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·REPORT
DY TAS
REORGANIZATION OF THE POLICE
Or TOR
ALWAR STATE
ESS---
BY
LIONEL L TOJIKINS,
Diatrict Superintendent of Police.
Labore:
TITR "COIL AND MILITARY GAZETTE" PRESS,
Sola Cuetractura fur Printing to the Punjab Government.
1904,

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·REPORT ON THE REORGANIZATION OF THE POLICE OF THE ALWAR STATE. Period of the work and stat 1. I was on special duty in the Alwar State of Rajputana, engaged in the teorganization of the Police, from 28th October 1903 to 27th October 1904, a period of one year. For the first three months of the time I had only two trained officers to assist me in the work, namely, Deputy Inspector Habib Ali of the Jhelum District and Deputy Inspector Ah Muhammad of the Hissar District. Both these officers worked with admirable assiduity throughout and have been of the greatest assistance to me Later on, with the ganction of His Highness the Maharaja and the concurrence and assistance of the Inspector General of Police, Punjab, I obtained the services of four more trained officers from the Punjab Police who were, and three of whom stil are, employed in assisting to consolidate the system of Pohce administration which has now been intioduced into the Altar State. Mention of their work will be found at the end of the report. 2. There is little to be said of the previous history of the Alwar Police Past history Up to the year 1896, the Police were merged in the "Foujdari” or Criminal Department, the head of which, the "Foujdar," combined the offices of Magistrate and Superintendent of Police. Under him, in the Police portion of the department, were two subordinate officials, drawing from Rs 20 to Rs. 40 a month, who were known as Superintendents, but who ranked as Thanadars and had no authority The Foujdar's magisterial duties, in those days, were as simple as the methods of administering in general were primitive, and amounter to merely passing orders on the files of investigations prepared by Tlanadars in their police stations. Complainants and accused, together with their respective witnesses, were summoned to the police stations where their statements were recorded by the Thanadars, and the cases were then finally disposed of by the Foujdar recordmg his finding on the files as they were sent in from the police stations. In 1896, it was sought to separate the Police from the Judicial Department and, with this end in view, an Inspector from Ajmir, named Collis, was appointed Superintendent of Police ; but the circumscribed nature of the authority accorded him and the obstructive attitude of the Foujdar, who fought to maintain his hold on the Police, effectually counteracted the good which might otherwise bave followed the reform. Two years later, the stufe between the Foujdar and the Superintendent of Police culminated in several of the latter's subordinates being, rightly or wrongly, prosecuted and convicted of bribery and the removal of Mr. Collis from the service of the State. He was succeeded by Munshi Aul Chand, an official of the State, who, besides having no tions for his new position, was already in executive charge of more departments than he could manage. He remained Superintendent of Police, however, until his death in 1901 and, from then on to September 1902, there was no Superintendent and the Foujdar carried on the work in conjunction with his own, thereby regaining his loat position and status as head of the "Foujdari." In September 1902 Sayad Afzal Shah, who belonged to the Thaggi and Dakaiti Department, was appointed Superintendent, and friction with the Fonjdar began again. A year later, in October 1903, his services. thich were not appreciated, were dispensed with, and he was succeeded by Aſunshi Willayat Vllah Khan also of the Thaggi and Dakaiti Department; the latter was still in charge at ·2 intendont. ... the beginning of the present reorganization, but in the millio of January 1904 he resigned, and I was fortunate in being able to recuro for the Alwar Stute thu sorvices of Khan Snhib Muammarl Behram Khan, who lind shortly beforo retirer from tho Punjab Polico, in oſlicer of oxceptional experience of all branchos of police work, of scrupulous integrity and particularly fitterd in every way to fill The vacancy. He still remains in charge, and I trust that he may continue to do so for many years, fur it, will be diſlicnlt to replacc lim. THE SUTRINTINOINT. 3. It is not surprising that, prior w the present reorganization, the four The Superintendent, Superintendents had been able to clicct little to improve figura.liend. either the status or the working of the Police, for they occupied the anomalous prosition of having a large and scattere department to suporvise without being allowed the authority nil'cessary to thint ond. Even the appointment, rewarding, punishment and removal of constallers, or sepoys as they wore then known, lad 10 he referred to the Council and Political agent, and sometimes months olapscul before the whole formality was completed, which was necessary to establish il cnnclidate on n monthly pittance of Rs. 1-8. All matters, however trivial and unimportant, had in the saine war to ho roferred for sanction and, although the recommondatiuus male by the Superintendents were mostly accepted and sanctioned as a matter of course, still ther fact that they personally had no authority, deprived them of the respect of their suborclinate: iindi rendereil the position of Superintendent a singure. 4. On 10th November 1903, on my representing the matter, a resolution Powers giron lo Super. was passed by the Council delegaiting to the Superintendent of Policc anthority to enlist, pronote, rccucc, transfer, dismiss, and otherwise punish and rewaril policemen below the rank of Deputy Inspector and, further, to suspend any Police officer for miscomluci, prending in inquiry and the orders of the Council. These powers were later on ratified and printeil in the Rules regulating the Authority of the leadis of Departments. 5. The pay of the Superintendent of Policu is fixel ill. 15.250 a month The piny of the appoints with travelling allowance in accordance with the Civil Service Regulations, Porr STATTUXS. 6. Before the reorganization there were 16 police stations in the Alwar Police rintions before State, the jurisdictions of wlich were, with twn exceptions, of reasonable proportions, comprising areas about the sizo of those in British Inuliit. The exceptions were Alwar Kotwali and Rajgarh. The jurisdiction of the Alwar Kotwali comprisoul, not only the Alwar municipal area with a population of 56,771 souls, but included within its limits no less than 216 villages, covering a tract of country some 28 miles long ly 20 miles broad. The Rajgarh jurisdiction, lying along the central portion of the southern Border, between the Alunr jurisdiction and the Jaipur State, comprised a large city of 11,008 inhabitants and a rural area 30 miles long and 20 miles broad. The 210 villages in this tract of country are peopled with a liiglily criminal population freely sprinkled with Minas and Vicos. 7. These two sub-divisions of the Alwar State were much too large and Throu nos polico sto. too thickly populaied to allot of cflicicnt administration being possible and, on 15th November 1903, the Council adopted and sanctioned my proposals which were, firstly, to confine the jurisdiction of Alwar Kotwali to the boundaries of the municipality and, secondly, to create three new police statiqus - Alwar Sadr, Malakhera and Tehia, These three new police stations wero located and bogan work on the 1st January 1904.' 8. The Alvar Sadr Police Statioil arca now comprises a tract of country about 15 iniles long by about 10 broad and includes 144 villages. The police station itself, situated at Almar, is in a central position. 9. The Malakhera Police Station jurisdiction, drawn partly from the area New Malakbora Police formerly under the Alwar Kotwali and partly from Rajgarh, covers a tract about 14 miles long and 11 miles broad and comprises 150 villages. Malakhera is centrally situated and is on the line of railway. mont, thoroorganization. tions, Now Alwar Sadr Polico Station. Station.

·3 tron > affect to 10. The Tehla Polce Station area was carved entirely from tho old New Tobia Police Sta. Rajgarh jurisdiction and was formerly a sub-division under that police station. It is about 18 miles in length and 9 in breadth, is wholly mountainous and sparsely populated. It contains 70 villages, the inhabitants of which are addicted to cattle-lifting. 11 . This arrangement leaves Rajgarh Police Station its city of 11,008 souls and a rural area some 18 miles in length and 10 in Rajgarh Pohos Station, breadth, containing 133 villages. Part of this area is hilly and thinly populated but the remainder is well studded with villages 12. The redistribution of tho police station jurisdictions, as described Redistribution Kiren above, was given effect to on the 1st January 1904, temporary arrangements being made for the accommodation of the men pending the erection of proper buildings. 13. In April 1904 I was asked to arrange to take over the Police management of the Nimrana Estate. This small property, Nimraza. situated on the north-west of the Alwar State, to which it is tributary, comprises 19 villages with a population at the last census of 8,799, and has a revenue of about Rs. 30,000 14 The policing of the Estate by Alvar marks an epoch in the lustory Polieing by Alwar un of Nimrana, being the first instance of Alwar partakung epoch in any way in its internal administration: Up to the year 1803, the Nimrana Estate enjoyed independence but, after the battle of Laswara, Lord Lake confiscated the whole of it, owing to Raja Chander Bhan giving shelter and assistance to the Maharattas. Subsequently the Nimrana Parganah and fire isolated villages were restored to the Raja, while the Gilot and Mandan Parganahs were made over to Alwar. Up to 1861 the Nimrana Raja, who claims descent from Porthi Raj, the last of the Hindu Emperors of Delhi, steadfastly refused to at the Alwar Chief, but in that year the Viceroy in 1 the relations to be observed between the two subjection. Notwithstanding this ruling, hoiv. ever, the 11-1deng UL bue viuu but lesser house towards the younger and more F) ---- ankimond in anno itself in spite of repeated efforts to bring the sh compulsorily brought under the Alwar Chief, to avoid personal subservience by not being will and he had in this way held aloof during the past 42 years. Last winter, however, as the result of negotiations by Lieutenant- Colonel C. G. F. Fagan, Political Agent, Alwar, Raja Janak Singh of Nimrana, not TT.asih Mahang of Alwar on the only agreed occasion of t which he is in futu his Estate by Alyar. This is noteworthy as the first occasion on which a Raja of Nimrana bas by voluntary acts given evidence of the acceptance by him of his changed relations towards Alwar. 15. The sum of Rs 800 a year is of course insufficient for the maintenance Strength and cost of: of a complete police station staff, but then, in view of the small area of the Esta te, the full complement is not necessary. The value of the annual contribution has therefore been given to Nimrana in the form of Annual cost, R. 300 i Sergeant, 1st grade, on Re 25 a month 120 1 Lance Sergeant on Rs. 10 & month 336 4 Coustables on Rs 7 & month Rg. 756 атт cing of Police for Nimrana. I. ... 30 P. Cost of uniform for 6 men at Rs. 5 a bead per annum Menials Stationery Rs. 10 1 ... 800 ·16. The l'oservo of Polico in the lines, as previously sanctioneil, boing sufficient to provide for this small body of ing without A aving or llr. 600. further onlistment, they were drawn from that source and the sum of Rs. 800, paid by Niinrana, will he cruslited to the recomes of Alwar amually as :111 assot and may, thereforo, he regarded as a saving against tho increased expenditure on Police in Alwar. 17. The buildings for the police station at Nimrann are provided by the Estate. The new force was located there and began work on Building;n nt Nimratin. 2011 May 1904. 18. All returns and reports in police matters are submitted (lirect to tho Noturna atid reportarone Superintendent of lolico, Alwar, copies being forwarded at the same time for the information of the Raju. The Raja cxorcises the authority of a District, Magistrato with powers under Section 30 of the Criminal Procedure Code within the limits of his state and, therefore, trics his own casos. This arrangeinont has bcon found satisfactory and works smoothly. 19. The increase of four police stations raised the Olnquific:stion of police number from 16 to 20, and they were divided as follows into 1st class and 2nd class : to Alumn. StatsNEST A. Btition. STATEMENT A. First Class Serond Class. 1. luvat Kutwali, 1. 'lijaon. 2. Alwar Sadr. 2. Glori. 3. Rujgarh. 3. Partahgarh. 4. Lachmangarh. 4. Ramgarh. 5. Malakhorn. 5. Katumbar. 6. Baurur. 6. Noraingos. 7. Mundurar. 7. Topukra Bulror. 8. Jiundon. 9. Kishungarh. 9. Govindarh 10. Tohio. 11. Nuroa. Strength of tho polico 20. The uniforın strength of the two classes of station bins. police stations was fixed as follows: S13TEMENT B. First Class. 1 Officer in churge. 3 Sorgeants. 14 Constnbles. Second Class 1 Ollicer in charge. 2 Sergeants. 9 Constables, The above computation has been adhered to in the case of all polico stations, rith the exception of Alwar Sadr, Rajgarh, Lachmangarh and Nimrana. I have already disposed of the last of the four, Niinrana, in paragraplı 15. The other three combine the largest jurisdictions with the most criminal areas in the State. They are thickly peopled and are unfortunato in having an excoptionally large number of Mina and Moo criminals among their populations. Duo regard being bad for the conditions and peculiarities attaching to each case, the staff of Police at each of these police stations has been supplemented to meet requirements, the details of which provision will be found further on in the report, in Statement G. 21. The Alvar Kotwali carries a City allowance of Rs. 10 a month. The appointments of Station House Officer in four of the 2nd class police stations (including Nimrana) have been reserved for 1st grade Sergeants in course of training for promotion to the rank of Deputy Inspector. These acting appointments carry tivo Station House allowances of Rs. 10 each and two of Rs. 5 each.. Allowancos. CHOKIS AND GHATAS (OUTPOSTS). 22. The word "Choki,” meaning an outpost, is familiar in India, but the term Ghata in connection with Police administra- Ghatag and Chokis. tion, is, I believe, peculiar to Rajputana, as is the system which it denotes. 9 ·Chotig Obatas. 29. The constitution and functions of the Chokis, or outposts, in Alwar before the reorganization of the Police, were theoretically the same as appertain to similar institutions in Britis) India. They woru manned from head-quarters by regularly enrolled Police who, although they exorted themselves as little as possible, still a med at both the prevention and the detection of crime as the auxiliaries of the police stations. 24. The "Ghatas" might also be termed outposts, but they were confined, as their name implies, to the "ghats," or passes and defiles in the hills and they were responsible (for the prevention of crime only) to the public, rather than subordinate to the polico stations. The "Glatas" had small and loosely defined areas attached to them, within which the men in charge, known as "Glata Officers," were held responsible for all offences. In the majority of instances, the original Ghata Officers were notorious criminals who had systematically preyed upon the public in and about the "gliats," punislıment, tention to maintainil wait and rob Police and paid by Each Gbata Officer was allowed a cortain number of repoys, varying in number from 2 to 10, to assist him in maintaining the lay, and he was permitted to draw the Tholo pay of lis establishment and to appoint liis own following, the whole contingent boing required to live in a building provided by the State tingent, thus raised, was nominally subordinato to the Superintendent of Police; the men Tore paid from his ollice and varo borne on the rolls of the l'olice Force, but horo the anomaly of the situation stepped in and the authority of the Superintondent ceasod. te and 11 in The conmot. dofective 25. The principal condition attaching to the appointment of the Gbata Conditions of appoint Officers was that they sh yild bo personally responsible for prevonting the occurrenc of offences within the areas committod to their charge and that, in the event of a robbery occurring, they ebould either recover the property stolen and restore it or, in default of its restoration, should pay the value of it to the loser. Persons, who were robbed or otherwise injured under this system, were thus entitled to demand compensation from tho Ghata Officers; property stolen had either to be recovered or the value of it paid to the loser, but neither the State nor injured parties required Ghata Officers to bring forward the offenders to justice, indeed they were permitted to preservo secret both the identity of the offenders and the means by which thoy effectod the return of the stolen goods. 26. From the point of view of the public, tho arrangement might, but Principles of the system for certain circumstances to which it gave rise, have served its purpose, and perhaps it did produce the desired effect of freeing the actual passes through the hills, where the Ghatas were situated, of some of their danger; but obviously persons so inclined, whether Ghata Officers or others, had only to go beyond the specified areas to be able to lay in wait and plunder wayfarers with as much impunity as before. The principal defect in the arrangement according to modern ideas, however, lay, not so much in the circumscribed sphere of its operation, as the total absence of sutable provision for securing the individuals who committed offences, either in the hills or elsewhore. Had the razinama system been confined to the Ghatas, the immunity afforded by it to criminals in the small areas concerned would bave been comparatively of small importance, but the principle of compensating the victims of robberies, at the expense of foregoing the just punishment of the authors of crime, permeated the whole system of Police administration throughout the State, and in the towns and villages, with which I shall deal further on, the accrung results were little short of deplorable. 27. The failings of the Ghatas, however, were not confined to the defec- System tivo principles of the system, for, in practice, secret underpractice standings and complications, bred of dishonesty, came about between the Ghata Oficers and the Police which robbed the arrangement of its defective 12 ·6 one redeeming feature. In cases occurring within the Ghata areas the public were, as I have said, entitled to demand the restoration of property stolen, or its cash value, from the Ghata Officers, but no such claim was valid until the loser had reported his case at the police station and had substantiated his loss with evidence on the spot. The welfare of the Ghata Officers, therefore, depended largely on the good will of the Police, who might admit claims to compensation, or might reject them as worthless fabrications. It was clearly to the interests of the Ghata Officers to conciliate the Police for, not only did the admission or rejection of claims and the amount of compensation depend upon their reports, but they were in a position to insist on the Ghata Oficers keeping the number of their sepoys up to the required strength or, on the other hand, they might overlook the employment of imaginary followings. As, however, the Gbata Officers drew their own pay and the pay of their establishments in lump sums and were permitted to engage their own sepoys, the solution of the whole question was comparatively easy, and all difficulties and anxieties disappeared before the handing over of balf of the sums, thus received as pay, to the officers in charge of the police stations. The Gbata Officers then locked up their Ghatas and retired to their villages with the remaining half of the pay of their imaginary establishments in their pockets and the complacent assurance that, even if offences did occur within the sanctified areas in their care, they were insured equally well against the importunities of the sufferers and against losses entailed by payment of compensation. 28. This arrangement suited the pockets of both the Police and the Ghata Officers but the public suffered, for offences which occurred were either not reported at all or, if they were reported, they were made out to be fabrications, basely concocted with the object of extorting compensation for losses which had not occurred. An inoontive to bark. ing. In practice, therefore, the system failed in its primary purpose and, instead of affording a generous provision for insurance against public losses, it was transformed, by the dishonesty of those employed in its working, into a mere engine of injustice, with the hushing up of offences and the burking of crime as its only results. 29. At the commencement of the reorganization, the number of Chokis and Gbatas bad crept up to 42 and 39 respectively, making a Statistics of outposte. total of no less than 81. There were 192 men employed at Chokis, at an annual cost of Rs. 15,861, while 171 more were supposed to be engaged at the Ghatas, at a yearly cost of Rs. 10,559. The total cost of the 363 men was, therefore, Rs. 26,460 per annum. sary. 30. Inquiry showed that outposts of both kinds had, from time to time, Many ontposts unnecesbeen created without reference to those already in existence until, in some parts of the State, there were literally clusters of them only a mile or two apart. On inquiry I ascertained that the reasons for the location of many of the Chokis and Ghatas no longer existed, while the neces. sity for others could not be proved. The utility of none of them seemed to be very evident, but that was probably due to the habitual absence of the occupants. I have explained the fiction attaching to the Ghata sepoy, and inquiry showed that the Police at the Chokis might as well have been imaginary also, for they habitually absented themselves and lived in their homes, which they arranged in Alwar should never be far from the places to which they were posted. 31. After due inquiry and consideration, the number of outposts of both kinds were reduced from 81 to 33, and the fallacy and absurdity of the razinama, or compensation, system in the Ghatas led me to recommend, and the Council to sanction, its abolition. The 33 outposts, which were retained, were placed on exactly the same footing as outposts of Police in British India. They are now all subordinate to Rednotion effeoted.

