from British, which cannot claim equal rights in the State of Eire (or Ireland) on the basis of British citizenship, which is not recognised there. I feel that India must similarly seek to develop her own distinct nationality and establish a citizenship of her own.

While on the question of fiscal autonomy and commercial safeguards, I might refer briefly to the need of an active foreign trade policy for India. India's foreign trade should be viewed not in a haphazard or piecemeal manner as is often done in order to provide some immediate or temporary benefit to British industry, but in a comprehensive manner so as to coordinate India's economic development with its export trade on the one hand and its external obligation on the other. The very nature of India's export trade makes it essential that it should not have any restrictive agreement with England such as would jeopardise its trade with the various non-empire countries which have been in several respects its best customers, or such as would tend to weaken India's bargaining power vis-à-vis other countries. It is unfortunate that the protected negotiations for an Indo-British Trade Agreementare still proceeding, while the Ottawa Agreement, even after the expiry of its notice period and despite the decision of the Legislative Assembly to terminate it, still continues, and along with the differential duties on British steel and textiles, the said Ottawa Agreement secures the prevailing advantages for British industries. There is no doubt that under the existing political conditions, any trade agreement between England and India is bound to be of an unequal character because our present political relationship would weigh the scales heavily in favour of England. There is also no doubt that the British preferential system is political in origin and before we permit non-Indian vested interests to be established or consolidated in this country under the shelter of a trade agreement, we should be careful as to its political repercussions and economic consequences. I trust that the present Indo-British Trade negotiations will not be allowed to impede the conclusion of bilateral trade agreements with other countries whenever possible and that no such trade agreement will be signed by the Government of India unless it is ratified by the Indian Legislature.

From the above, it will be quite clear that there is no analogy between the powers of the Provincial Ministries and those of the proposed Federal Ministry. Moreover, the composition of the Federal Legislature is reactionary to a degree. The total population of the Indian states is roughly 24 per cent of that of the whole of India. Nevertheless, the Rulers of the States, not their subjects, have been given 33 per cent of the seats in the Lower House and 40 per cent in the Upper House of the Federal Legislature. In these circumstances, there is no possibility, in my opinion, of the Congress altering its attitude towards the Federal Scheme at any time. On our success in resisting the imposition of Federation by the British Government will depend our immediate political future. We have to fight Federation by all legitimate and peaceful means; not merely along constitutional lines; and in the last resort, we may have to resort to mass civil disobedience which is the ultimate sanction we have in our hands. There can be little doubt that in the event of such a campaign being started in the future, the movement will not be confined to British India but will spread among the states' subjects.

To put up an effective fight in the near future, it is necessary to put our own house in order. The awakening among our masses during the last few years has been so tremendous that new problems have arisen concerning our party organisation. Meetings attended by fifty thousand men and women are a usual occurrence nowadays. It is sometimes found that to control such meetings and demonstrations, our machinery is not adequate. Apart from these passing demonstrations, there is the bigger problem of mobilising this phenomenal mass energy and enthusiasm and directing them along proper lines. But have we got a well-disciplined Volunteer Corps for this purpose? Have we got a cadre of officers for our national service? Do we provide any training for our budding leaders, for our promising young workers? The answers to these questions are too patent to need elaboration. We have not yet provided all these requirements of a modern political party, but it is high time that we did. A disciplined Volunteer Corps manned by trained officers is exceedingly necessary. Moreover, education and training should be provided for our political workers so that we may produce a better type of leaders in future. This sort of training is provided by political parties in Britain through Summer Schools and other institutions; and is a speciality in totalitarian states. With all respect to our workers who have played a glorious part in our struggle, I must confess that there is room for more talent in our party. This defect can be made up partly by recruiting promising young men for the Congress and partly by providing education and training for those whom we already have. Everybody must have observed how some European countries have been dealing with this problem. Though our ideals and methods of training are quite different from theirs, it will be admitted on all hands that a thorough scientific training is a requisite for our workers. Further, an institution like the Labour Service Corps of the Nazis deserves careful study and, with suitable modification may prove beneficial to India.

While dealing with the question of enforcing discipline within our own party, we have to consider a problem which has been causing worry and embarrassment to many of us. I am referring to organisations like the Trade Union Congress and the KisanSabhas and their relations with the Indian National Congress. There are two opposing schools of thought on this question - those who condemn any organisations that are outside the Congress and those who advocate them. My own view is that we cannot abolish such organisations by ignoring or condemning them. They exist as objective facts and since they have come into existence and show no signs of liquidating themselves, it should be manifest that there is a historical necessity behind them. Moreover, such organisations are to be found in other countries. I am afraid that whether we like it or not, we have to reconcile ourselves to their existence. The only question is how the Congress should treat them. Obviously, such organisations should not appear as a challenge to the National Congress which is the organ of mass struggle for capturing political power. They should, therefore, be inspired by Congress ideals and methods and work in close cooperation with the Congress. To ensure this, Congress workers should in large numbers participate in trade union and peasant organisations. From my own experience of trade union work I feel that this could easily be done without landing oneself in conflict or inconsistency. Cooperation between the Congress and the other two organisations could be facilitated if the latter deal primarily with the economic grievances of the workers and peasants and treat the Congress as a common platform for all those who strive for the political emancipation of their country.