·the police stations, in the areas of which they are situated, and as auxiliaries are ongaged in both the prevention and the detection of crime. Daily diaries aro submittted through the police stations which prevent the men absenting themselves without leave as they used to do. 32. The following is a list of the outposts retained, Outposts retained together with a statement of the staff of Police sanctioned for each: STATEMENT C.-List of Outposts Retained. STEINGTE Police Stations. Oatposts. Rey BKS Sergeants. Lenco Sergeants. Congtables. 1st Grade Sergeant. . Alwar Sadr Rajgarh 1 RO ada Lachmangarh D. . ASSIS NA OOO Malakhera Bangor .. . Mandawar 1 .. vod Blinapora... Reni Rajpura Gatero Baroda Bleo Baroda Kan Ghosrada... Pinaia Hamirpur... argora Rampara... Boteri Ajerka Keraikot Jindoli Sulgaon Korapa Barnd Khairthal... Poor Jalalpar Baloi Nimis Bamante Garh Basgi Golaka Bas Ajabgarh ... Kherli Lalpuri Chubarpar Bbiwari ... Bebror 1 1 1 .. . 19 QUE Kishengarh .. .. 000 1 1 Tijara ::::::* :-***:-:-::---- . PO. HU. Ghazi De 00 RO Parlabgarh to Satyto toto ... .00 1 BRO 1 6 1 20. Katumbar Nardiopor 'I apukra Alandan Hajgark . Belni . PO Naogaon 00 Total 33 Outposta 14 19 104 38. It will be observed that, under this arrangement, the number of mop employed at outposts in the State was reduced from 363 to Beduction fa mer 137. Tho Ghats syston of compensation was abolished in toto dod tho 137 med nor employed at the outposts are all regular polccmon, ogrolled and cmpowered under Act V of 1861, which was introduced as lay into the Stato during the reorganization.

·8 THE PERSONNEL OF THE OLD FORCE. 2. p. ... ... .. 3 ... ... ... ... ... 24 ... Gradiog beforo reorgani. 34. When the reorganization commenced, the Altar ration, Police Force was constituted as follows: Officers. Superintendent of Police on the pay of Rs. 200 a month and fixed travelling allowance of Rs. 50 a month, to be increased to Rs. 250 a month and travelling allowance in accordance with Civil Service Regulation on completion of the reorganization. Rs. 55 0 0 1 Tlapadar on a month. 1 Do. 50 0 0 1 0 Do. 40 0 0 35 0 Do. 1 4 Thanadars on 30 0 0 8 Do. 25 0 0 3 0 Do. 20 0 2 Maharrirs on 20 0 0 3 Jamadars on 20 0 0 1 Muharrir on 17 0 0 11 Jamadars und Muharrira on 15 0 0 5 Do. do. 13 00 Do. do. 12 00 2 Do. do. 11 0 0 39 Do. do. 10 0 0 4 Do. do. 9 0 0 5 Do. do. 8 0 0 22 Ghata Officers and Jemadars on 7 0 0 12 Do. do. 6 0 0 3 Do. do. 5 8 0 Do. do. 5 0 0 3 Do. do. 4 8 0 Subordinate Ranko. 2 Klojis or Trackers op 10 0 0 1 Khoji or Tracker on 0 0 Do. do. 2 Khojis or Trackers on 0 0 1 Sepoy on 0 0 3 Sepoys on 5 0 1 Sepoy on 5 4 0 52 Seposs on 0 0 449 Do. 4 60 35. Tho total strength of tho regular Force was 675, and the total cost with allowances Rs. 4,933-0-6 a month, and Rs. 59,196-6 Strongth and cost, a year. 36. The Forco tras distributed as follows among the 16 police stations, Diet:itution. 42 Chokis and 39 Ghatas and on miscellaneous duties. Ai Police Stations, Tlianadors ... 17 Jenndars 20 Muharrirs 24 Khojis 5 Sopoys ... 167 At Chokis, Jornadors 12 Sepoy's 150 ot Ghala: Ghatn Officers 31 Sepoys · 140 The rcipainder of the Force, 75 mon ju all, tero employed in the olice of tho Suporintendent, on guard duties and different works of miscellancous and peculiar latiiras. 37. It is a regrettablo fact that reforms tending to crolre somo kind of order in Natiro States, tio matter in what direction thoy may ho Artritiset3 Erresisy. ained, are inevitably fated to opposition and obstruction, It is apparent from tlio records of tho pory modcrato refoirns, attempted by Mr. 1 ... 37 1 A or ot er oorvoo 1 ... 17 ... ... ... ... ... ... .. .. 1. ... ... ... ... .. ..

·9 A state of stagnation. TIT 1 1 : ating their II this on Thanadars, each with his party of accused, duly app! Collis in 1896, that an effort was made, during his tenure of office, to introduce, among other things, a system of grading the appointments in the Police; but he received no support and no success was achieved. The re-grading of the Force involved then, as it has now, the abandoning of certain old customs and usages by which appointments were hereditary family properties Men were allowed to servo until they died and the vacancies were then conferred, without regard to fitness or efficiency, on their sons or near relations. Instances of children being appointed in this way were pot uncommon, and the re-enrolment of the Force afforded innumere ahle instances of aged and tottering individuals, physically and mentally unfit for work, waiting on the edge of the grave for the moment when their appointments would pass to their heirs. 38. It is not necessary to pursue the train of thought far to perceivo that the enl of this practice was not confined merely to the maintaining of a quantity of useless men at the expense luer, u!' .. turishing, of that the extraordinary anomalies apparent in the foregoing statement, to which juniors drew as much, or more, pay than their seniors in rank, are due. ✓39. It may readily be imagined that the system, I have endearorace depict in the foregoing paragraphs, together with Edicinoy imposable cumscribed authority of the Superintendent, the ak discipline and the low rate of pay inevitably rendered impossible the maintenant of a standard of efficiency in the direction of either physique, education or intelligence. The ranks were filled with indıyıduals of all ages, shapes and some undrlled and undisciplined, and, with the exception of the Muharrirs ces and some of the Thanadars and Jamadars, very few had any_education. I re-enrolling and re-grading the Police, no less than 170'incapables Latino removed. Men of 70 and 80 years of age were common and there mungon sprinkling of blind men and men who required assistance to enable them to one individual was a raving lunatic with a tendency to homicide. 40. The class and Sergeants of the 1st, 2nd or 3rd grade under the new résine si the former, the Thanadars or Deputy Inspectors, proved the TTE incompetent and incorrigibly corrupt and lazy, these individuais Torrent of the police stations, a standing example of evil for the remair's TIF A few of the best, I flatter myself, have to some degroo reforma de compte reorganization and uthers have been removed. 41. As an instance of their working, I may mention An example of their one case-one of many-n which, on a roma working by me at the commencement of the remote their number, named Fazl Ali and Ganga Parshad, were The case was one of murder. Separate investigations lielbrandt officers and they had arrested two separate parties of creation whom they respectively accused of the murder. The witasamento, guilt of the two parties of the accused, were dontically, to instance, for tral. sections impartiality worthy of a better cause, directed this two their accused and witnesses before the Magistratusas contention occurring as to thich of them slimmt proviously lied equally for both, the Magistrato ruſwer vi for God tho filo came to me, Thaadars ·10 4.2. Thinnitus Mulinrrira or Cleriik, The above is only ono instance of wilfully wrong 1 dlishonest.conduct Pirmoral of ineficient anıl, did not space forbil, I might cite innumerable cases of t.ho kind to prove the enormous extent of harin and injustico which muy result from an inefficient and badly superviser Polico. Of the 19 Thunadars at the commencement of tho leorganization no less than 10 rero oither dismissoil or reduced for specific acts of misconduct, coupled with general incfliciency, before the end of to work. 43. The Muharrira or Clerks, drawing from Rs. 8 to Rs. 15 il month, ropresented the concated portion of the subordinato rank. Owing to the incompetence and laziness of the Thaparlars, thoy exercised more powor in the police stations than was at all desirable in men on their pay, anul iurostigation i am matters of importance, which shoulullave received thio personal attention of the ofliccis in charge', were frequently left to theso underlings. Papers and files, presenting questions of difficulty or involving lalmur, Fere kept by the Clerks for months, itu sumetimes for years, lying in the police stations, ami files in the oilice of the Superintement afford mite illustratintis of how the practice of " noting" and "advancing matters il sige," love writing something which means nothing in forwarding the papers 10 somehoudyck, my liecome :: fino ::11 In short, the Police Station Chrks were ciupili,se the greater port of their time in manufacturing requirts containing 10 facts azul in stultifying the : inject of Correspondence by lazily neglecting its purpose in fi:vour of super. ficial am empty verbosity: lle registers in the police ::?tions were in a replorable state of Cortellingen, in the absence of supo vision i inspxetion had ved methods its puruli't' is they were varieri. l fuiim ilutlu mehel of maintaining thic register of 10}}-illane seni members of criminal wins was alone uniform in the police stie ons, and that consistori in leaving it ikise for some reeks and thcu literilly covo; in the largo phares with a licze" of the litter indicating “lvízir" or present, all of which were obviously truril»ber] in :tone sitting Clearly ihu ivil-calls were nét hell at all and the registers were an empty blind. It is said, and I believe with truth, thut in understanding existed lictween thu members of the tribes and the Police, not only with regard to attendance at rullcalls, but also in respect to the sharing of plunder. 44. Tho Jamadars, or investigating Sergeants, mostly uneducated men, held charge of the Chokis and were posted to the police statious. I'heir duties, under the "razinuna, Or competic sation system, were remarkable for their simplicity, and consisted in merely reporting crime. They were apparently not expected to investigate ofiences; por to take measures to prevent crime. Their ofiice Wils to respond to the calls of complainants, and to visit the scenes of occurrences for a few hours in order to ascertain, with a riow to subsequent compensation by the "zimawan;" 0Tesponsible, parties, that oficncis led actually occurred. This dono, they returned to their polico stations and out-posts, and left the complainants to derind either the recovery of the property they had lost, or else ils value, from the “ l'esponsible" chokidars. Amongst the Muharrirs and Jamadars there were a certain nomber of cducated and intelligent nen wlio rere brought into ile Sergeants' gradies and who now promise well; but, for the niost part, the firevious absence of discipline in the Force lad left them no idea of authority and they were little better than the disreput:shle sepor rabole, many of whom drer more pay than ther did, Many of these lazy and useless men tendered their resignations then required to attend parades and pressed to work, while others wero remored ou account of their utter incompetence. 45. The Ghata Officers and sepoys have already been dealt with carlier in the report. Then brought up for re-enrolment ther, almost without exception, resigned. They were willing to coutinue drawing the old rate of pay for doing nothing, but were not prepared to engage to work for double the income. In the interests of the young Force, I think it was fortunate that this class did thus yoluntarily rithdrus from the service, for they were too thorougily permeated with the old ideas of the "razisystem, and had enjoyed a lazy life too long, to bare easily confornied to Jamadara. Ghatn men. nama ·11 Trackers the requirements of the new régime. tabled to enlist in their places, Tere vastly with the voluntary disappearance of the le Iders. 46. There were 6 " Khojis,” or trackers, on pay varying from Rs. 5 to Rs. 10 a month before the reorganization, but they were useless for tracking purposes. Three of them were removed as unfit for further service, and the remaining three were re-enrolled as constables. 47. The pay of the 504 sepoys, or constables, ranged from Rs. 5-8 to Rs. 4-8 a month. Fifty-six of them drew as much pay and Sepor: some of them more pay than over 20 Jemadars, their immediate senior in rank. Of the total number of 504 Sepoys, however, no less than 448 were paid at the lowest rate, Rs. 4-8 & month. 48. All ranks of the Force were subject to permanent stoppages from their pay on account of uniform. This method of providing 1896, when led to the iments of a reaction set in, and for some time no deductions were made at all; but the system was revived under Munshi Mul Chand and stoppages for uniform were again made at the more moderate rate of four annas a month from sepoys, and at proportionate rates. *-formly up to the time of Rs. 4,198-0-6 in the Stoppages for uniforme, 1. 9 2 sum of 49. Of this sum, Rs. 1,406-14 was redistributed to men who were removed during the regrading on account of age and inca- Clubung fand pacity. The Clothing Fund, which was created on regular lines during the reorganization, therefore started with the balance, a Rs. 2,791-2-6, to its credit, and to this was added the proportionate amount of the grant for uniform for the period dating from 15th November 1903 to the end of the finuncal year, which in Alwar terminates on 31st August This proportionate amount worked out to Rs. 3,625 so that, in the absence of expenditure, the fund had a balance of Rs 0,416-2-6 to its credit at the end of the financial year. 50. A monthly income of Rs. 4-8 affords but small wargın for retrenchment, yet the four anuas for uniform was not the only Other dotactions deduction to which, in the case of the Alwar Sepoys, it was subjected, as was apparent from the extremely complicated system of native accounts maintained in the office of the Superintendent A sum of Rs. 11,797-15-7 was in deposit in the Treasury to the credit of the Police when the reorganization began, but the details of the amount were not forthcoming for some months. Eventually, after an infinito amount of trouble, it was discovered that the sum was made up as follows. Rs. 2. p Fides realized from the Police 439 7 9 Pay of the Police euepended, etc. ... 36 8 3 Cutting from Police for advancea given when going on plague duty 37 10 0 Deductions from Police on account of deathe, ete 541 39 Deductions from Ghata men and Town Chokidars for compensation 5,054 1 6 Deductions from Police for opiform 4,198 0 6 Pay of Police undisbursed 476 39 M18cellaneous dedoctions ... 1,014 12 1 P. . 1 . TOTAL ... 11,797 157 51. An individual, known as the Police " Nazar," occupied the position of Pay Sergeant and enjoyed the lucrative privilege of handling the pay of the Police. He is said to have levied a tax of one anna a month from every sepoy on his own account, and to have also made Th. Nasar ·12 Native State Polico udder. considerable profits in other ways the appointment of substitutes in place of men who died, the disposal of waste paper and repairs to small articles, etc., etc., affording him ample opportunities for peculation. 52. In view of the above facts, I need not, I think, offer further demonstration that the Alwar Police were, before the reorpaid and ill-supervised, ganization, not only very inadequately paid, but that the pittances of the lower grades in particular were, in themselves, utterly insufficient to attract men to the service at all. The fact that the appointments were sought after by a certain class was due, not to the emoluments they carried, but to the large opportunities for extortion which opened to men clothed with the authority of policémen. At the commencement of the reorganization, I found a list of “candidates" in the office of the Superintendent, on which were borne the names of a bumber of men who drew no pay at all but who worked, in different capacities, ostensibly as apprentices. Some of these individuals had been employed in this way a number of years and two well-fed specimens, of about 40 and 45 years of age, bad been candidates for no less than 10 and 15 years respectively and wished to continue so. Policemen of Jaipur and Bhartpur States openly avow the object with which men enter the service, their only anxiety being to get out to police stations and out-posts, and I have no doubt whatever that the same feeling actuated “ candidates " and others to seek connection with the Police in Alwar. It is quite certain that even the low, ignorant and undisciplined rabble, which I found in the Alvar Police, could not have existed on two annas a head a day, and life, under these circumstances, was even more impossible in the case of those men who had families. 53. No Police Force, organized on such a basis as this, can be other than Necessity for Government a menace to the public and it is a moot question whether, in the intervention, interests of the public, Government would not be justified in interfering to a much greater extent with Native States to prevent their continuing to maintain large mobs of grossly under-paid so-called Police, who virtually live by extortion from the public. Government have recently taken up the question of Police administration in British India, and there can be no doubt of the urgency for radical reforms even under our own system of British supervision and comparatively well-paid appointments, but the necessity for improvement in this respect is emphasised a thousandfold in Native States. The administrations are unfor, tunately mostly conservative and internal reforms, for selfish reasons, are not generally welcomed, but there can be no doubt of the necessity for improvement generally in many directions, but in none is it so urgently required. as in the Police. > and MUNICIPAL CHOKIDARS, 54. So far I have dealt only with the Police proper. There were, how. ever, before the reorganization, three other contingents Otbør Contingents. employed on Police work in the State, namely, the Municipal Chokidars, the Shahr-pannah Sepoys of the Alwar City and the Sowars. These bodies call for brief notice in turn. 55. The Municipal Police Chokidars, or watchmen, were employed in the Manicipal Road eight municipalities and on the three principal roads in the Chokidaro. State. They numbered altogether 336 mon and cost Rs. 1,658-10 a month, and Rs. 19,903-8 a year. The appended statement shows the distribution and the nominal rates of pay of this contingent: It is noteworthy that, as in the Police, a number of chokidars drew as much, and some more, pay than their seniors in rank, the Jemadars. 56. With the exception of the five menials, the whole of the contingents Constitution of Chokidar consisting of 37 Jemadars and 294 Chokidars, was maintained on the "razinama," or compensation system, which I will endeavour to explain. The great majority of the men were Minas and Meos of the lowest classes, ignorant and destitute individuals who, through a long course of years, had come to regard "chokidara" as their profession. They were invari: ably inbabitants of the places where they were employed, and their appointments, Contingents.

·13 61 ܙܘ wietna hon 1 as in the Police, bad bec ime family ber to fon or from one relation to another, 'avo of absence to produce substitutes to their absence; these substitutos sometimes brongbt forvard other men to act for them, and considerable confusion consequently resulted in the drawing and distribution of the pay. 57. Tho Jemadars and I hokidr3 employed in the municipalities were pid through individuals, kuown as "Chokidars' Bikshıs," Method of payment. from the municipal treasuries; and tho pay of the men employed on the roads was levied by the Tahsıldars from the villages through wyhose confines the ruads ran. There were three Bakshis, two of whom wero Jem dars and drew ther pay as such, but for some unaccountablo reason the man at Rajgai! th. Conta half. Tanrlar subscriptions contributions Municipal Chokidars. 58. Minas and Bleos have long been recognized as the most incorrigiblo and persistent criminals in the State and it would seem that, Conditions of employment. in the absence of a proper Police, capablo of securing and bringing offenders to justice, it was sought to prevent the commission of crimo by engaging members of these two offending classes to protect the life and property of the public. The conditions on which thoy vero employed prov.ded for their compensating from their pay persons who were robbed of any property in tho areas, for the safety of which they were responsible. If on a robbery occurring the Chokıdars could use their local knowledge and their influence with their fellow criminals sufficiently to secure the return of the stolen property to the owner, they, were held immune from the pain of compensation, and ivero not bound to reveal the identity of the thief or to disclose the means by which they recovered the stolen property. They were permitted to draw a veil over theso proceedings and it was considered sufficient that the things stolon were returned to their rightful owner. If, on the other hand, they failed to restore tho stolen articles, or animals, or neglected to satisfy the loser within a reasonable timo by presenting him with goods, or animals, equal in value to those stolen, and which they usually stole from somebody else, then, under the operation of the rules, they were liablo to stoppages from their pay in order to compensate the loger in cash. 59. In theory the authorizod stoppages were made tentatively each month dan and were allowed to accum1. "Golak," for wbich to Superintendent of of each six months, leurs the Goluk Fund, and cidars, of any balance laimant to compensation 1, under the orders of tho Foujdar, or Magistrate, considered his caso and assessed tho amount of loss sustained, 60. This systom ------ntinn ums wichts ar remingly, to have afforded possessors of more- Delecta la yutom. nd eminently unsatisfactory in practice. The degree of inducem-nt to each individual chokidar to prevont crime was logically speaking, proportionate to the amount of money hich bo was liable to lose from his pay for purposes of compensation. Originally the rato of the stoppages is fixed at ine rupee per chokidlar a month, but later on it was raised to one ruppo eight annas. Inttorly, then, if cr man could have bcon andnud olen other durna noch perioi of six months, ciel cliokidar could Lave Yould have locuire his f.!! le, the individual inda. cm3nt to prevent thr coinmission of offences receded as crime advanced alu the prurit ai th: R: 1-8 dvindled, untıl, finally, on the value of the losses sustained reach 27 the limit of the six months' accumulation of stopping in the Goluk Fund, it ceased to crist eltogetber. The Golok Fund - Pis; but, on t ·. 61. Unfortunately for the chokidars and the system, thoſts and burglaries wero extremely common in the cities and towuis of the Stato Golak Fond bankrupt. and, in addition to that, grasping banius and avaricious people in general detected the elements of possiblo gain in tho arrangement which was intended only to insure them against loss. To securo an extra unount as compensation it sooned vuly necessary to recorl and insist on an exaggerated amount of stolon proporty. The Goluk l'nnd as, thorofore, partly owing to the prevalenco of crine and partly owing to the greed of the people, in a chronic state of bankruptcy; and su far did the clemands on it exceed its resources that, cach six months, thu fund liad to be proportionately divirlod lietween the numor0115 claimants in ratiu to their losses, and the monuy was doled out in irregular driblets very different fron the complete pryments originally contemplated by the system. The inducoinent to the public tu uver-tato losses to the greatost possible extent Wis not lossened hy this unavoidablo necessity of doling out compensation proportionately to the length of each claimant's list of property. Indeed, so inch eagerness and energy was evincerl by the public to secure, by fuis means or by foul, the largest possible slices from the Guluk fund that, but for the limit prescribed to the rate at which stoppages might be inade from the clokidárs' pay, the goose laring the golden eggs must, so to spoak, have been offcctually put to death. Its life, however, wils pieserved by the regulation limiting the monthly stoppages to a fixed sum, but the cuttings became a permanency and the timo, when they were less than the extreme limit, had long year's bofore passed from chokidár inomory. 62. A single instance will serve to illustrate the nature of the rogard in wbich the public held the Goluk Fund and the compensation A spical c180 system. The case I cite came prominently to notice owing to the complainant's extraordinary exertions to get the compensation claimed by him, paid in one lump sum from the hillinico remaining undistributed in the Goluk Fund at the time of the abolition of the system in tbe municipal t'es. The caso was one of burglary in Alwill City and the complainant Was ir man of position and influence. The losses actually sustained by him were commonly said not to hivo exceeded Rs 500, as stated by his wife when tho affair first occurred. He, however, reported them as Rs. 3,614 The statenient wils coubted; but, by his influence and by means of certain desiderata bestowed in the requisite quarters, he succeeded in getting his claim on the Fund accepted and registered at his own exorbitant figure. The chokidars were then, as a mattor of form, isked to recover the stolen proporty but they, as usual, viewed the whole proceeding with indiffe:- It inattered not in the least to thoin whether tlo complainant reported his loss at Rs. 500 or at Rs. 5,000, or whether his property was recovered or not. They had been, for longer than they could rememhor, permanently under stoppages from their pay and thore was no prospect of the Goluk Hund ever again being solvent, for its load of debt was increasing. They had consequently long since ceased to regard the stoppages as pay at all, and tho occurrunco of offences and the assessment of the amount-stolen were equally matters of indifference in their eyes. After the whole empty procedure had been enacted, compensation was ordered for the complainant by the Foujdar, and, in the ordinary course, driblets of money would have been doled out to him over a long mmber of years, until the aggregate of Rs. 3,644 Wis reached and he had cheated the Goluk Fund out of some Rs. 3,000. Unfortunately, however, for the complainant in this particular case, the Goluk Fund and the whole system of compensation in the municipalities were abolished on 15th November 1903, and the curefully conceived plans, which he had pursued up to that point at some expense, fell to the ground, but the case is eminently typical of the attitude adopted and the procedure followed by persons suffering at the hands of thieves under the “razinama " system, 63. Under any other than the conservative rule of a Native State, the Financial rottenners of glaring failure of the system from every point of view must have been patent; but the blind faith in which the people popularized the arrangement in Alwar was no less remarkable than the complacence of the administration in allowing it to continue. Financially and economically the system was unquestionably bad, and small space is necessary to show the re ison. I have endeavoured to describe the chronio state of insolvency of the Goluk Fund and to depict chokidars permanently under ence. + tho eyston.

·18 failure stoppages of pay, in order to provide compensation for the losers of property. Starting then from this point, and putting other considerations aside, it is not necessary to pursue the train of thought for to observe that the State, as repra- Bented by the mu-'- chokidar on the r 'was, as the syster of the municipal c This would not ha of each chokidar, not become a permanent institution; but the stoppages were permanent, and bad been so sufficiently long for the cliokidars to have forgotten about them, and the two grades to have regarded their pay as Rs. 3-8 and Rs. 28 a inonth respectively, instead of Rs 5 and Rs. 4 a month. 64. This state of affairs could scarcely be esteemed satisfactory to The system practically the State excheqner, but there w.1s another and graver aspect of the question, affecting perhaps more deeply the interests of the administiation. It was claimed that this much-lauded system of compensation operated as a preventive of crime, in that it was in the interests of the chokidars to prevent the occurrenco of offences, but it is easily geen that this was not actually the case Long years ago, when the monthly deductions from the pay of the choki. dars became a permanent institution, two things happened simultaneously; the inducement to the chok dars to prevent crime, at no time worth consideration ceased to exist altogether, and, what was much more serious, the pay of 336 expert and destitute criminals, criminals by the law of beredity, living in the which it was utterly impossible for aonth and another 100 of them the urtain fact that these men could not possibly have kept themselves, much less their families, alive on this scale of pay, which, moreover, was further subjected to manipulation by the Baksh s; and, as they had no other ostensible means of livelihood, the only conculsion to be drawn is that they availed themselves of their excellent opportumties to commit and to instigate the offences they were fondly supposed to be engaged in preventing. As I have already said, the chokıdass in the towns were recruted almost exclusively from the Mina and Meo tribes They were related by blood and by marriag's to one another, and to numerous casto-fellows and friends Living by crime in the villages round about the towns. They had an exhaustive knowledge of the towns and of the people living in them, and their duties as night-watchmon licensed them to wander where they listed during the dark hours. Finally, the absence of proper police removed, or at any rate greatly reduced, the fear of detection. What wonder, therefore, that, under these circumstances, these destitute individuals, criminals by nature, engaged in committing, rather than preventing, crime ? The registers of convictions show that, in the rare instances of crime in the towns being detected and prosccuted to conviction, the offenders were almost invari. ably found to bo chokdars or the relations of chokidars. When thus convicted, they produced substitutes to keep their places for them and went to jail, until such time as release enabled them to return to their old occupation as watchmen. 65. I have said sufficient, I think, + --- chokidarı "razinama" it, System abolt-hed. and I have shown that blic, it was open to the grossest abuse and failed utterly to fulfil its primary obligations of preventing crime or provid ng recompense for the victims of robbery. But the LA the -! wu them convicted and diagged to jail; they constantly bewailed the inefficiency and futility of the investigations, and they knew that the offenders, who habitually plunder always rupees the loselu TULUS VU uvuming tu. , where ilu, lut' an lulus, luuy resenteu the abolition of 3 were or two ·16 the systent and demurred at the substitution of a rational Police. My proposals, embracing these measures were, howover, sanctioneri by the Political agent and Council on 15th November 1903 ind, while the reforins were gravlually lying cſfocted, the Municip: 1 Committee of Alwar convened a meeting and; by way of vioing the sagacity of their constitui'nts, pressed a Resolution which, aftor corrrction of the English, roads ns follows: “l'ho inliabitants of the Alwar City have lithorto beon paying for a definita safeguard against thefts committed within the jurisdiction of thoir Comiittee. Their payments, lesiiles proviiling wages for the chokidors, entitled the inhabitants to compensation for losses sufiured ; where:1s, by the nose schemic, thore is no provision for compensation. Thero may be more likelihond of thievos being brought to justico undor the lion system th:n formerly, but this will carry satisfaction to the (invernment of the State rather than to the actual losers of property at the hands of thiores. In riuse of the fact, which is of paramount importance, that insurance against losses no longer exists, it does not appear to the members of the Committeo aquitable that they should be burdened with the same contribution as before." I forbear to comment on this representation, but it has since giron me satisfnction to prove to the people of the Alwar City thing tho prompt arrest and conviction of offonders against the law is the safest kind of insurance against losses at their hands, and evidence of this is in be found in the almost magical cessation of crime, within the limits of the municipality, since the abolition of the old chokidnri “razinama" system and the detection and well-meritel punislıment of several notorious gangs of habitual criminals. 66. I liate now deait briefly with two phases of the “razinamn" systom, Thren aspectin of the namely, the Ghata phase and the Municipal please, both of which were abolished during tho reorganization. Further on in the roport will be found a short description of the thirl and the most important phase, namely the village system of “razinama." of the threc, this latter, which materially difiers from the others in point of constitution though not in the principles of its working, is by far the most fur-reaching in its influence on crime, and I regret to say that my efforts to uproot it were unsuccessful and it remains very much as I found it,-- blot on the administration of the State, razinama bratem.

·STATEMENT D.--Statement of pay and distribution of Municipal and Road Chokidas s before the reorganization. JEMADARS. CHOKIDA B. -MENTALS. Name of Midipality or Road, Total monthly coat. On Rs 20 á month. Population: On Rs. 10 a month. On Rs. 9 a month. On Rs 8.4 a mouth. On Rs. 8 a month. Ou Rs. 7 & month. On Rs. 6 a month. On Ra. 5-8 a month. On Re 5 & month. On Rs. 6 a month. On Rs, 5 a month. On Rs. 4 a month. Horse and Office Allowance. On Rs. 4-8 & month. On andas 8 a mouth. Total number of Cholidars. Lighting Allowance. 1 Ra 8 fe 2. Rs. A. P: Alwar City 56,772 1 7 5 ... 9 1 142 3 164 4 862 0 - 0 D. Raigarh 11,008 2 29 6. 31 16l80 ... ... 17 .. 11. PO 7,784 2 1 21 2 0 24 101 0.20 .. 490 44. ... 400 . d. 5,540 1 3 888 0 1 15 20 DOO ... 000 9,179 17 . 93 0 0 14 12 2 : .. II. ... . .00 Tijarn Behr Ramgarh Gobindgarh... - Babadarpur. Shababad to 13 2 " 15 0 64 0-0 ... .. O .. - 4933 4,087 2 12 .1 1 1 0 15 61 8 0 0 100 101 19+ ... 90 . 2,385 9 2 0 7 • 32 00 . . ... 194 . Tijara Road 1 5 1B 3 0 *** 0 12 24 108 12 0 14 140 we HO Babala Ruad 1 *** 1 444 0 9 12 14 0909 *** . ... . > Kherli Road 5 4 2600 " I . 20 Total 2 2 9 3 1, 10 190 100 1 18 0 1 2 336 11,658 10 0 ·18 Tsi: Suur-PANXAN CONTISGEHT. Alvar'. old dorondart. 67. Beſoro passing to the measures for reform, two other bodies of men call for brief mention, namely, the Shnlır-pinal Contingent and the Sowars, since, before the reorganization, they were engaged in performing duties appertaining to the police. The Alunr City is surrounded on three sides loy a high and massive med wall of defonce, outside and below which runs scope moitt. 'Iliese defence works, surmounted ly obsolete cannon, the 'OHNNiant of romantic post, together with the five substantial studied wooden yntes into the city, were in the keeping of 11 "Killadur" or Fort. Commer, in oli a:11 picturesque official, who had under liim a boly of 268 sepoys, mostly also very lil and whit-bearded. These ancient retainers, costing Rs. 1,249-8 il mouth and Rs. 1-4,1994 year, were formerly the clofendors of the fortificri walls of tho city, but of recont year'a with the change of the times, they la degenerated into a picturesque but useless gource of expense. Their only remaining duties were to watch the walls of the city and to nominally guard the city gates, to open an slut which a sprcial individual was employed, who went round morning and evening for the purpose. Tho whole contingent was not, I believe, employed in the city; indeed consirler. able mystery surrounded their distribution and I was unable to obtain exact figures, but they are of no importance. 68. With the introcluction of regular Police into the city, the maintenance of these homely figures on the walls and at the gates Sow uonocrisary. became unecessary; and, in formulating my proposals, I was enabled to calculate on a retrenchment of Rs. 14,994 a year, which liccamo possible cither lip the sunnunry removal of the whole contingent from the service of the State or by its grarlunl extinction on the death of the old men forming it. Since the city was taken over by the Police, a number of these ancient retainers have, I bclicrc, heon removed from service or have been transferred in more useful capacitics, but there still remains a large margin for further savings and the rise course wouli seemn to be to allow the appointments to die out with the present incumbents. Sowars. Coostitation, 69. Bofore the reorganizntion, there were 164 Sowurs, or mounted meu, employed on police work. Clicy rere deputed crorg six months from the different Squadrons, which form the . romnant of the old mounted forces of the State and which have como dov, in these days of assured peace, to the perforinance of tho duties of mounted orderlicg. These Sowars belong to threo difforent denominations with distinctive conditions of service. They are known by the terms “Nagdi (or cash-paid) Sowirs, Jagir (or feudal) Sopars" and "Deogar (or other) Sowars." 70. The Nagdi Sowars comprise a body of 130 men who are paid Rs. 15 a month by the Stato and are required to produce and feed Xingdi Sorara. their own horses. Jngir sortere. 71. The Jagir Sowars, who might be termel foudatory, number altogether 876, it being obligatory on the Jagirdars, Tho; lold " mafi" lands from the State, to place these horsemeni at the service of the State for six months in every year. Actual service, horrever, is only regularly enforced in the case of 572, half of whom do duty at one time. 72. There are eleven Risalas, or troops, of the Deegar Sowars in the State, each Risala comprising from 30 to 40 men, mounted Doegar Sowars. on State horses and paid at the rate of Rs. 5 a month.' 73. Before the reorganization, there were 44 Nagdi Sopars, 105 Jágír Old and now distriba. Sowars and 15 Deegar Sowars, making a total of 164 altogether, employed on police work and distributed among the police stations and out-posts. lion, ·19 Under the new scheme, which provides for 3 Sowars at each police station and 2 Sowars at each out-post and 5 Sowars under the orders of the Superintendent of Police, there are 15 Yaydi Sowars, 89 Jagir Sowars and 24 Deegar Sowars, makwg total of 128 mounted men, now employed on police duties as against the 164 before the reorganization. 74. In formulating my proposals for the new Police Force, I calculated Principles of on being able to retrench on Sowars by reducing the number roorganization on police work, and I found that I could decrease the number by 36 without impairing efficiency. For statistical purposes it is necessary to give a p: per value to the mounted map of the Jagir and Deegar Contingents, and, computing him at the value of the Nagdı Sovais, that is Rs. 15 a month, we arrive at the result that in place of 164 Sowars, costing Rx. 29,320 a year, there are now on police work 128 Sowars, costing Rs. 23,040 a year. apternat SUWMARY OF STEENG18 AND COST OF POLICE BEFORE THE REORGANIZATION. 75. To briefly sum up, the strength and cost of the different contingents, employed on police work before the reorganization, were as follows: Nature of internal te. forms, Per annu71. RA a. P. 675 Police of all grades cobling 336 Municipal Police Chokidars 268 Shahr-paonah Sepoys 164 Sowars 59,196 6 0 19,903 8 G 14,994 0 0 29,52000 1,443 1,23,613 14 0 There were, therefore, 1,443 persone employed on police work, costing Rs. 1,23,613-14 per annum. PERSONNEL OF THE NEW POLICE FORCE. Nature of internal rg. forme 76. My proposals for the internal reorganization of the Alwar Police Principles of intornał were based on the principles which time and experience reorganization have proved satisfactory in the Punjab. In consideration of the local conditions, I was unable to adhere completely to the Punjab system, which in its entirety would have been in some respects out of place in a Native State; and, where circumstances required deviation from the British rules, matters were adjusted so as to, as far as possible, insure uniformity and con. sistence in the working. 77. The internal reforms embraced the incorporation of the Municipal Chokidar Contingent with the old Police and the re-grading and re-enrolment of the whole in one Force of Police. The old rank names were changed for more modern and significant designations, and the pay of the grades were fixed at definite rates, in place pay in every grade. to stay on in the Force, when rules regarding enrolment, promotion and retirement were introduced, A Long Roll, a Seniority Roll, and Character Rolls were introduced, together with the requisite registers. It would serve no purpose for me to enumerate at length the multifarious matters dealt with during the internal reorganization of the Force. Suffice it to say that matters in every branch were placed on practically the same basis as in one of our own districts. The work entailed long hours and much labour, and that I am able to leave the new system working smoothly, is largely due to the hearty and willing assistance I received from those officers of the Punjab Police, who were associated with me in the work, and also to the co-operation of many of the local men. ng rates of - ·20 78. In onio l'ospect, I think, I may claim to have introduced in improvc- Increasn of involigaliog mont on tlic Punjalo system, by increasing the investigating staffs at tho police stations. It will be observed in Stnto. ment G thnt, instead of 2 Sergoants and 12 Constable: nt police stations of tho 1st class, I have arranged for 3 Sergeants and 14 Constables and thini, instead of 1 Sergeant and 6 Constables at the 2nd class police stations, I live (oxcept at Nimruna) provided 2 Sergeants and 9 Constables. In addition to this, it will bo scen that the staffs of four of tho most important and most criminal polico stations have bcon supplemental considerably, 50 us to raise them to a strongth compatible with tho work. This arrangement removes a well-recognised dofcct in the polico ndministration of almost every British (listrict. 79. Similarly, the staffs of the out-posts liuvo been a ljusted in nccordonco with the importanco nnd requirements of the situations (rido Ool.post otado, Statement C). I have already stated in the carlier part of the report thnt the number of out-posts was considerably reduceri, :nd I inay ada that this measuro was cffectel in the face of opposition from many of the Polico Station Officers; the reason for the opposition being that oul-posts suve trouble to the Police of the police stations. Even after relucing the ont-posts to less than hulf their previous number, I am by no means cert:in that I miglit not havo decrenseil them even more with safety. Since effect was given to the measuro, several applicntions late', on one pretence or another, beci inade for the 10- establishment of out-posts, but I may state, for the information of the Darbar, that I do not consider any such ungmentation is either require now or is likely to bo necessary in the future, 80. The total strongth of the l'olice proper lias Preen raised considerably. Stroogth ol bow Torto. In place of a total strength of 675, the Alwar State lins noty a Force of 940; but it must be remembered that the 206 Municipai Chokidars lave lwen incorporater in the Force, that the Shalır. pannah Contingent has been remoreil altogether, and the mumber of Sowars considerably reduced. 81. It will be seen from a comparison of Statements Dam K that, Thilo tlie constitution of the Municipal Forces los bcon Municipal Polico. altered and the number of the men reduced, the expondituro of the eight municipalities remains under the new schemo precisely as it was hefore. Ordinarily the Municipalities, and Alwar and Kajgarh municipalities in particular, would have been asked to contribute more generously towards tho increased expendituro entailed by the reorganization, but unfortunately the strained condition of their finances altogether procluded the possibility of their accepting increased payments. The Alvar Municipality, indeed, from which onbanced contributions prero most urgently required, ras, and is, hopolessly indebted already to the State. Under the circumstances I was constrained, except in the case of Alwar, to meet the difficulty of providing tho increased rate of pay for the mon in tho municipalities by reducing their numbers; and it is fortunate that this measuro bas, to no great extent, necessitated tho transgression of the scale of Police in ratio to the numbors of inhabitants of municipalities, as recognized in British India. In the case of the Alwar Municipality, with its population of 56,771 Bouls, and where al material increase in the number of Polico vas essential, the solution of the difficulty was suggested by the semi-State naturo of the duties which the Municipal Police are called upon to perform. Dicipality now pays for half the Force employed within its limits, and the State for the other half. The mu- 82. The pay of the Force has been raised all round, and the cost of the Police has accordingly increased. Whon ing proposals were Tho pog'ol tho Force first known, considerable astonishment was evinced in high quarters in the State at the figures I proposed, more particularly in regard to the Constables' grades; but inquiry clearly proved that it was not possible for a inan ·21 with a family to live honestly on less. The lowest ranks of the Forco arc not being remunerated at exactly the rate which was, until recently, regarded as a living wage in the Punjab, and in the emphatic condemnation by the Polico Cont. mission of the rates of pay of all ranks of the Polico in British India, there is to be found, I think, ample justification for my raising the pay of the Alimar Forco from the pittances, by which a premium was proviously placed on bribery and corruption in the State, to exactly the standard which the Commission has por pronounced to be grossly inadequate. The total cost of the Altar State and Municipal Police 15 now Rs. 1,16,776-8 per annum; but, owing to the alteration in the constitution of tho Force and of the supplementary contingents, employod on police work before the reorganization, a comparison of the annual cost can only be arrived at as follows: BEFORE TIIE REORGANIZATION, Annual cost. Bs 2 p. 59,196 60 19,903 00 14,994 0 0 29,520 0 0 675 Police of all grades 336 Municipal Police Chokidars 268 Shabár-pannah Sepoys 164 Police Sowars .. ... 1,443 1,23,619 14 0 ATTER THE REORGANIZATION. Annual cost. Rs. 8. P. .. 734 State Police 206 Afanıcıpal Police ... 128 Sowara 96,873 00 19,903 80 23,010 0 0 . 1,068 1,39,816 8 0 and pey of old and new Forco. 83. It will bo scon, therefore, that while the numbor of persons, employed on police work, Las decreased by 375, the annual cost has Comparison of strength increased by Rs. 16,202-10 bat against this there is an annual suving of Rs. 100 for Nimrans and Rs. 300 on account of the Railway Vakil who was, during the nurganization, transfuried to the Polico, and whose previous appointment, under tho Fouji ir, vas abol-hod. Tho saving of Rs.1,100 tlus effected reduces the ancrease of cost to Rs. 15,102-10; and in this connection I may mention that thio Hon'ble the Agent to the Governor General, Rajuptann, in bis letter No. 1760, dited 31st Blay 1901, to tlie address of the Political Agent, Alvar, written after the perusal of a progress report submitted by mo for Ius information, vas pleased to remark that he did not consider tlus enliancement of cost to bu cicessive. 84. With these brief remuks of jutronction I loavo the following statements, embrying the completo details of iny propssals for the reconstitution of the Alwar Policy, to speak for them. scles. The statements are sullicieutly clear and conci-2, I thouk, for us to dispunse with further explanation, and I trust thug will be found to wataas all essential information. Statements of recorttidation, ·22 STATEMENT E.-Office Istablishment. SERGEANTS. CONSTABLES. DICNIALS. on DOTIES. Deputy Inspectors. 1st Grade on Rs. 25. 2nd Grado on Rs. 16. 3rd Grade on Rs. 12. lance-Sergeants Rs. 10. 1st Grado on Rs. S. 2nd Grado on Rs. 7. Bhisti on Rs. 1. Farash on Rs. b. Sirccper on Rs. t. 1 ... ... .. . 1 2 1 1 1 ܢܝܙ ... ... ... ... .. porno 1 ... ... 1 ... . : mai 19 mm ... ܚܕ 1 1 . .. ... .. 1 ... t.. English Ollico Court Inspector's Office Record-keepers Superintendent's Readers Diarist Return Writers Copicst Despatchers ... Pay Sergeants Orderly Sergeants Burend Criminal Tribes Department Daftri Orderlies Blenials ... ... ... ... .. ... 1 ܝܝܙ .. 2 1 1 2 ... . ... 1 .. ... i 1 2 ... . 19::::: 1 10 II. 2 ... ... ... ... 1 2 .. ... Total .. 4 5 7 2 3 8 1 2 2 STATEMENT F.-Standing Guards and Orderlies. SERGEANTS. CONSTABLES. 110 POSTINGS. 1st Grado on Rs. 25. 2nd Grado on Rs. 16. 3rd Grado on Rs. 12. Lance Sergeants Rs. 10. 1st Grado on Rs. S. 2ud Grado on Rs. 7. 1 . 2 2 Court of District Magistrate and Police Office. Lansdowne Palace .. 1 ... 1 4 4 Quarantine Camp .. 1 ... 2 2 Telephone ... . Judicial Lock-up... 1 5 II .. ܝܙ 3 Political Agency ... .. I I Three Orderlies for each of the Members of Council. 13 3 6 Total . .. 3 15 2%