This brings us to the vexed problem of the collective affiliation of workers' and peasants' organisations of the Congress. Personally, I hold the view that the day will come when we shall have to grant this affiliation in order to bring all progressive and anti-imperialist organisations under the influence and control of the Congress. There will, of course, be difference of opinion as to the manner and the extent to which this affiliation should be given and the character and stability of such organisations will have to be examined before affiliation could be agreed to. In Russia, the united front of the Soviets of workers, peasants and soldiers played a dominant part in the October Revolution; but, on the contrary, in Great Britain we find that the British Trade Union Congress exerts a moderating influence on the National Executive of the Labour Party. In India, we shall have to consider carefully what sort of influence organisations like the Trade Union Congress and the Kisan Sabhas will exert on the Indian National Congress in the event of affiliation being granted and we should not forget that there is the possibility that the former may not have a radical outlook if their immediate economic grievances are not involved. In any case, quite apart from the question of collective affiliation, there should be the closest cooperation between the National Congress and other anti-imperialist organisations and this object would be facilitated by the latter adopting the principles and methods of the former.

There has been a great deal of controversy over the question of forming a party, like the Congress Socialist Party, within the Congress. I hold no brief for the Congress Socialist Party and I am not a member of it. Nevertheless, I must say that I have been in agreement with its general principles and policy from the very beginning. In the first place, it is desirable for the leftist elements to be consolidated into one party. Secondly, a leftist bloc can have a raison d'etre only if it is socialist in character. There are friends who object to such a bloc being called a party, but to my mind it is quite immaterial whether you call that bloc a group, league or party. Within the limits prescribed by the Constitution of the Indian National Congress, it is quite possible for a leftist bloc to have a socialist programme, in which case it can be very well called a group, league or party. But the role of the Congress Socialist Party, or any other party of the same sort, should be that of a leftwing group. Socialism is not an immediate problem for us - nevertheless, socialist propaganda is necessary to prepare the country for Socialism when political freedom has been won. And that propaganda can be conducted only by a party like the Congress Socialist Party, which stands for and believes in Socialism.

There is one problem in which I have been taking a deep personal interest for some years and in connection with which I should like to make my submission; I mean the question of a foreign policy for India and of developing international contacts. I attach great importance to this work because I believe that in the years to come, international development will favour ourstruggle in India. But we must have a correct appreciation of the world situation at every stage and should know how to take advantage of it. The lesson of Egypt stands before us as an example. Egypt won her Treaty of Alliance with Great Britain without firing a shot, simply because she knew how to take advantage of the Anglo-Italian tension in the Mediterranean.

In connection with our foreign policy, the first suggestion that I have to make is that we should not be influenced by the internal politics of any country or the form of its state. We shall find in every country men and women who will sympathise with Indian freedom, no matter what their own political views may be. In this matter we should take a leaf out of Soviet diplomacy. Though Soviet Russia is a communist state, her diplomats have not hesitated to make alliances with non-socialist states and have not declined sympathy or support coming from any quarter. We should, therefore, aim at developing a nucleus of men and women in every country who feel sympathetic towards India. To create and develop such a nucleus, propaganda through the foreign press, through Indian-made films and through art exhibitions would be helpful. The Chinese, for example, have made themselves exceedingly popular in Europe through their art exhibitions. Above all, personal contacts are necessary. Without such personal contacts it would be difficult to make India popular in other countries. Indian students abroad could also help in this work, provided we in India look to their needs and requirements. There should be closer contact between Indian students abroad and the Indian National Congress at home. If we could send out cultural and educational films made in India, I am sure that India and her culture would become known and appreciated by people abroad. Such films would prove exceedingly useful to Indian students and Indian residents in other countries, who at present are like our nonofficial ambassadors.

I do not like the word propaganda; there is an air of falsity about it. But I insist that we should make India and her culture known to the world. I say this because I am aware that such efforts will be welcomed in every country in Europe and America. If we go ahead with this work, we shall be preparing the basis for our future embassies and legations in different lands. We should not neglect Great Britain either. We have even in that country a small but influential group of men and women who are genuinely sympathetic towards Indian aspirations. Among the rising generation and students, in particular, interest in and sympathy for India is rapidly on the increase. One has only to visit the universities of Great Britain to realise that.