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·STATEMENT K.-Strength and Cost of Walicijal ann Roail Police where the licium Schorar * to: 514- Sr.65! 1.13. ISTA!.. on Name of Municipality or load. Monthly Co. 14! Girnilo on Rs. 2. Popolation. Dm Grade on R:1, 16. ril Grille on Rr. 1.2. Liner.si regionly Rs. 14. 140 Crude ou Rs.9. Gride on Rs.7. Onlin .. :: montls. On 11101aa ontl. 1 Lighting Allor.ca. R Rs. ft." 1 , ... 16.771 11.00 10 0 (1 (1) . ... ... U. ... 10. 5,310 5,179 ... ... war City Rujunrh Tijara Behrur Ramgarh Gobiudgarh Balindurpur Shahabad Tijan Bond Bahain Road Klcrli Rond 1 1: s. ::- Ti S::.... 0 ܀ 0 0 ... ... 1 1 .. 2,383 1 -1. ... ... 0 1) 1(5): 0 () ... ... .. ... .. ... ... ... .. ... ... Total 12 ܝܙ . ht11 2,413 lu 0. . ... STATEMENT L.-F'izcil Contingenrir (11:11 Gronis. Ilgali. Rs. P. 20 10 10 0 ... ... ... .. ... ... 91 2 Station Blouso Allowancca of Rs. 10 cach 2 5 Alwar City Allowance Lighting for Alvar Kotsali 18 Police Stations at annas 12 cach... 33 Out-posts nt annos & cach Stationery, &c., for Superintendent's Office Kotwali, Alwar & Police Stations, ist. Class, at Rs. 5 ench 10 2nd 1 33 Oat-posts at anuns & cach ]: 10 SOSOIT SOOOO 0 0 ... .. ... 10 ... ... ... 16 ... Total por mensen .. ... 219 ܀. 0 Total per annum ... 2.6.31 ... C 0 0 Annual grant for uniform for 916 Policemen at Rs. 5 a hond rewards 4,350 1,000 0 0 37 ... ... GRAND TOTAL AXXCALLY *** 9,211 0 ... STATEMENT M.--Showing Total Annual Cost of State anl Municipal Police. HEADS. Rs. . ... . Pay of Saporintendent of Police at Rs, 250 a month Subordivato State Police Fixed Contingencies and Grants 3,000 $5,662 8,211 0 0 0 ... 0 0 0 ... . .. 9.. Total ... 96,873 0 0 Pay of Municipal Polico .. .. .. ... ... 19,903 S 0 GRAND TOTAL ANNUALLY 11,16,776 8 0 ·25 INTERNAL ECONOMY. 85. The proposals, embodied in the foregoing statement, received the Proposale sanctobed, sanction of the Pohtical Agent and the Council of Alwar on 15th November 1903, and they were given effect to from that date, but some considerable time necessarily elapsed in gradually completing the changes. 8€. In connection with the internal reforms in the Force, I found it Punjab Police Officere, necessary to apply for the services of trained Police Officers with expert knowledge of the working of the different offices and branches to assist me; and, with the concurrence of His Highness the Maharaja and the assistance of the Inspector General of Police, Punjab, the services of a Court Inspector, a Pay Sergeant, an Orderly Sergeant and three senior Deputy Inspectors to act as Inspectors were obtained from the Punjab Police These expert hands have proved invaluable to me in assisting in the reforms and in instructing the local men in the new system of working. 87. The reconstitution of the Force by no means terminated with the re-grading and re-enrolment of the old Police but was continued up to the end of the reorganization. At the completion of the work, the following were the castes of men constituting the Force :- Hindus. Muhammadan. Brahman 182 Pathan 163 Thakur 62 Naik Sheikh 146 Karsth 33 Mina 31 Sayed 69 Kalal Ahir Neo 31 Goojar 10 Diahajan 8 Khanzada 24 Sikh Dbusar Moghul 22 Mali Khanazad 4 Ranghar 3 Jat 4 Khatri A rain Hajam Miscellaneous Constatation of new Force .. 46 JO ... 15 15 .. ... 8 .. . 7 3 444 464 88 The maintonance of a standard ratio of Hindus to Muhammadans in Proportion of Eindua to the Force, in proportion to the Hindu and Muhammadan Mubam mndang. elements in the population of the State, presents a matter of some difficulty. Of the population of the State, 828,487 souls at the last census, 74 per cent. are Hiudus and 25 per cent. Muhammadans; but, notwithstanding special efforts to increase the number of Hindus in the Police, the Force contained only about 50 per cent. at the end of the reorganization. Owing to the reluctance of "respectable Rajputs to take sorvice, and the very limited supply of Hindus of other denominations of suitable physique and qualifications locally obtainable, I doubt whether, without importing rubbish into the service, the percentage is capable of much improvement by local enlistment. The supply of eligible Muhammadans is more than sufficient for requirements. 89. Of the total strength of the Force at the end of the reorganization, 265 men, or 30 per cent., were educated in Urdu; apd 131 men, or 15 per cent., vero educated in Hindi. Twenty-one men were educated in English. The remaining 55 per cent. of the men were illiterate. A minimum standard height of 5 feet 7 inches was insisted upon in the case of men newly enksted during the roorganization; and I would recommend that this rule, together with a standard chest mesurement of 33 inches, should be adhered to in the futuro. Education, ·26 ... . 90. During a reorganization, such as the Alwar Police has just gone through, a long list of punishments was to be expected and Panishments and rewards, the returns show that during the past year the following punishments were inflicted for misconduct:- Judicial Convictions 18 Dismissals 24 Reductions 18 Suspensions *** 3 Fines 151 Quarter Guard ... 48 Extra Drill ... 40 . ... ..) .. .. . ... I. . .. .. Total 332 ... On the other hand the following rewards were granted for good work: .. Promotions Money Rewards sod Certificates Certificates only 98 61 14 Total 173 I. - Drill. 91. Along with the re-grading and re-enrolment of the Force, daily parades were introduced under a Non-Commissioned Officer and competent Drill Instructors of the Imperial Service Infantry, and were continued throughout the reorganization, men being brought in by turns to undergo a simple course of drill. I would impress upon the Durbar the essential necessity of continuing the drilling of the Police as a permanent institution, for drilling is valuable to Police, less for its own sake, than on account of the discipline it instils and the obedience it teaches. Experience has taught that having policemen as drill instructors is unsatisfactory, for they are prone to mix more freely with the men they teach than is consistent with the retention of their authority, and in time they invariably lose the smartness and decision of command which characterises the drill instructors of a regiment. The whole system of discipline in the Force, which it has been my especial care to inculcate, depends largely on the invaluable training, both of body and mind, accruing from regular drilling by smart and competent instructors, and I am confident that any weakening of the present parade arrangements will inevitably be effected at the expense of efficiency. I, therefore, strongly recommend that the drill instructors for the Alwar Police be continued to be drawn, as they very easily may, from the Iraperial Service Infantry of the State. 92. At the commencement of the reorganization, there were no Lines for the Police and, in the absence of a head-quarters, the men lived how and where they liked. On the necessity for Lines being represented, the Durbar arranged to make over to the Police a large building, formerly used as the Nobles' School. Although this building is not all that could be desired and is badly situated, yet it possesses spacious barracks and serves the purpose of Police head-quarters, The usual Line Officer's and Orderly Sergeant's office in the Lines was duly established with the requisite registers, and the Store Rooms fitted with shelves to hold the stock of uniform and accoutrements, as in a British district. At the outset, an experienced Officer of the Punjab Police vas put in charge of the Lines and selected Alwar Policemen placed under him for training: These men have since qualified in the duties, and the work in the Lines now proceeds smoothly and effectively. 93. In consultation with the agency Surgeon, a. ward in the Alwar Hospital was set aside exclusively for ailing policemen and Hospital arraugomonte, rules drawn up for the daily treatment of Police out-patients, The rules have been in force for some months and work smoothịy: Polico Lines, ) ·27 94. Beds and boxes were supplied to the whole Force, sith the exception of the Officers, of the size and pattern in uso in the Punjab, Beds and boxes, at the following rates and cost :- 8, . 916 Beds at R. 3-10 each 3,320 8 0 916 Boxes at Rs. 4-10 each 4,236 8 0 Rs. Total 7,557 0 0 from the Owing to the excessivo prices quoted locally, these articles were obtained from S. Babu Ram, a Contractor of Delhi; and they were all curveyed and passel by a Committee under my supervision. The beds and boxos are tho property of the Force, the cost of them baving boon dofrayed by deductions of Re. 1 a month pay of each man, until the aggregate cost was reached This matter was one of those in which I had, perforco, to dopart from tho rules in force in British India, but there is no reason why the system, as introduced, should not continue satisfactorily, and I anticipate that the mon having to pay for damages will make them careful m the usigo of tho articles. The beds and boxes are serially numbered and give an orderly appearance to the barracks. They must, however, be kept in order, like other institutions introduced during the reorganization. Each year they should be inspected by the Superintendent and the necessary repairs executed at the expenso of the Force. 95. One complete set of winter uniform, with great-cont, and a sot of new accoutrements, wore supplied to each man in the Forco at the beginning of the reorganization, on thio occasion of the Installation of His Highness the Maharaja, at a cost of: Rs 8. P. Uniform ... 22,520 40 Accoutrements 2,669 10 6 Uniform a Total 25,190 14 6 The cost of a complete set of Officers' kit was-- Rs. 8. P, Uniform Accoutrements Saddlery 40 5 2 9 8 0 45 00 Total 94 13 2 The cost of a completo sot of subordinatos' kit was Rs. 1. n. Uniform Accoutrements ... 22 12 0 1 6 9 Total 21 2 9 Both uniform and accoutrements are thoroughly good and will, I anticipato, with care, last bumber of years. The inform was ordered for the Installation of His Fliglinoss the Maharaja before I arrived in Alwar, and I think that a les costly outfit might have been devised, which would havo been equally effective in appearance, and yet have promised less strain on the Clothing Fund to keep in order in the future. Noxt year when the grant of Rs. 4,585 for uniform is received and addod to the amount alroady in the Clothing Fund, thero will be a sum of Rs 11,001-2-6 available, bich wiú bo more than sufficient for the supply of thin summer uniforro. I would suggest that this bo made of kbaki doll with yellow piping similar to that on tho inter uniform. The Clothing Fund has been established on regular lines and, with careful bandling and the obxryguce of the rules, which have been formulated, it should sufice to cover tho oxpcoses necessary to keep the Force properly clutbed. IE ·the present wintor uniform proves too great a strain, thore should lo no liesitation, when tho present outfit is worn out, in adopting some less pretentious anel less costly style of dress. Tho present uniform is smart in appearance and of good material, but I fear loo expensive. 96. Tho Police buildings in Alwar compre favourably with those of other States I have visited, and the majority of the police Buildingo. stations are spacious and substantial and are kept in goori repair. During the reorganization three new police stations rere luuilt at the ollowing cost : R: Alwar Sudr 8,156 13 0 Malakhers 7,651 14 0 Tahlil 1,165 120 1). P. ... Total 22,274 70 Twelve news police posts wero crected within the Alwar municip: limits at a total cost of Rs. 19,6:13-12 and a further sum of Rs. 7,006-20-1 was usponued in tho repair of existing bulidings. The total amount thus spent on l'olice buildings during tho reorganization Was 3 now Police Stations 1:now Municipal Police Posta Repairy to exiiting buildinga R9. r. 22,27470 19.093 12 0 7,006 2 6 ... Toto! 48,074 5 6 ... ... .. 97. Now police station buiklings aro still required at Partabgarh, Rajgarl and Narainpur and, as funds become available, they should Building required. bo undertaken in the order in which they are named. New polico out-posts aro also required at the following places and they should bo built on tho plan of those recently erected in Alwar :- 1. Reni 8. Silgeon. 2. Boteri 9. Lalpura 3. Harsora 10. Golako Bas. Pinain 11. Bamanwas. 5. Korana 12. Burada kan. 6. karod 13. Julalpur. 7. Jindoli 14. Gatero. 98. A new head-quarters Polico Office is also very hadly wanted. Tho Ador Polico Office re. office is not situated in a portion of the building occupied by qnired. the Dſagistrate's Court, and the continual noise inakes work well nigh impossible. The rooms, moreover, are too few and very much too small. It has been suggested that, when the new hospital is built, the present hospital building bu mado over to the Polico and, if this could be dono, it would be a great improvement on the present unsatisfactory arrangemont. . ... .. Tue WORKING, 99. The reforms in the head-quarters office of the Superintendent entailed much time and much monotonous Jabour. The lack of Saporintendent's Office, system in the work was everywhere in evidence, owing to the methods of comporting the different branches having, in the past, been entirely left to the idiosyncrasies of the clerks respectively engaged on them. The complicated system of duplicate and triplicate Hindi and Urdu accounts, which the men, who wrote thein, either could not or would not explain, took months to unravel, ·23 The chaos in the record room necessitated the files for years back ixing sorted and put in order, and tho samo course had to be followed in the English Office, A statement of the accumulation of case property in the Mallhana bad to be prepared, and the orders of the Courts obtained for its disposal. The inpumorable registers and returns in use pero sciutinised, and suppressed, retained or altered, according to their value. It would serto no purpose for me to dwell on the details of tho office working. Briefly, the wholo oilico was overlauled, and tho systematic and simpler methods of a British Police Omico introduced. The changes, which were naturally unpopular at first, Tere, when better understood, fully appreciated, and the office bands soon found their work simplifiol and shortened. Amongst those who profited most vero perhaps tbo despatchers and diarists, who now maintain a singlo register ench in placo of the burden of 21 each. The tork of the Office of the Superintendent is now carried on precisegl on the lines which experience has proved in British India to be the simplest and most effective. The men have learnt tho system and the day's routine ranves smoothly forward; but, bke all the reforms recently introduced, the working of the office will require careful supervision in tho fature to prerent tbo old abuses from again creeping in. 100. The offices of the police station received attention in their turn. The old and useless registers were changed for some of l'oboe erstuin officer. practical utility, which were accompanied by printed instructions. They were brought into use on 1st January 1904, and two Inspectors tvore detailed to tonr round the police stations, explaining their uso and assisting in starting them. Later on, I visited the police stations on toar and inspectel and further explained the books, and poriodical inspoctions aro not well establislied. 101. Together with the introduction of the new registers, a fundamental Nrw princiyles of work change in the principles of the working in the police stations Ing Ditiated was initiated. Before the reorganization and up to this timo the working was carried on in conformity with tho "razinama" system, which only required the Police to report offences and to leave the complainants to seck redress of tho "zimawar," or responsiblo, chokidars; but during the carly part of the reorganization, the manage nt of the "razinama " system was transfered and rested in the Foujdar, and, with the introduction of the net registers into the police stations, I directed my attention to insisting on exlanetive loc.! investigations in all classes of crime, with a view to the detection and conviction of the offenders. This matter ras one of paramount importance, for on the degree of improvement, ultınately effccted in the working of the Force, derende the waitres of the wholo reorganization; the internal reforms in the department, which laul been carred out up to this point, were merely the essential preliminarica to the introduction of moro efficient mc.ssured for the protection of life and property. At this point, therefore, the rooganizition may be said to have entered on the second phase of its career, wlucb constituted the retting in motion of the netry created inaclinc, those wheels were, however, much clogged with the old usago of the "ruzinama" system and the apathy of thio men. 102. The working of the police stations before the reorganization was to so great an extent bound np with the "mzinam." System Talarn "ruicama'aten. that it is difficult to repimte the two subjects. I have already stated that the "mzinamn," or compengation, system was abolished in the Glintas and Jíunicipilties culs in the reorganization, but it remained, and still remains, in what mas lo termel the village forin, in or about two-fifths of the villages of the State. To be necumte the system is in poguo in 786 of the total number of 1,809 villages in the State, and, although I strongly recommended its abolition, thic Darlxr could not see their way to adopting the propouls, Tho remaining villages in the State bare no chokidars of any kind, except in isolate instances where the timindars late primtely engaged "licla," or shouting, untchmen, who are not." responsible" for crime and dorire their designation from their liabit of shouting alnut the villiges at night to scare away thicres, a distinguished from the “zimumar" methals of wifeguard by mmas of collusion, ·30 Hafi Grnpts. 103. The village phase of the “razinama system differs from the Municipal and Ghata phases, in that the latter were essen. Introduction optional.' tially State institutions, whereas the adoption of the former in villages has always been more or less optional at the wishes of the people, who may either have the arrangement or not as they wish. When, however, the system has been once introduced into a village, past history shows that the chokodars have gradually established so firm a hold, that it has become well nigh impossible for a dissatisfied village community to eject them. Over one half of the villages in the State have preferred to do without the arrangement, and there is no doubt that, even in the villages employing the system, it has proved in the past far from satisfactory. I believe that, but for the influence of the timid and wealthy Bania classes, who rightly or wrongly regard the system as a cheap kind of insurance, it would not have gained the ground it has. 104. The 786 villages, employing the system, have 2,220 chokidars distributed amongst them. Of these 2,057 are Minas, 40 Metbod of employment. are Bacrias, 48 are Meos and the remaining 75 belong to miscellaneous castes. They are employed in three different ways : - Firstly. On "mafi" lands granted free of revenue by the State. Secondly.--On land allowed them by the villagers. Thirdly-On “haq chokidara," or dues levied from the villages in a variety of ways, 105. Of the total of 2,220 chokidars in the 736 villages, 1,234 of them in 377 villages are in possession of State "mafi" land, aggregating 9,324 bigahs, of which 8,707 bigahs are cultivated. The total nominal jama of this land is estimated at Rs. 17,431 and the commutation dues realised on some of the plots aggregate Rs. 1,145 per annum. These grants cover a large area in the Thana Ghazi, Lachmangarh and Katumbar Tahsils and a considerable area in Rajgarh, Alwar and Bansur. In Ramgarh, Gobindgarh, Behror and Mandawar the area so held is trifling, while there are no such grants at all in the Tijara and Kishengarh Tahsils. The grants appear to have been made about a hundred years ago with the double object of settling the Minas on the soil and of weaning them from their thievish habits; but this latter object was largely stultified by simultaneously appointing them chokidars under the trazinama" system with its attendant temptations to crime. 106. In 176 villages in the State, 473 chokidars hold plots of land from the zamindars, aggregating an area of 3,337 Grants by zamindars. bigahs ana nominally assessed at Rs. 2,168, These plots were made over to the Minas at various times, as the "razinama" system of chokidars was gradually introduced into these particular villages. No definite system governs the grant of these village lands, any more than įn the case of the State mafi grants. The plots vary in size and value as greatly as in the conditions on which they are held. 107. The 513 chokidars in the remaining 183 villages have no land at all, but subsist on watch dues, known as “ Haq Chokidara," Haq chowkidara. levied in a variety of ways, according to the agreements drawn u. and the chokidars, the only uniform feature in the collection of the dues every six months, after the harves o the land yields only a single crop: haq" is collected in cash, each house contributing Til ss to 6 . annas, and in a few isolated cases the their sta the majority of instances, how: le forma at rates varying from 10 seers and bers o Incks possessed by each family: ki noes, are often supplemented by taken from the owners of wheels and where this is the custom, the are " responsible" for offences 'Village lands, as opposed to the ible for the safety of the village + haa 3 lui 1 jocs ·31 Whatever form the "baq" may take, the ebokidars are also entitled to dues, knoy as "Shadı" and "Gammi," on the occasions of marriages and deaths in their villages. These marriage and death dues are paid in the form of eleven annas to one rupee in cash, levied from the head of the house concerned, according to the affinity of the bridegroom or the deceased, and, in addition, a full meal, known as “Khasa parosa," for each chokidar, for as many days as the wedding or funeral ceremonies may last. 108. In all cases, the lambardars give security, usually in bonds of Rs. 100, undertaking to see that the chokidars remain present in their Security for Chokidara, villages and behave themselves, but the latter freqnently do absent themselves, often with the knowledge and collusion of the lambardars, and it seldom occurs that action for confiscation of the securty is pressed home. 109. The village system of chokidars is remarkable for its unaccountable Dogccountable ysgeries, vagaries and peculiar contrasts and, with no apparent reason, we find that in 337 villages in the State, the chokidare are maintained on State "mafi" land, and the people, living in these fortunato abodes, reap the benefit of compensation for losses sustained at the hands of thieves. In other words, the State, with a generosity as remai kable as it is unexpected, in- Bures its subjects in 337 villages, out of the total of 1,899, against loss.' In violent contrast to this arrangement, the remaining 1,562 villages are left to their own devices, with the result that only 359 of them have chosen to insure against losses by paying their own premiums, either in land, cash or grain to chokidarr, while the rest prefer to do without chokidars altogether. Whatever degree of popularity may by attributed to the mazinama system in the villages as a whole, the foundation of it unquestionably lies in tho mangificent " mafi" grant arrangement in the 337 villages, under which the State pays for zemndars' losses and supplies the chokidays with land free of revenue. "eople allow land, or pay watch di thoy produce a constant stream of Jeople complaining that for yoars the chokidars have refused to pay compensation for losses, and the chok dars objecting that they have pot been paid their dues. Police have continually to be deputed to villages to enforce payments of both compensation and " haq," while well-fonnded complaints are rife throughont the whole area, where the system is in vogue, that the chokidars therselves instigato and commit the thefts As a matter of fact, except in the "mal" grant villages, the chokidars mostly owe their appointment, as "Zimawar watchmen, to the Bania classes, who by their influence have succeeded in forcing the system on the villages, and there are files to show that, on occasions, the zemındars have forcibly resisted the introduction of chokidarg and have turned them out of the villages. I believe that a large number of villages, now saddled with the "razinama " system, would gladly throw off the burden, were the chokdars not so firmly established. As inals, the chokidars seek redress for all complaints imaginary wrongs, done them, in thefts and 10 incur their displeasure in any way, speedily find their bullocks, cows, goats, ploughs, or other property inissing. Differences about their land and failure to pay " haq" are met in the same way, and the blows came so swiftly and surely and the organization of the Blipas is so perfect, that the zemindars find themselves Fell nigh powerless to guard against them They are torrorised into silence and their silence is construed into content. It is unfortunate that the tendency of the administration of the State of recent years has been to bolster up the system, rather than discourage it in the spirit contemplated by Rule 16 of the Manusl for the Control and Reclamation of the Criminal Tribes, and it is a matter of regret to me that I have been able to do so little towards either suppressing the system, or to carry conviction to the minds of His Highness the Maharaja and the Members of Council of the dosirability of a change of policy in respect to it. 110. The principles of the working of the village system of " razinama The working of the sre fundamentally the same as previously obtained in the Municipalities and Gbatas. The chokidars, in return for their maintenance, whether by the State on "mafi” land or by the people, aro syatem.

·32 hield responsible for all offences against property which are committed in thien areas defined in their agrcements. On an offence of the kind occurring, the complainant reports his loss at the police station and, before the r'corganization, on the receipt of such a report, the duties of the police consisted merely in visiting the scene of the occurrence for a few liours, with a view to ascertaining Whether an offeuce had really been coinmitted and, if so, the extent of thic loss sustained. Having satisfied themselves on these points, tho Police would withdraw and leave the complainant to demand eithor his property, or else the value of it, from the “responsible” chokidars. These proceedings completed the so-called Police investigation, unless the complainant succeeded in getting back his property, in which case, he would report the fact at the police station, giving a garbled account of how he had found it in the jungle, or, in the case of cattle, of how the animals had themselves returned home; the Police wonld then retail the complainant's obvious fabrications in a short report and the case was filed as satisfactorily disposed of. In the event of the stolen property not being recovered and of tho chokidars failing to satisfy the complainant, the latter would then press for compensation through the Police; and, on the report of the Police, the Magistrate would direct the village "Panchayat" to sit to consider the circumstances and to assess the amount of compensation due to the complainant. On tho completion of this procedure. the Magistrate passe final orders, directing the “zimawar' chokidars to pay the compensatiou; if they failed to comply within a reasonable time, tboy were liable to the confiscation of the whole, or juart of their movable property to discharge the debt, and they were thus very frequently reduced to penurg. 111. Compensation for property stolen may bo made in a variety of ways, always provided that the complainant is satisfied. Thus the Componsation, loss of jewelry may be made good in bullocks, bullocksmay be paid for in cows, or in goats and cash, or in carb alone; and, provided tho complainant's possession of the newly acquired articles or cattle is not disputed by other claimants, be is only too glad to take them. without unnecessary inquiry into their previous history. 112. Before, howerer, the question of compensation arises, the chokidars are supposed to exert themselves among their lightfingered friends and relations pith a view to the return of the articles or animals originally stolen, and it is in connection with there negotiations that " Mehr Kbai” becomes a factor of importance." Mehr Khai," meaning literally " something taken on agreemont,'' is met with 'under various disguises all over India, and is well defined in the marginal synopsis of Section 215 of the Indian Penal Code as "a gift to help recover stolen property In British India the giving and taking of such gifts is punishable, but not so in Rajputana, where it is a recognized usage, openly and freely resorted to in almost every case of theft and burglary which occur's, more especially in the areas in which the "razinama " systom is in vogue. In the Manual for the Control and Reclamation of the Criminal Tribes in Rajputana, promulgated by the Government of India in 1895, we find the practice of paying "Wehr Khai" specially identioned. and condemned in Rule 16, which reads: “The custom of employing members of criminal tribes as chokidars, and the system of paying them delir Kbai.' or informers' fees for the recovery of stolen property, sball be gradually discontinued." So far horrever from either custom being discouraged in the Alvar State, members of criminal tribes are continually being appointed as chokidars, and it is an admitted fact that the custom of paying them "Mehr Kbai” for the return of -tolen property is as rife as ever. The amount of " Mehr Khai” so paid varies from about 20 to 40 per cent. of the value of the property, and so often amounts to considerable sums which the chokidars share with the thieves. Stealing under these conditions becomes a profitable business and there is no doubt that chokidars, admittedly expert criminals and 47 per cent. of whom have previous convictions on record against them, habitually instigate crime trith the sole object of extorting “Mehr Khai” for returning the property stolen. Nor is this the only way in which the "razinama" system encourages crime. The profit accruing from "Mehr Khai” undoubtedly leads to numerous. offences, but there the offenders are known to the chokidars and property is not "Dobr Khai."

·355 recorered, the compulsory oraction of large sums in compensation from tho chokidars becomes, in itself, a source of danger, for they cither provide tho means of payment by robbing somebody else, or are sold up and reduced with their families to utter destitution. The records of cases, in which losure of property have bocn recompensed by chokidars, show that bullocks are given in placo of stolen cows, cows in place of camels, goats in place of sheep, &c. &c., and it is commonly known that the animals, so giren in compensation for others, are almost infiriably stolen for the purpose. On the other land, thero are numerous instances of chokidars, born criminals, being sold up to the last stick and thereafter living in destitution. The different aspects of the "razinama" system, viewedl either singly or collectively, conclusively demonstmto that, whatever may theoretically bo claimed in favour of the system, it is, in practical reality, nothing less than a direct and powerful incentive to crimo, and perhaps the strongest evidence of the fact is to be found in the high percentage of conycted individuals among tho chokidars. As I have mentioned beforo no less than 47 per cent. of them hayo been convicted but, in view of the innumerable cases in the past, in which "Mehr and property qmetly returned, I am chokidars are as nothing to the offencos T1 critoinale, 118. Perhaps the greatest evil, from a modern point of view, in tho " razinama" system is the subordination of the detection Immnning torded to and punishment of offendors to the recovery of property and the compensation of complainante. It may be assumed that, when originated, the system was intended only to afforl greater security to property, and that it was contemplated that the Police would act simultanconga ly to bring offenders to justice, but it is obvious that two such systems could not live together. People in India, who are robbed, usually prefer the rocorary of their losses to the chance of the offenders' punishment, and the "razınnma systein, which seems to leave been born of this fecling, directly encourages tho secret recovery and restoration of property stolen, at the expense of allowing tho culprits to go free. On the other hand, tlie primary object of a police in vestigation is the detection and open prosecution of offenders against the Inw. It is clear then tlnt the tto systems could not be applied simultancously to the samo cases without one defeating the ends of the other. An attempt, however, lins been made in the past to assimilate the two in Alwar, and the result has been that tho moro urgent interests of an unfortunate few layu takon precedence of the interests of the public at largo, to the extent of forcing Police investi. gations completely into the background and of oxtonding compamtive immunity to the criminal classes, 114. At a conference held at Rajgarh on 20th January 1904, nt which His Highness the Mabaraja,the Political Agent, the Inspector- Rocommendations par. General of Police, Punjall, and the Members of Coancil tially nocopal sere present, I pressed for the abolition of the "razinama" system in the villages, on the grounds which I havo hero briefly recapitulated, bit the ecommendation was not well received and no immediate results ensucd. 11-we're reer- 1904, onls stolen, but that it should also be incumbent on tlıcm in future, in cascs whicro they effected the return of stolen property, to disclose tho identity of the culprits, Tho measure is no doubt a step in the right direction, but it would baro becn infinitely more satisfactory to laro abolishel tlu reinaius of tbo "razinama" system in the State ontright. The effect of the mica sare 'as it stands, howover, is not inconsiderablo for, by compelling the chohiclırs to disclose the identity of offenders who are, or who recome, known to them it effectually checkmates thoro members of the fratermty who previously instigated theſt and barglars with the sole object of extorting " Jelir Khai" for the restoration of the property, It also bring the cliokular, who takes " Jehir Khai" nad attempts to screen thieves, within reach of Section 215 of the Indian Penal Cole, which providea punishinent for such person "unless he uses all incans in his power to ciuse the oliender to be apprehended and couricted of the offence." ----- 1 ·34 The investigations of offences are not noir restricted to l'olice visit- of a few hours, and, in cases whore propicety is returned to the rightful owners through the clohidars, tho chokidars are uocorded tlx; full attention of the Police, until thic true facts are elicited and the identity of the culprits is ascertained. During the latter half of my time in Alwar, I bavo devoted myself specially towards reformiing the methods of working of the Police in investigations. By insisting on exhaustive local inre-tigations, directed towards the arrest and prosecution of offenders, in place of the incre reporting of offences, I think may chim, not only that the liglior percentage of convictions lins produced a corresponding secrense in crime, but that tho chokidar community have come to realize that the conscquences of crime are not bounded by the possibilities of the "gazinuna System. 115. I attach simple quarterly statements of crime for the four quarters of 1903 and the first three quarters of 1904, from which thic state of crime and the working of the Police inay be, to a certain extont, judged: The following summary of the statements gives the totals and percentages for each quarter in a concise form :- State of crime. CASES. PERSONS. POPERTY. Quarter and Year. Roportal and admitted. Consictail. Porcent. Arrested. Convicted. Per cont. Stolon. Recorered. Per cent. 1903. . ... 19 26 Ist Qnarter 2nd Quarter 3rd Quarter 4th Quarter +72 491 520 331 Se 197 1:37 55 ISO 114 317 169 3378 201 128 03 53 01 49 19,820 12,366 3.4,500 12,374 7,530 2,462 1,720 76+ 20 19 22 6 16 63 Total 1,837 107 22:1 943 747 57.3 59,060 9,476 16 1904. 1st Quarter 2nd Quarter 3rd Quarter 232 270 84 134 116 36 4S 38 2 +8 306 271 143 215 156 59 70 9,086 6,403 8,899 1,745 3,338 3,282 19 52 37 ... 299 58 ... Total 807 334 414 819 514 62.7 24,388 8,35534-3 It will be observed from this statement that during the 4th quarter of 1903, the working of the Police shows a distinct falling off under all three leads. The reorganization of the department commenced in the early part of November 1903, and the falling off in the working is to be attributed to the temporary dislocation consequently occasioned in the working of the police stations and to the interruption intervening between the suppression of the old methods and the introduction of the new system. Before the reorganization, the investigations were left, as I have previously stated, almost entirely in the hands of the complainants and the "zimawar," or responsible, chokidars, and at the introduction of the new system some little time necessarily elapsed between the ousting of the agency of the chokidars and the gradual bringing of the Police to assume their legitimate responsibilities, The returns for 1904 speak for themselves and, although the statistics of the first three quarters of the year leave much to be desired, still they indicate the distinct improvement in the working, as compared with the past, which has unquestionably resulted from the reorganization of the department.