To carry on this work effectively, the Indian National Congress should have its trusted agents in Europe, Asia, Africa and in North, Central and South America. It is a pity that we have so far neglected Central and South America where there is profound interest in India. The Congress should be assisted in this work of developing international contact by cultural organisations in India, working in the field of international culture and by the Indian Chambers of Commerce working in the sphere of international commerce. Further, Indians should make it a point to attend every international congress or conference - participation in such conferences is a very useful and healthy form of propaganda for India.

While talking of international contacts, I should remove a misgiving which may be present in some minds. Developing international contacts does not mean intriguing against the British Government. We need not go in for such intrigues and all our methods should be aboveboard. The propaganda that goes on against India all over the world is to the effect that India is an uncivilised country and it is inferred therefrom that the British are needed in order to civilise us. As a reply, we have only to let the world know what we are and what our culture is like. If we can do that, we shall create such a volume of international sympathy in our favour that India's case will become irresistible before the bar of world opinion.

I should not forget to refer to the problems, the difficulties and the trials which face our countrymen in different parts of Asia and Africa - notably in Zanzibar, Kenya, South Africa, Malaya and Ceylon. The Congress has always taken the keenest interest in their affairs and will continue to do so in future. If we have not been able to do more for them it is only because we are still slaves at home. A free India will be a healthy and potent factor in worldpolitics and will be able to look after the interests of its nationals abroad.

I must in this connection stress the desirability and necessity of developing closer cultural relations with our neighbours, viz., Persia, Afghanistan, Nepal, China, Burma, Siam, Malay States, East Indies and Ceylon. It would be good for both parties if they knew more of us and we knew more of them. With Burma and Ceylon, in particular, we should have the most intimate cultural intercourse, in view of our age-long contacts.

Friends, I am sorry I have taken more of your time than I had intended at first, but I am now nearing the end of my address. There is one important matter - the burning topic of the day; to which I should now draw your attention; the question of the release of detenues and political prisoners. The recent hungerstrikes have brought this question to the forefront and have focussed public attention on it. I believe that I am voicing the feelings of at least the rank and file of the Congress when I say that everything humanly possible should be done to expedite release. So far as the Congress ministries are concerned, it would be well to note that the record of some of them has not come up to public expectation. The sooner they satisfy the public demand, the better it will be for the Congress and for the people who are suffering in provinces ruled by non-Congress ministries. It is not necessary for me to labour this point and I fervently hope that in the immediate future, the public will have nothing to complain of so far as the record of the Congress ministries on this point is concerned.

It is not only the détenus and political prisoners in jail and detention who have their tale of woe. The lot of those who have been released is sometimes no better. They often return home in shattered health, victims of fell diseases like tuberculosis. Grim starvation stares them in the face and they are greeted, not with the smiles but with the tears of near and dear ones. Have we no duty to those who have given of their best in the service of their country and have received nothing but poverty and sorrow in return? Let us, therefore, send our heartfelt sympathy to all those who have suffered for the crime of loving their country and let us all contribute our humble mite towards the alleviation of their misery.

Friends, one word more and I have done. We are faced with a serious situation today. Inside the Congress there are differences between the right and the left which it would be futile to ignore. Outside, there is the challenge of British Imperialism which we are called upon to face. What shall we do in this crisis? Need I say that we have to stand foursquare against all the storms that may beset our path and be impervious to all the designs that our rulers may employ? The Congress today is the one supreme organ of mass struggle. It may have its right bloc and its left; but it is the common platform for all anti-imperialist organisations striving for Indian emancipation. Let us, therefore, rally the whole country,under the banner of the Indian National Congress. I would appeal specially to the leftist groups in the country to pool all their strength and their resources for democratising the Congress and re-organising it on the broadest anti-imperialist basis. In making this appeal, I am greatly encouraged by the attitude of the leaders of the British Communist Party whose general policy with regard to India seems to me to be in keeping with that of the Indian National Congress.

In conclusion, I shall voice your feelings by saying that all India fervently hopes and prays that Mahatma Gandhi may be spared to our nation for many many years to come. India cannot afford to lose him and certainly not at this hour. We need him to keep our people united. We need him to keep our struggle free from bitterness and hatred. We need him for the cause of Indian Independence. What is more - we need him for the cause of humanity. Ours is a struggle not only against British Imperialism but against world Imperialism as well, of which the former is the keystone. We are, therefore, fighting not for the cause of India alone but of humanity as well. India freed means humanity saved.

Bande Mataram