·35 During the first three quarters of the present year, the returns show that crime has decreased 41 per cent. as compared with 1903, for in 1903 the arerage return of cases was 454 per quarter, whereas in the pre-ent year the average return per quarter works out to only 269 Alongside of the decrease a marked improvement in tlie workug is apparent The percentage of convictions in cases has risen from 221 m 1903 to 41•4 in 1904, and the percentage of persons convicted to ariested has risen from 57 3 in 1903 to 62 7 in tbe present year The percentage of property recovered to property stolen has more than doubled, having risen from 16 m 1903 to 34 3 in 1904, and these latter figures, I think, afford good evidence that the Police are a more useful agency for the recovery of stolen property than the much over-rated "razınama" system of chokidars. The figures for burglaries, ordinary thefts and cattle thefts, as given in the returns, may excite comment, and m truth tliey appear peculiar, being as follows: Borglary Ordinary Theft, Cattle Theft 1903. Ist Quarter 9 177 182 2nd Quarter 9 173 141 3rd Quarter 7 164 183 Ath Quarter 5 145 121 Total 30 659 627 1904 ... 75 34 35 ... + lAt Quarter 2nd Quarter 61 39 51 3rd Quarter 56 67 46 : Total 192 160 152 . The wide difference between the figures of 1903 and those of 1904 is due to offences being correctly allocated according to the Indian Penal Code, from 1st January 1904, from which date attention was given to the working of the police stations. Before then, some misconception existed in the minds of the Police as to the distinction between burglary and theft, and burglaries were frequently shown as thefts or cattle thefts. Taking burglaries, ordinary thefts and cattle thefts together, the decrease from an average of 76 cases per quarter in 1903 to an average of 55 per quarter in 1904, that is to say a decrease of 28 per cent., is satisfactory. Much has been done since the beginning of the year towards laying bare the ramifications of criminal organizations and a fair modicum of success has attended special efforts to bring well known gangs of notorious and babitual offenders to justice Action has also been instituted to a certain extent under the ra" razinama" tendant enls reasing crime before The mistake, however, must not be made of regarding w Kula as low peeted, for such is not the cane and very much s cannot lay too much stress on required to insure the realization department now unmistakably evinces. hr dann T ·36 First Quarter ending 31st March 1903. CASES. PERSONS. P&OFERTY, to Erstion i Code Ofience. Por cont. convicted to Convicted. admitted. Not investigated. Reporteil. Admittoil. Soot for trini. Per cant, recovored to Atolog. convicted Por cent arrested. Arrested. Convicto. Discharged. Pending. Stolen. Recovered. 7 3 271 Rioting ... 27 I ... 21 Disobedienco of orders 187 2 8 2 ... ... •*• 2 212 3 1 3 Inrbouring... ... $ 1 pent .. ** 005 IInrbooring an escaped olledder. Destroying ang sacred objcct. Calpnblo homicido 11 } ... 304 1 1 1 ... ... 307 31 31 3 31 31 Attempt to murder 3 .. 309 1 1 1 Attempted suicide 1 1 1 . 317 Exposare of child 11 1 .. *** ... 325 Gricrons hurt 13' 12 25 1 241 ... ... 325 brand mark . 1 sound . ... .. .. 053 Administering stupefs. ing drugs. Assaolt on public ser. yant. Wrongful restraint 41 10 101 . ... *** ... 3:51 3 31 1 2 .. 2 ... *** 35.4 Assault on woman brand ) 1 . ... } .. 353 Kidnapping 1 1 3 11 .. ... .. . 376 Ringan . 5 ... .. ... 379 Cattle theft 194 193 12 CH 13 13 10,106 4,6151 . Ordinary theft 177 177 37) 3:3, 19 340 9,469 ... 393 Robbers 1 Gango? lulitnalthieves. 1 1 .. ... .. ('riringi linachoi trase 1 1 1 tro ... 70 ... . 1 31 175 ... 14. 175' +44 ... Previvine *tolen po. party Mimbiin! In noinnis ... .. at Minichige fire 1 3 ... 1retinerea *** ... ... . ... 3. . ci O. - 10. XX111. Criminal Trit dick... 1571, 10., .!. C. Varamente 210, tc .. . *** *** - . .. 19.5, ***** 17051 ·37 Second Quarter ending 30th June 1903. CASES. Persons PROFERTY on of Code Offence Not investigated. Per cept. convicted to Convicted. admitted arrested Reported. Sent for trial. Per cent, contucted to Convicted. arrested Discharged. Admitted Per cent. recovored to stclez. -Saipaad Stolen, Recovered 147 Rioting *** 38 . 3) OP 212 31 3 . 2. 1 2. 1 . . . 216 51 51 60 3 3 IT 241 Harbooring Harbouring an escaped offender. Using counterfeit coin Destroying any sacred object Murder 7 ILO ... ORE 19 .. . 1+ 19 295 21 .. .. TV BE DIE 302 31 co 2 2 2 ... I .. ... . 306 6 G 3 1 28 20 8 . . . OL ... .. 307 Calpable homicide Attempt to murder Attempted homicide ... 1 11 #9 1 309 31 3 ... 1 5 1 4 . ... DI I. 325 12 16 15 4 Grievoog hurt 331 20 29 7 1. ... ... .. 326 1 1! ... 1 4 3 .. 1 .. ULY .. Grievous hurt by dangerode Weapon. Assault 2 2 ved 352 : I. 353 4 3 1 6) . 3 . Ansanlt on pable ser vant. Wrongfal restraint 40 341 1 . 11 .. 354 2 Assault on woman 1 .. ... 3 363 1 10 Kidnapping OP ... 1 1 ] ... 4 376 4 ) I. .. ODI ... du. V 379 32 42:21 142 141 53 21 6,901 2,172 . a 200 379 4 178 173... 44 40 32 30 . 5,293 Rapo Cattle theft Ordinary theft Robbery Dakaiti 3. 9 70 . 392 6! . 2 . 18! 13 89 . IR 395 . ... 1 .. 1 be . ... O. 11. 406 +++ 400 Criminal breach of trust 2 21 : 7 71 90 . 5 .. .. TO 411 10 10 Receiving stolen property, 1418cbrief to animals , . .. . PP 428429 10 10 435-436 .. 8 31 31 .. 71 21 Mischief by fire . लक .. O 448 House trespass 71 7 31 4 41 21 13 O 9 40 19 49 .. 301 511 491 . 49 30 2 457 Barglary 9. XXVII, Criminal Tribes Act... 1871. 09, C P.C. Vagrancy :10, C. P. C Habitual offenders Total . 5 9 5 5 5! 5 1 . 5 5 5 51 5 12,360 2,462 513 491 194 127 ct 317 168 53 148 ..

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·39 Fourth Quarter ending 31st December 1903. Cases. PERSONS, PROFERTT. iction of Code Odence. Not inveatigated. Per cent convicted to Corricted. Adrotica, Arrested, Reported. Sent for trial. Per cent convicted to Congeted arrested. Discharged. Admitted. Per cent rocorered to stolen. l'onding Stolca Recovered 143 GBP .. ... •14 Being member of on. lawful assembly. • 147 Rioting 41 4 25 25 : 188 Disobedience of orders 1 1 PES * 312 Harbouring . . 241 Teing counterfeit coin 1 302 Marder 21 2 2 21 4. 304 4 3 3) 11 Culpable homicido 2 21 Ice ... 325 11 Grigrions hurt 2! 2 21 de . U. 337 Hart endangering life 21 2 353 1 Assanit on pablic servant 363 1 1 RE .. .. Kidnapping Raps 376 1 10 10 .. 20. 597 17 379 5 19 6,314 9 . 127 1211 Cattle theft . CE 379 $ 37: 31 21 Ordinary theft 26 27 151 145 392 * 2 Robbery 101 . ROC 406 Criminal breach of trust 3. 3 3) 6! . . 100 5 7 10 4 7 7 3 ... Receiving stolen pro perty 429_429 3 3 21 . Mischief to animals .. 4 435-36 1 R. 10 3) .. II. 418 6 6! Bischief by fire Hwase trespass Larking house trespass by mght. 456 1 .. 100 157 31 Burglary 2 5 3 5 ... 21.. Criminal Tribes Act... 10 11 10 10. al 9 19, XXVII, 1571 109,C. PC ter Vagrancy 2 11! 12,37 761" Total 368 354 79 55 164 1234 63 465 100

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·Second Qur'a ait 30!). J. 1904 Can Pnju Eier Code 05cm. Admittedl. Not Invoullgatal. Hent for liini, Dowlotoile Worcent. non loil 10 milmilline Arrestil, heportal Canyel. Porrotondator to arrested Dlacharkal. I'min.striel Molen. 1 Iterurent 157 Pictis . 1 170 Penati !:- - 1 192 Dibedissa chadens 212 Exbeating . 234 Test Cap-1.cd. 327 Attempted surder S - 4=;te! szicide Ezgo se cc123 317 323 40 Hurt by Cats verm. Gr.Tes Eart 325 12 113 303 Griestitor blic ! ES: ezda-zeria 2: 312 383 12 s=lt on Foklic * 316 AS-2130 . 371 .. D-s az is elaves Tareason for pros? 372 375 ma Contoral cerce 372 retkelt 51' 15 2,912 C-:-35 Lt 1 2 57 4 C-lttich c?tros grips 43 . CS:s tras F-5295 0313 XXVII, 1971' 0 - ! Tribas ... 7, C.P.C. , C.P.C. 32 270 C4" 106, 136 137 1 24 4:3garot 313, 14 - 11:12 " * * 147 1 Co- .

·Third Quarter ending 30th September 1904. M Oasys. 1 PARSONS. PROPERTI. Section of Code. Offenco. Reported. Admitted. Not investigated. Sent for trial. Convicted. Per cept. convicted to admitted. Per copt. convicted to arrested. Convicted. Arrested. Discharged. Per cert, recovered to stolen. Ponding Rocovered. Stolos. Rioting 147 8 71 3 191 42 23 OV. . ... ... .. + 188 Disobedience of orders 3 21 2 3 3 ... *** 212 Harbouring 31 ... 2 6 6) . 3 1 243 1 1 1 1 1 brand . ... 295 Possessing counterfeit coin. Destroying sacred object. Marder 3 31 31 2 31 } ... de. 302 11 1 w 11 1 .. . 304 Culpable homicide 31 3 1 31 307 Attemptod murder 1 ... ... ܫܬ܀ : .. ... .. . 309 Attempted spicide ... 3 3 1 1 1 1 11 13 317 Exposure of child ... ... .. ... ... 324 Hart by weapon 5 ... 3 3) ... 4 31 1 ... I.. 325 Grievous hort 11 8 21 ... 2 2 2) ... 332 Hart to public servant 2 21 2 1 71 11 ... 2 ... 842 Wrongful confinement 2 21 2 2 .. .. ... 347 Do. in secret 2 2 ... ... ... ... .. ... 353 121 11 10 10 51 1 *** *** Assanlt on pablic servant. Kidnapping 363 2 1 .. . 371 Dealing in Blayed 1 1 1 1 1 . .. ... 1 *** 376 Rape 8 8 8 *** 5) 1 377 Uonatural offence 1 ] ] 1 1 ... *** ... 379 Cattle theft 47 46 17 91 25) 81 ... 9 8 2,108 . 690 ... 370 Ordinary thoft 70 67 301 23 52 281 $. 12 12 2,411 2,037 392 Robbery 5 1 1 1 71 14 406 Criminal breach of trust 4 4 3 31 2 1 26 . 411 24 221 1 11 21 14 3 61 280 Receiving stolen pro. perty. Mischief to animals 428 3 2 1 ) 1 1 .. 44 447 Criminal trespass 2 2 t. : ti 02 *" #¢ 457 Barglary 57 56 28 .. 20 451 27 9 94,222 261 Criminal Tribes Act... 28 27 27 18 27 181 2 81 ... 19, XXVII, 1871. 109, 0. P. C. Vagrancy 3 GO 3 .. 1 1 3 1 21 ► #12 110, C. P.O. Habitual offender 1 2 ... 1 .10 ) 1 : .. . www Total 317 2991 168 1161 361 2711 156 58 39 76 8,899 3,282 3 Corresponding quarter 535 520 of 1903. 195) 137 26) 328 201 611 127 14,500 1,720 1 ·43 VILLAGE RESPONSIBILITY, Essential to cras. 31 116. It is well recognized in British India that the co-operation and assistance of the leaders of village communities 19 essential to successful working in all branches of executive administration, and moro particularly in the criminal branches, but this truth does not appear to have been yet realized in the Alwar State. 117, In connection with the reforms in the police stations, it early became apparent that the absence of any pretence of co-operation or No Tillaga co-operation assistance on the part of the headmen and principal men of the villages constituted a serious obstacle to successful Police working throughout e lambardars, or headmen, reveaus, while the large State at all, beyond the payment of ravenue due from them. It is possible that in the exigencies of the "Tadinama system, under the auspices of which Police investigations had degenerated into a farce, the Police neither required nor asked the co-operation of the village leaders, but, even so, it is surprising that the value of their help in other executive matters should never have been sufficiently realized for some code of rules, defining their duties, to have been drawn up. In the absence of such regulations, these middlemen, who form the only means of bridging the inevitable gulf existing in India between the official classes and the people, were found in Alwar mostly arrayed against the interests of the administration, engaged in protecting offenders and receiving and passing on stolen cattle. Not a few of the lambardars and landowners were, and still are known to harbour Mlinas and other notonous criminals and to share the proceeds of their depredations in return for protecting them from the consequences of their misdeeds. "The estrangement of these classes from the administration was principally due to their duties and responsibilities never having been defined or enforced and, with a view to remedying the defect, the following rules were drawn up. They received the sanction of His Highness the Maharaja on 21st July 1904 and were brought into force shortly afterwards. 118. Rules relating to the Duties and Responsibilities of Village Headmen Bplex for village CD and Watchmen and of Owners and Occupiers of Land and their Agents and of Pattvaries :- 1. The village watchman 13 bound to obey the village headman and they are both bound to assist the Police to the best of their ability in all matters connected with the prevention and detection of crime and the apprehension of offenders, 2. If any crime is committed and the tracks of any of the accused or the stolen property is traced to any village or to its boundary, the lambardars and chokidars are responbible for producing the offender and the stolen property or to show that they have løft the village. 3. It is the duty of every village watchman to keep watch and ward in his village. 4. Every village watchman shall report in person, once a week, on the state of his pollage regardmg Police matters or epidemie diseases to the officer in charge of the police station when there are more than one watchman in a village, such report shall be made by one watchman only and the duty shall be taken by rotation. 5. Every village headman, owner or occuper of land, and agent of any such owner or occuper and every person employed m the collection of revenue, and every watchman is bound forth watk to communicate to the officer 10 charge of the police statun any information he may (1) any person of bad character found larking in such village kmits who has no ostensible means of subsistence, or w ko cannot gre a satisfactory account of himself; (2) the residence in, or the resort to, any place within the limits of sach rillaye, or breaker," khutel " or receifer of stolen property, or who is& notorious bad has committed any ofence cognizable by the Police , (3) the absence from any such vallage of bad characters and saspored persons why are ordinarily residents of such villege, poration, obtain respecting passage through soch nữage, of any person who is a reputed thef, house, character, or an escaped offender, or show a harbourer if dskaits, or whu (4) the absence from such village of members of proclaimed criminal taber mitb. out leave;

·45 (5) the occurrence in such village of any sudden or annatural death or of death undor suspicious circumstances ; (6) all disputes which are likely to lead to any riot, or corious affray, and intelligence lo reccives affecting tho public pouco within or near such village; to the appearance of any cpidemic and any information connected theromith which may bo required by the Stato; (8) the presence in any village of any rierson who is suspected of coinmitting, or of having a design to ccminit, any offence, whether within or without thc Stato jurisdiction. O. Prory village headman and villago watchmen, owner or occupier of land and patvari shell of his own authority interpose for tho purpose of prorenting the commission of any cognizablo offence, whether within or without his village. 7. Every village liendman and village matchman, okner or occupier of land and pala wari shall of his own authority interpose for the prevention of any damage attempted to be committed 10 any State, Municipal or Railway prorxrty, movable or immovable, or in prevent the removal or injury of any public landmark. S. Every village herdman and village watchman ehall without orders from a Magistrate and without marrant :rrest- (1) any person who commits ang crgnizable offence as defined in thic Criminal Laws in forco in the State; (2) any j'erson against whom reasonable complaint has been made, or reasonablo suspicion cxists, of liis having been concerncd in any such olience; (3) any person against shom a "lue and cry ” notice has been issucd in writing of his having been concerned in any such ofience; (4) any person who has been proclaimed sin offender cither under the Criininul Liws in force in the State or in a Polico notification, or under any other rule or law in force in the Stutc; (5) any person in whose possession anything is found which may rensonably bo susricted to be stolen joroperty, or who may reasonabis be suspected of having committed an coffence with reference to such thing; (6) any person who obstructs a l'olice officer or other public serrant, or e village headman or wa' chuan, or owner or occupier of land, or patvari, acting under these rules in ud faith in the cxecution of his duty, or who cacages from lavful custody; (7) any person reasonably suspected of being a deserter froin the British Army or Imperial Service and State Troops; (8) any person who has been concerned in, or against whom a reasonable complaint has been made, or credible information has leon reccived, or a reasonible suspicion exists of luis having been concerned in ny rct, comnitied at any place out of the State, which, if committed in the State, would have been punislıablo as a cognizablo offence, and for which ho is, under any lar relating to oxtradition or otherwise, liable to be apprehended or detained in the State. 9. If a person forcibly resists an endeavour to arrest him, every village headman and watchinan may use such means as may be necessary to eficct the arrest. 10. No person arrested by a village headman or village watchiman shall be subjected to more restraiut than is necessary to prevent his escape. 11. The village headman and village watchman sball take charge of all persons arresta ed in a village und shall forthwith take euch persons arrested before the officer in charge of the police station, 12. Any private person may arrest any person who, in his view, commits a non-bailable and cognizable offence, or who has been proclaimed an offender and shall, without an. necessary delay, make over any person so arrested to a Pulice officer or, in the absence of a Police officer, to the nearest headtuan of a village, who shall forward hiin immediately to the police station. 13. Any person who is guilty of neglecting these rules, kwfully promulgated, or who is guilty of acting wilfully, in any way, against the interests of the administration of the State, shall be liable to prosecution and punishment under any law or rule in force in the State. POSTAL ABRANGEMENTE. 119. The postal arrangements at the beginning of the reorganization were eminently unsatisfactory so far as the Police Tere Unsatisfactory concerned. The Police were neither accorded the privilege of stamping and franking official communications, nor were they allowed service 16 ·45 stamps; in short they wore denied the official use of the post offico altogether. All communications between the Superintendent's Office and the police stations, and rice tersá, vero forwarded through the Foajdar's Office and tho Tchsils, there stamps were affixed and the envelopes franked and posted. As, previous to the reorganization, the reports from polico stations in criminal cases, and indeed in most other matters, were dealt with by the Tehsildan, the want of dimct communication with head quarters was less felt than when the introduction of the new system of supervision necessitated such reports being sent into Alvar. In case of polico communications intended for destinations outside the Statc, the proceduro in force before the reorganization 123 cten more cumbersomo than that obtaining internally in tho State. For instance, an officer in chargo of A police station, wishing to communicate with an officer, 20 miles away in tho next State or in Gurgaon, enclosed his communication, together with a request for its despatch, in an envelope, addressed to the Superintendent of Polico in Alwar, and sent it to the Tehsil where it was enclosed in another envelope, addressed to the Foujdar, or Magistrate, in Alwar. On receipt of the cover, the Foajdar sont tho enclostro to tho Superintendent, who opened it and enclosed the * tho ollicer for whom the letter Foujdar, who affixod 2 stamp and o the Council, 1 member of which body would then frank the envelope and send it to the post office. It is not necessary to point out that the delay, attonding this lengthy and complicated procedure, usually stultified the object of tho communications and impeded co-operation generally. 120. On my representing the matter to the postal authorities through the Political Agent, the privilegio of the Polico officially using tho postal system as at first refused, but, on tho matter being pressed, tho right was eventually accorded to them to stamp, frank and post official communications at any post office within tho limits of tho State, but not boyond its borders. In view of the Alwar State having accepted the Concestions obtained. orang so far settled, tbo Durbar accorded to tho Polico 1 14 not post official communications beyond tho borders of the State is being met at prosent, whero such courso is necessary, by the use of privato stamps paid for by the administration. LAW. 121, Tho Indian Penal Codo was introduced into the Stato shortly before the reorganization, but tho Criminal Proceduro Codo Chmiast Procedura Code. had not been adopted. During the reorganization I repeatedly represented that, in the absenco of ony other law of proceduro in the State, it was desirablo that the Crimidal Proceduro Codo should be madu law, but for como reason tho Darbar was not farourable to the measure, and finally rojected it on tho ground that the Criminal Procedare Codo mas too cumbersomo and complicated for tho requirements of the State. Parts of the Codo certainly are not applicable to Almar, any more than to the many other States sbich bare used it for years, but, in the absenco of any other similar lart, tho rriso couro ini.puhylons it stands and to allow that port.on istration, to cffect its own cilacement, 1. Torer, the intmduction of the Code, oficials equally with the public, 6.14 vehemently opposed, and the present absence of any law or rules of proxedor of any kind in the Stato is not only deplorable on its own account and becau's of tho Latitudo so ostended to the unscrupuljua, but it is mortable & afwww.blolar 1 1 ·46 Tho Polico act. to Government admitting Alwar to the list of States, whose convictions may, ere long, be recognized by British Courts, The Police of Altyar, as far as possible, follow the procedure of the Criminal Procedure Code. 122. At my recommendation the Police Act, Act V of 1861, was introduced into the State and made law on 17th Novomber 1903. Section 34 of this Act has not been extended to the Municipalities, as the matters therein were already provided for by the Alwar Municipal Act. Several convictions under section 29 have, since the Act was made law in the State, been bad against policemen guilty of flagrant misconduct, and these judicial prosecutions have produced an excellent effect. 123. An Arms Act is as necessary in the Alwar State as a Procedure Code. There are at present no laws or rules of any kind An Arms Act required, regulating the possession and traffic in arms, and arms of every description are openly carried by all classes. It is true that rule 4 of the Manual for the Control and Reclamation of the Criminal Tribes in Rajputana provides for the disarming of all members of criminal tribes, but no attempt appears to have ever been made to carry the measure into effect, and criminals generally, and Minas especially, almost inyariably go armed on their thieving excursions. Swords are the favourite weapons, but firearms are common, and it is of frequent occurrence that people, while defending their property from thieves, are injured and sometimes killed outright. Repeated complaints have been made by the authorities of the Nabba State, where the possession of arms is strictly prohibited, of incursions by armed criminals from Alwar, and there are numerous cases on record of unequal conflicts þetween armed intruders from Alwar and the defenceless Nabha subjects. The armas question is a big and difficult one, affecting the whole of Rajputana, where it is a mark of distinction to carry a sword in the land, still a solution is well within the bounds of possibility. The time has passed when arms were generally necessary for the protection of life and property, and to allow their possession indiscriminately to the public is to unrestrictedly place them in the hands of criminals. . Although the matter is one which would have to be cautiously approached, a means might be devised of checking the possession of arms by members of criminal tribes, and indeed by all criminals, without causing discontent by breaking into old established customs. There could not, I imagine, be any objection to enumerating the classes permitted to possess arms, or to numbering and registering the arms in their possession, or to making the owners, and their heirs, responsible for the safety of the weapons in their keeping. If some such easy measures as these were adopted and the possession of arms by the prohibited classes was at the same time made penal, it might in time become possible to check, to a great extent, the general possession and use of arms by criminals; but, until some such measures are introduced, it seems hopeless to attempt to dispossess particular classes of the people of their weapons, or to prevent them immediately supplying themselves with others in place of those taken away. It is not so long ago that the people of the Sikh States entertained the same feeling regarding the possession and parading of weapons, which still obtains in Rajputana, but the administrations of those States have since seen the wisdom of introducing laws regulating their possession, and there can be little doubt that the Rajputana States would be well advised to adopt the same course. CO-OPERATION ON THE BORDER, Boundaries of Alwar, 124. The general question of co-operation in Police matters between the Alvar State Police and the Police of the surrounding territories came prominently to notice during the reorganization. The Alwar State is bounded on the north by the British district of Gurgaon, the Bawal perganah of the Nabha State and the Kot Kasim perganah of Jaipur, on the east by Gurgaon and Bhartpur, on the south by Jaipur, and on the rest by Nabha, Patiala and Jaipur territory.

·47 Codes of Procedure. 125. The relations regarding the extradition of offenders and co-operation between Alwar and the four States of Patiala, Nabha, Jaipur and Bhartpur are prescribed in Codes of International Procedure, there being one such Code for the two Phulkian States and separate Code for Jaipur and Bhartpur. The relations between the British Government and Alwar were originally defined in a short Treaty of eight Articles in 1867, but in 1887 a further Agreement was entered into, whereby the Estradition Act of 1879 was made applicable to the extradition of offenders from British India to the Alwar State. The rules relating to the extradition of offenders between the States, leave nothing to be desired ; indeed they are more generous than those accorded by the British Government to Native States, in that the States reciprocato between themselves in surrendering offenders, one to the other, "without objection or proof demanded of guilt"; but the procedure, relating to mutual co-operation in practical Police matters between the States, is by no means so liberal as that recognized in British India as essential to successful Police working, The treaties between the British Government and Alwar are silent regarding reciprocal Police co-operation, a defect which was supplied during the reorganization, and, while there is a procedure of a kind briefly indicated in the Codes between Alwar and the adjoining Native States, the pursuance of it is so circumscribed and complicated by the element of responsibility," croated between the States by the kules for the Guidance of the Courts of Vakeels in Rajputana, that it not only fails in its purpose, but operates as a positive obstruction to the Police the moment they cross the borders of their own Stato. 126. The five Courts of Vakeels sitting at Ajmeer, Abu, Odeypur, The Courts of Vakeela Jaipur and Deoli, were in existence some years before the » hoy loving the administrations of ime and criminals on the bor firstly, for offences commi. nders living 10, or escaping into, their territories and, thirdly, for stolen property found within their ... 1..11- " * vond in the Rules cimified amnon. Li Orweg was w.. on noin nf nntmont the crimes, between the States to the extent of rendering them the dividing unos vetween we conflicting interests of the separate administrations in all border criminal matters. Under the peculiar conditions created by the Rules, no two States can regard in the same light -f « responsibility " likely must, and does, owards one ----I-ing the subjects or jurisdictions of posing as a plaintif and sing for just or rational reason, forced into the position of defendant; and the conuicting interests of the two States are ultimately fought out in the Courts of Vakeels by the representatives of the State concerned. 197 Where, then on the borders of the States, the united action of to out between the executive officials and the people UI VA UL. every case which occurs on or near the borders.

·48 The Nazims, Tahsildars, Thanadars and the people of the States fully realize the conditions under Rules X and XI of the Manual which, if proved, constitute "responsibility" and subsequently become grounds for claims for compensation; and, as compensation paid by an administration, has ultimately to come out of the villagers' pockets and produces at the same time an inordinate amount of unpleasantness for all executive officials concerned, it is scarcely wonderful that both the executive officials and the people exert themselves to prevent, by both The Rules fair means and by foul, the substantiation of any of those conditions. might serve their purpose could the official classes and the people be relied upon to be serenely guided by their injunctions and to dispassionately disclose the true facts of every case, in short, to work with the precision of an automaton, but in a country where the actions of individuals are determined by their own personal interests, it is futile to suppose that they will adopt a course of action, obviously opposed to their interests, merely because an injunction is laid upon them in a printed rule. If the substantiation of an offence renders them liable to being mulcted of their hard-won earnings, they will exert themselves to see that it is not substantiated; if the recovery of the stolen property produce similar consequences, they will prevent its being recovered; and if the taking up and following of a track, brought to their borders, smacks of suicide, they will dispute the nature of the tracks, prevaricate and cause delays pending the disappearance or destruction of the objectionable footprints further on. This is precisely what happens all along the borders of the Rajputana States every day, and files are produced by the officials on both sides of the borders presenting masses of false and contradictory evidence, each side endeavouring to make good their own cases and accusing the opposing party of every imaginable kind of chicanery, perjury and dishonesty. As a matter of fact the party originally investigating, that is the pursuing party, is usually in the right, and the other party, defending their State and themselves from the penalty of compensation, is usually in the wrong, but there is small satisfaction in knowing that when the investigation inevitably and irrevocably go to pieces on the borders and criminals escape being brought to justice on account of the squabbling. 128. During the year I have been in the Alwar State I have perused the files of numerous cases, occurring both within and Investigations rendered without Alwar territory, in which the investigations might have ended successfully but for the opposition and obstruction, encountered on the border, at the critical moment when assistance and co-operation were m3t necessary. Cases of cattle theft, ' in which the tracks lead over the border, are the most numerous. The story is invariably the same. The local police with the complainant and trackers carry the tracks of the thieves with the stolen animals to the border, and send intimation to the Thanadar into whose jurisdiction they lead. According to Rule XI, the Thanadar is “bound to take up and carry on tracks brought to his border," and the devices, by which he avoids doing so, would be amusing were they not, attended by such disastrous results. His first resource is delay, during wbich he trusts to the elements and to villages with herds of goats and cattle to destroy the tracks, and a day, and often two days, are for specious reasons allowed to pass before he finally joins the tracking party awaiting his arrival on the border. When he does eventually join the investigation, it is not with the desire of rendering assistance and helping on the ends of justice, but with the fixed purpose of disputing the tracks and thwarting the tracking party by every means in his power, in order to defend his State and himself from liability under the rules of International Procedure. He insists that tracks, which have been followed to the border as those of a stolen bullock, are those of a buffalo and vice versa; that those said to be the tracks of a sheep were made by a goat and so on; if these devices fail, he emulates the example set at Copenhagen a century ago by refusing to see any tracks at all, and produces trackers and villagers from his own side of the border, men who are as deeply interested in spoiling the case as be is himself, to corroborate his fabrications, no matter how improbable or ridiculous they may be. The investigations having, by some such device as the above, been effectually checked, both parties set about preparing their files and, after two or three days spent in unseemly wrangling and the interchange of innumerable politely ironical notes, each party retires from the scene, leaving the offenders more securely in possession of the stolen property than they were before. fatilo, ·49 obstructivo 129, Difficulties of a similar nature effect the arrest of offe Arrests and recovery of foreign jurisdiction and property, to recover, stolen proper The local polico aud people having nothing to gain, but much to lose, by assisting, or even allowing, an arrest or the recorory of property in their State, naturally exert their utmost efforts to place obstacles in the way and to prevent cuiminals being brought to justice. The only tangible outcome of the great majority of bordor investigations, involving more than one State, are the contradictory and worthless files of complaints prepared by the Thanadars. These, after months and often after years, eventually become the basis of much acrid correspondence Between the Courts and Administrations of the States, and, tnless somo agreement is arrived at, which in any case does not alter the fact that the criminals still remain at large, they find their way for decision to the Courts of Vakeels. Notwithstanding the somowlat elaborate procedure prescribed in the rules for the conduct of the trial" of such cases, the Vakeels almost invariably settle the differences and disputes ly means of easy compromises Thus the worthless files of false testimony are wiped off and disappear, wluch perhaps is tbo most satisfactory feature in the wholo arrangement, but the disputes and quarrels on the borilers leave their tamt in the minds of the officials and the people to still further embitter futmo proceedings and to operate as an increasing protection to the criminals of the border. 130. It is not too much to say that grave dissatisfaction with the inles of International Procedure is ennced on all hands. All The roles ampopolar and the officials, both in and ont of the Police, whether emploped in Alwar or in other States, whom it has been my privilege to consult during the past year, bare unanimously'donounced the system of "responsibility” between the States as the principal cause of excessive crime and bad Police working on the borders. The lack of co-operation, or indeed, of ortlinary, good will, between the Police of the different states is perfectly lamentable. There, between the Forces of the separate administrations, there shonld bo a personal feeling of sympathy and a desire to co-operate against the common cnemy, there exists hostility and resentment, which unmistakably covinces itself, in more or less unpleasant fornis, at almost every meeting. On one occasion, in an important case, I wrote direct to a Superintendent of Police of n certau State asking for assistance, but, instead of co-operating with me in a friendly spuit, lie took my communication to the Political Agent with a complaint of my addressing him direct, and the letter was eventually returned to me, unattended to, with a request for an explanation as to why I had not followed tlo usual procedure (which would have been useless, oring to the unavoidable delay) of commumcatiog through the Political Agent of Alwar. This exemplifios the general feeling now existing between the Police Forces of the Rajputana States. They are completely and effectnally isolated in their respective jurisdictions and the rigid rules and regulations to which this deploralıle feature is due, lave bred a feeling of positive dislike between the personnel of the different Forces. Their utility as custodians of the public peace is consequently largely impaired and criminals, who are sufficiently acute to conduct their operations so is to implicate two States in the investigations, have every reason for confidence in their safety 131. The jealous guarding of the borders of the States and unqualified recentment of anything savouring of encroachment by Change of policy required outside powers are the beritage of the past, but in these days of assured peace there appears to be no reason why a more liberal policy of hetween the Police of the States abonid D----- hoant on not ant what they are to-day. 'limes muy policy, for the common good of the States, has become a matter of urgency. I feel confident that the Durbars of the States, who fully recognize the evils of the present arrangement, would welcome such a change, but, as the present rules were promulgated by Government, it would seem that the first move now lies with Government. rom in ·"There can be o misapprohension as to the direction in which ixtion is required to rrmudy the present. unsatisfactory state of things. I'll shjectionable: olomiont of responsibility" between the States shoul] cultogethry to be as features in international relations; all rules fonding to jolate the Police of this States and alstruet man o-operation should lor almolislınd; regulations inore: liberal and cinstie should be substituteri, purvilinger for (1) clirect linication Pyotscon the l'olier of the States in Police matters, and the oxelange of information regariling crime criminals, 2) mutual swinger in pursuing rrisninal: ani in boriler investigations renerally, ( unite artion periodically something lorders with a vilogy to preventive meg-11195, (4) tlu tehingur of lists of luonter Vad caracters and suspirts, (5) jurimi: msings of State: Yoprsinifsusirloints of Police and of Station-house Oflicer's on or arthur Borders, C., pir; I'mlich Oficers : oflor on both sides of the borili.zis should is suitabli rewarrirsi for good work in lurzer matters, uw at freling of sympathy and gou sill fouterrain encourage by very possililo mnrus. Experieure has imply inwn that in this way, and in this way only, can lett a fair marlicum of surpresa to attain in l'olice working where two or 111011e soprate ivdministration :111 d'Oncol. Thint friendly relations int' jmssibile l'espirose the Police ni Satire Stautos is well properl in the Phulkinn muj, I : 11 grawitively crrtain that Rajput: can make no progress in this proper mil the present rules, wisich liratie iscolition mul olaruerunt in otrope word, int withdrawn in favour of :1 nori kindly procedure. Even then it will repair time mercome the formant feeling of lustility existing lontsen1 tl Police po porople of the different ministrations in Burles criminal matters, for it is the outcoine ni verso dispute's mul wrangling. Rerolen teninre), 152. During the reorganization ! liruht (1) antice ilir 112"?4.-ity for better co-writion lui were the States of Rajput:118 ! the Britisli intrict Gurgaon. Su for us the intonational relations futween the states were incumdl, I was only able to do! atiention 10 the matter and it is 10w, I understami, pemiing infor: the lon'ble the Ayrir to the Governor-lionerul in Rijenitam. Regarding the relations better! Alwar and Gurgaon mora ringilla results were achievel. At the conference at Rijgarh on 20th Jamry 1994, His Higness the Malinraja receptesdal sanctioned, so far as Alwar was concerned, the introduction of the rules which I quote below. The miles are similar to those which lave worked satisfactorily for the past ten years liet wren the Phulkian States and the adjoining British districts. The tentativo introduction of the rules for one year received the sanction of the Government of India on 20th September 1901, and they are not licen Isrought into force. Rules for systematizing Co-operation brlieren the British Polier and the Police nf the Aluar Slote, 1. The l'hemodars of the Alwar Stute and of British Police Stations, lordering on the State, shall pay periodical visits to one whics, and exchange information regarding criine and crimins, and afford every assistance to parties jussuing offenders over the bwrier. 2. 'l'he Alwar Stute sul depute the Smxrintendent of the State Police to meet the District Superintendent of Police of the adjoining British district, Gurgaon, on the lor ler, twico iz year, to discuss arrangements for the prevention and detection of crime, and to bring to notice any instances of neglect on the part of their sulorlimate Police, to give prompt and efficient assistance to the party reyuiring it ; an should ny serious fuult lv found with any Thanudar or other officer, or official un cither side of the lxler, the officer, making the complaint, skull address the authorities of tho district or Stute, in which trio offender is employed, officially through the Deputy Commissioner, or Politicil Agent, as the case may be. 3. With a view to keeping a check on their subordinates, the District Superintendent of Police of British districts and the Superintendent of the State Polico shall send intimation to one another direct of all cases in which the subordinates of cither party lad occasion to call for assistance from the other. Arrangements shall be Dindo for watching roads and prescs with view to interoepting cattle-thieves and other criminals.

·31 5. Lasts of persons, residing in the Alwar State, who are suspected of committing offences in British territory, shall be prepared by the British Police, and similar lists of British gubjects, suspected of depredating in Alwar, shall be prepared by the Stete Police. 6. In addition to the lits mentioned in 5 above, lists of the names of persons on both sides of the border, who are in the habit of demanding " Jehr Khai" or " Bhunga " for the restoration of stolen property, shall be prepared. 7. A special Magistrate and a special Police Officer shall be deputed from the British district and from the State, to nake inquiries regarding the persons mentioned in the lists aliaded to in 5 and 6 above, with a view to taking security from such persona. 8. The lists abore referred to shall be revised at least once a year, and every cold weather the measures ordered in No 7 shall be repeated. 9. Every six months lists of British subjects convicted in Alwar shall be published in the Polico Gacetle; these lists, with finger mpressions of the persons convicted, will be furnished by the Alwar State ; the District Superintendent of Police of British districts shall similarly furnish the Alwar State direct with Lists and finger impressions of the sabjects of the State who have been convicted in British India. 10. Copies of the Police Gazette for every police station and the Superioteodent's Ofice in the Alwar State will be supplieul by the Central Police Office direct to the Superintendent of Police, Alwar. 11. Notices of proclaimed offenders god other matters affecting the prerention and detection of crime, which the Alwar State desires to circulate, shall be sent direct to the Oce of the Inspector-General of Police, Punjab, for publication in the Police Gazette. 12. The Deputy luspector-General of Police and the Council of the Alwar State shall ween then, to ascertain any difficulties co-operation above suggested, and to - grise between the British Police and ' 1 1 . 1:1 M. B-hah 1 ptr pund the Sonntendent - purely through the Deputy Commissioners, or Political A gent, as the case may be. 14. In all cases, occurng near the border, in which subjects of British India and subjects of the Alwar State are concerned, the Officers in charge of the police stations concerned shall meet on the scene of the offence and render one another assistance. THE CRIYAL TRIBES. 183. The criminal tubes of Rajputana appear from the files in Alwar to have first attracted the attention of Government about The spathy of the Dar. bar in dealog with the 1893, when it was recognized that measures for their crimidal tribes control were generally necessary throughout the province. The Moghias, or Baoriss, appear to hare first attracted attention, and "Rules for their Special Control in times of Scarcity" Tere formulated. These rules, so far as Alvar yas concerned, rere approred by the Durbar, but they were never acted upon and became a dead letter, .tinn of the raggi and Dacoity, for the control of e a small Agency secure the proper introduction and user'Yalice VI werer, objected to this course, ostensibly on the ground that the presence of Thaggi and Dacoity Oficers at Alwar vonld only produce friction with the local Police. A committee of local officials was convened at the same time to consider the new rules, and 1 1... cand thoir riatrs on record in unmistakablo langilige. They '. for the purpose, and finally that the control of the crime Hivy me ar State had always beer satisfactory. In other words the nery rules there considered to be altogether unnecessary and since 1894 the policy of the State, rith reference to the ineffectual attempts of Government to establish some kind of control over the Rajpatana criminal tribes, has been uniformiz dominated by the consertatiro spirit erinced ·52 by the committee. At times reluctant acquiescence has been grudgingly conceded in certain matters connected with the system Government has striven to introduce, but anything approaching spontaneous co-operation, bred of an honest desire to further the project, has been all along conspicuously absent. In July 1895, a schedule, drawn up by the Government of India, tabulating the defects, observed by the Officers of the l'haggi and Dacoity Department in the working of the system for the settlement of the Moghias in Rajputana, was forwarded to the Durbar, but no action was taken on it beyond forwarding it, for future guidance, to the Magistrate and Superintendent of Police, and it was filed as so much faste paper. In August the same year, copies of the bilingual Manual for the Control and Reclamation of Criminal Tribes in Rajputana yere received in the State, but no orders issued, nor was any action taken with a view to giving effect to the rules for over a year. Ultimately, after innumerable letters and reminders from the Political Agent, the Superintendent of Police was appointed Motamid, on 27th November 1896, under rule 3, for the purposes of the Manual; but the fact that the rules contemplate the Motamid being an official specially appointed with the triple authority of a Police Officer, a Nagistrate and a Revenue Officer was entirely overlooked. The Superintendent of Police was informed that he had been appointed Motamid and tras instructed to “study the Manual carefully and arrange for the submission of the periodical returns." In January 1897, the Agent to the Gorernor-General in Rajputana dret the attention of the Durbar to the fact that the second rule in the Manual required the tribes and castes, to be brought under control, to be specifically proclaimed as criminal tribes, and directed that this should be done. In reply, howerer, the Durbar represented that as the Minas were already effectively controlled in accordance with local rules, there appeared to be no necessity to further subject them to the operation of the Manual. In April 1897, the Agent to the Governor-General intimated that, “in the circumstances represented, the Minas, who are already under special restrictions, need not be brought for the present under the Criminal Tribes Rules," but at the same time he considered that it was necessary to notify the application of the rules to all Sansis, Kanjars, lſultanis and Baorias, who were resident in the State, or who might thereafter take refuge in the State. Nothing, however, as done in this direction until 14th July 1897 when, on the Agent to the Governor- General calling for a copy. of the Council's notification proclaiming the tribes, an order Tas hurriedly issued declaring Sansis, Kanjars, Dſultanis and Baorias to be criminal tribes in the State. At the end of August the same year, a clerk in the office of the Council was, at the instance of the Political Agent, appointed special Police Officer for three months to enumerate and register the members of the four proclaimed tribes, and in February 1898 it was reported that, of the four tribes, there were only Baorias numbering 339, residing within the limits of the State. These Baorias were duly registered in the manner previously adopted in the case of the chokidar llinas, and they hare since been treated, not in compliance with the Manual prescribed by Government, but in accordance with the old local rules. 134. The local rules, consisting of 33 in number, were drawn up in 1873 by Captain T. Cadell, V. C., who was then Political Agent in the State. Roughly, they provide for the preparation of registers of the chokidar Mlinas, the introduction of roll-calls, the imposing on lambardars and patwaris the responsibility of reporting absentees, the disarming of all Minas, other than chokidars, and various other matters. The disarming, however, was never effected. In 1876 fresh rules for the surveillance of the Minas were formulated locally on the basis of the Criminal Tribes Act. On the Foujdar, who then combined the office of Magistrate and Superintendent of Police, was conferred the responsibility for introducing and enforcing the new code, but I cannot ascertain that any action was erer taken by him in the matter whatever. These were the rules referred to by the Durbar in addressing the Agent to the Governor-General in 1897. The local rules.

·53 135. In the early part of 1903, Mr. Seagrim, District Superintendent of The proclaimed, Police, Central Provinces, brought to notice instances of extensive depredations committed by the Minas of Alwar in distant parts of the country, and on 8th May 1903, at the instance of Colonel Fagan, Political Agent, the Council passed a resolution declaring all Minas, other than cultivating Minas, to be a criminal tribe, the names of cultivating Minas found to be of bad character were also directed to be placed on the register after sanction obtained in each case from the Council. The practical effect of the resolution has so far been nil. The proclaiming of the chokidar section of the Minas to be a criminal tribe was tantamount to directing their subjection to the operation of the Government Manual, but the interest of the administration ceased with the notification 186. The above résume briefly outlines the proceedlings of the Alwar Bersoon of falure of the Durbar in connection with the criminal tribes of the State. Polen. So far, with the exception of the submission of periodical returns, the rules laid down in the Manual for the Control and Reclamation of the Criminal Tribes have been ignored. They'i conservative organism of the State, and moment that the ultimate object of ap' official to enforce the joint police, magisterial and the revenue functions, contem. plated by the system, as stultified by perfunctonly conferring the additional title of Matamid on the Superintendent of Police. That Official's leisure has always been amply occupied in attending to the routine of his own department and nonnihad him hann ould 7. TO re. bis unce ich were ultimately found uw bu useless and were swppeu. Duce Le reurganization of the Police, the system of closer supervision, maintained from head.quarters on the working of the department, demands the increased attention of the Superintendent, and he is now consequently even less able than formerly to satisfactorily perform the complex duties of Motamid of the Criminal Tribes. 137. The rules locally in force in Alwar have been characterized by the Special Datamid unsatisfac- ,quired, orked, most eminently unsatisfac are to be introduced into the State in their entirety in future, a properly constituted and fully empowered Motamid will be required. The tribes now proclaimed to be chminal tribes in the Alwar The triber proolised. State are Buoras, Sansıs, Kanjars, Multanis and the chokidar section of the Minas, the latter of which largely preponderate in numbers. 139. The Cengas Reports show, what is apparently a fact, that there are not, and never have been, ang Multanis within the territories of No Mattania in Alwyr 1 77 they were ordered to be notified on the assumption of there possibly being members of the class in the State. However this may be, there can be little doubt that this class do not reside in, or frequent, Alwar territory, and they may, therefore, be safely expunged from the list. 140. Of the remaining four proclaimed tribes of the State, the Minas and Baoria, may be classed together as residential tribes, as opposed to the Sansıs and Kanjars, who are essentially Wanderers on the face of the sarth, with no ostensible means of þvelihood and do Bendential and wander ing tribes, ·fixed habitation. To the first two the rules contained in the Manual are entirely applicable, for their fised babitations afford a basis for working, but the settlement of the tro latter tribes, the Sansi and Kanjar wanderers, presents a problem bristling with difficulties, the solution of which has long and unsuccessfully been sought in other parts of India. 141. The last census report shows that there are & Distribution of the Mines, total of 49,245 Minas in the Alwar Stüte and of these 25,686 are males. Of the total of 25,686 males, 3,221, or 12 per cent., are registered at the police stations, and the large majority of them, namely 2,358, belong to the chokidar section of the tribe. Roughly speaking, the Minas inhabit a broad band of country extending along the western and southern border (the Jaipur border) of Alvar and comprising the Behror, Bansur, Thana Ghazi, Rajgarh, Lachmangarh and Katumbar Tehsils. With the exception of the Tapukra jurisdiction in the extreme north-west corner of the State, none of the police station areas are altogether free from them, but the north-eastern portion of the Stato, comprising the Tijara, Kishengarh, Ramgarh and Gobindgarh Tehsils, enjoys comparative immunity from their continued presence, if not from their occasional predatory incursions. 142. The precise origin of the Minas is doubtful. By some writers they are thought to be tho ahoriginal inhabitants of the country, The biktor ; of tho Hinna. and there can be no doubt that at one time they hold sway over a large portion of the present Jaipur State, in which neighbourhood, even at the present day, they are found in the greatest numbers. The Minas themselves claim Rajpnt descont, but the Rajputs indignantly deny the relation. Mr. Ibbetson remarks that the claim of the Minas to Rajput descent is probably well founded, though they are said to spring from an illegitimate son of a Rajput, and to this circumstance is attributed their name of blina, the term “Mina or Melina dena (literally, to taunt) beng a slang expression of reproach, used by one woman when accusing another of illicit intercourse. 143. The tribe is said by Colonel Todd to be divided into 32 distinct clans, only one of which, however, the Osara, has preserved & pure genealogy, but in later days the tribe, as a whole, has become broadly divided into two main classes, the zamindar or agricultural class and tho chokidar or watchman class. The latter class, though by far the smaller in point of numbers and infinitely the worst behaved, affect a superiority over their more peaceful agricultural kinsmen, considering themselves, with no apparent show of reason, to be soldiers by profession. In some parts the chokidar section seek to widen the distinction between themselves and the agricuiturists by maintaining a right to take daughters in marriage from the agriculturists, and at the same time refusing to reciprocate by giving their own daughters in marriage in return. Maharaja Banni Singh, who ruled in Alwar from 1815 to 1857, fearing lest the association of the thietish chokidars should contaminate and corrupt their more peaceful agricultural brethren, forbade intermarriage between the two entirely and sought to prevent their even smoking and meeting together, but the measure was not successful, though it had the effect of emphasising the distinction between the two classes, Tribal distinctions. 144. The division of the tribe into these two classes is, however, of recent date, and is really an artificial distinction which, starting in The Hinat one tribe. the first instance with divergence in the matter of profession, has gradually come to be recognized as a salient feature of the tribe. The chokidar profession among the Minas is by no means of ancient origin and dates back only about a hundred years, when an effort was made to reclaim the disreputable portion of the community by settling them on the soil and at the same time constituting them watchmen in the villages. It was then that they came to be known as chokidars, and it has since been very largely owing to the temptations of the "razinama system," attaching to their functions as village wacthmen, that their thieving propensities have been vastly encouraged and the attempt to ·teclaim them, by presenting them with land on easy terms, has entirely failed, I bave already, in the earlier part of the report, briefly outlined the working of the "razinama" system, and if the great temptations to crime attaching to it are not responsible for organized predatory excursions to far distant parts of the country, that system is most emphatically answerable for habitually leading members of the chokidar fraternity into crime nearer home and for fostering in that way the criminal traditions, and propensities of the tribe. I have heard it denied in Alwar that the Midas' of the State do depredate in distant parts of the country, but, although the numbers who indulge in these extensive excursions comprise probably but a fraction of the whole tribe, there can bo no doubt that the more adventurous spirits of the community do systoen ny thanh -- را با هم بالا با ما & € LUL LUULUU) 1.5 pur cent of the registered chokidar fraternity and to about .19 per cent. of the whole tribe. Probably the majority of these 50 men are away in other parts of India, and there is no means of knowing how many more of the zamundar Minas are absent and similarly engaged, for no register of that section of the tribe as maintained. 145. As far back as 1872, Captain Cadell recorded his opinion that there was but httle difference between the Zamizdar Minas and Cuptaza Cadell'a opinion, the Chokidar Minas, and that many of the former wors agrculturists only in name and in reality were thieves. That statement still holds good. There are no doubt a number of Zamindar Minas who have settled down and are living an honest life of agriculture, and it would be a grave mistake to interfere with them in any way, but, on the other hand, there are A number of sn.called agriculturist Mnas. who habitually engage in crime, and who are yet excluded from control merely because they do not follow the chokidar calling. There being no register of these men, it is impossible to know how many of them are away from home, or to check their movetaente. 146. The case of the Minas of Shahjahanpur may be cited in support of the argument that crime is not confined to the chokidar HICAS of Shabfabanpur section of the tribe. This small island of British territory, story, the inas, who are known neither as zata The Rystem of employing Minas as chokidars has never been allowed a footing in British territory, and the distinction between zamındars and chokidaro, which has become almost a trbal feature in the Native States, 28 not to be found anywhere in Gurgaon although the Minas inhabiting that district belong to the same Goths as those of Alwar and the other Rajputana States. The Dinas of Shabjabanpur are ostensibly supposed to live by cultivation, but it is very w+ll known that their well-built houses of stone, some of them with carved doorways, and their c.mfortable circumstances, generally are the fruit of well-planned and successfully conducted depredations all over India; indeed the village of Shahjalaspar not only furnishes the leaders of most of the gangs departing to distant parts, but the inhabitants of that stronghold of crime are generally regarded by their brethren in Alwar as skilled exponents in all matters apper. taining to the art of thieving. At the present time the list of absentees from Shahjahanpur contains, I believe, 53 names, but some of these men bare not been heard of for many years and are thought to be dead. So far as I have been able to ascertain, 16 of the 58 are known to be down somewhere in Southern India, 147. It is, I think, clear that there is no sufficient warrant for the hard distinction which has hitherto been allowed to grow up between the Zato adar Ainas and Chokidar Ninas. The former are not all inocent any more than the latter are all guilty. They constitute in reality, one tribe, the one section being only a little less criminal than the other, and I attnbute this slight No racial diflarence her tween Zamiodare ond chokidara, ·56 distinction to the fact that the Zamindar Minas have not in the past been subjected to the great temptations which have beset the chokidar section of the tribe. 148. Much has been done during the past year towards diminishing thesh temptations. The razinama system has been Steps towards gottle abolished in the Ghatas and towns of the State, and although Dont of the tribe. the attempt to similarly root it out of the villages was not successful, yet the system no longer holds its place as the high arbitrator in criminal matters. It has at least had to change places with the system of exhaustive local Police investigations, directed towards the detection and punish, ment of offenders. The investigations not come first, instead of being relogated to the back ground, and the matter of compensation comes afterwards, and even in this secondary position it has been as much discouraged during the past year as possible. This alteration in the order of things has taken the control of the working of cases completely out of the hands of the chokidars, ybo are now ng longer able to draw a veil of mystery over their proceedings, Again the imposing on chokidars the extra responsibility of pointing out the thief, or thieves, in all cases in which stolen property is recovered by them, on pain of prosecution under Section 215 of the Indian Penal Code, has effectually put the closure on those members of the fraternity, who dabbled in crime, committing offences themselves and instigating the commission of offences by others, with the object of profiting from "Mehr Khali" extorted for returning property stolen. Finally, inquiries into the character and antecedents of, and the preparation of lists of, bad characters and known receivers of stolen property has not only to a great extent laid bare the ramifications of criminal organizations, but have in numerous instances formed the basis for action against the worst characters under the security sections. 149. These measureş bave had the effect of considerably altering the posiz tion of the chokidars in their relations to village communities Effect of tho measures and they are no longer, I think, the terror in the land that po Minas. they were. The explanation of the increasing number of resignations on the part of chokidars would appear to be that the profession is becoming unprofitable, and again the increasing number of applications from Lambardars and villagers, requesting the removal of chokidars and their expulsion from the villages to a distance, would seem to indicato a growing sense of trust in the new régime and an increasing disregard of the Minas capacity for revenge. Another satisfactory feature in the attitude of the Minas. at the present time is their expressed desire in many parts of the State for land. "Not long ago the Minas of the Bansur jạrisdiction, which contains nearly 2,000 of the tribe, of whom 694 are chokidars, met together and after agreeing to eschew their former evil ways, sent in a widely signed application for land to enable them to settle down. The Minas of the Mandavar jurisdiction, altogether 570 in number, of whom 328 are chokidars, have similarly expressed to the Deputy Inspector their willingness to cultivate if given the opportunity, and I understand that the members of the tribe in other parts of the State would be equally glad to settle down if again they are afforded the chance. 150. The time, I think, has never been so ripe in the Alvar State for dealing with the tribe as at the present moment, and I Tirgo ripo for settlement feel confident that much might now be done in the direction of the tribes. of reclaiming them. During the latter portion of my time in Alwar, I was anxious to undertake the settlement and registration of the Criminal Tribes, and of the Minas in particular, in conjunction with one of the Revenue Officials of the State, not because the work formed any portion of the reorganzation of the Police, but because I found, in the more amenable attitude of the Minas, an opportunity which should not be lost and because I saw in my hold on the new Police Force the means of carrying the measure through. Į approached the Durbar on the sąbject as far back as March 1904, after an extended tour round the State, and then in June, after consulting with the Senior Member of Council and the Chief Revenue Officer, I again wrote requesting that certain broad lines of procedure, which I proposed in connection with the matter, might be considered and suggesting a conference of officials to discuss the yhole question, but unfortunately I was unable to proceed further in the matter, ·37 3 My proposals were broadly to the following effect- (1). To assciate Sirdar Amar Singh, Deputy Collector, with the Police in the settlefront and registration of the Criminal Tribes. (2). To transfer the pricipal offenders from the village, where they have obtained an undesirable hold on the Lambarlars and people, and to settle them on land at a distance, and to, as far as possible, move known offenders from the borders of the Stato to specified areas in the interior, so as to bring them more immediately under control. (3). To resume the State “mafi” land at present in possession of the chokiders (this course was recommended by Mr. O'Dwyer) ard to redistrbate it, on casg terms at first, to the Minas as occupancy tenants, and to further open up other lands now lying waste. (4). To furnishi " takarı" advances to those ryquiring them. (5). To abandon the present unwarranted distinction between Zundar and Chokidar Minas, and, treating the tribe as a whole, to differentiate between the “ Cruinals” and tho "non-Criminals." To subject the former to the restrictions of the rules and to allow the letter an honourable freedom so long as they individually behaved thomselves. (8). Tu register the whole of the tribe as the Settlement proceeded. (%). To exsue a proclamation calling on all members of the Criininal Tribes to surrender their arms at the police stations witlom a month on pam of beavy penalties. (8). To give effect to Rulo 16 of the Manual at every possible opportunity. 'It was with extreme regret that, from want of support, I was compelled to abandon the project, which notwithstanding the labour it wonld hare entailed, I feel confident I could have brought to a satisfactory conclusion. 151. Tho last Census Report shows that there are a total of 1,172 The Maoriae Baorias, or Bioris, in the State, of whom 606 aro males. -Altogether 380 are registered at the police stations and aro subjected to the same restrictions, under local rules, as the Minas. Six Baórias are, at the present time, absent from their homes without leave. 152. The Baorias, like the Minas, claim Rajput descent, the story of their Their history. origin being wrapped up in a romance of a Rajput princess who, ratler than espouse a Muhammadan Emperor of Delhi, throw herself into a well and was drowned. The Baorias aro raid to be the descendants of the princess' Rajput cscort, who, after her death, remained at the fatal well, took to plunder and became known as the "Baori-wallahıs," from "Baori" meaning a well. 153. The Baorias of the Alwar State belong to the Panwar (120), The Gotbo of the Baorias Solanki (163), Chohan (36), Rathors (43), Latoria (28), Brlonın (20), Nagori (19), Charan (11), Badgujar (10), Kotea (5), Mewati (4), Bagri (4), Regliani (4), Shadra (2) and Dhondal (1) goths or clans of tho tribc. In point of criminality theru is not much distinction bettyéon'them, but they do not, so far as I am aware, go far afield, and they certainly do not possess the capacity for secret organization displayed by the Minas, nor exhibit the same degree of intelligence and cunning. 154. The Baorias were declared a Criminal Tribe in Alwar in 1897, and At present subject to were indifferently registered and placed under the local rules. The fact that only 380 out of 606 males in the State are registered seems to call for some explanation; it can scarcely be that thero aré 226 male children under age. As a tribe thio Baorias in Alwar are more amenable to disciplioc than tho Minas, and with proper measures there should be no difficulty in effectively controlling them under the system laid down in the Manual. 153. The control and settloment of the Minas and Baorias in llwar Badais And Kadjars presents no insurmountable difficulties, but the control and reclaination of the vagrant Sansis and Kanjars, who profess beggary and the prostitution of their women as their means of livelihood and moko no pretence of a fixed babitation, constitntes a problem which lns bitherto completely baffled administrative and executivo officers all over India. The precise origin of these classes has, I beliere, noter been definitely determined, although most writers agree that they arc from the samo stock as tho European gypsies and that they camo originally from Central Asis. of Alwar. local rules ·58 or Their principal places of rendezvous in the present day are in the neighbourhood of Aligarh, Meerut and Saharanpur, but the innumerable " deras ” camps, comprising from 20 to as many as 150 or 200 individuals of both sexes and all ages, and each under the leadership of its own headman, are constantly on the more, the length of their stay in any one place depending on the degree of forbearance displayed by villagers in submitting to their thefts and petty pilfering. The modus operandi of the different " deras ” varies considerably. Whereas the people of some " deras” are content to support existence by pilfering from growing crops and of grain from threshing floors, varied by the occasional manufacture and passing of counterfeit coin, those of other encampments systematically pursue a career of cattle-lifting and highway robbery, not infrequently attended with violence. The more active the “deras” in this respect, the more rapid are their movements and the greater are the distances they traverse. Being aware of their unsavoury reputation and the hand of the people being against them as theirs is against everybody, it is extremely seldom that they will admit their identity, but give out that they belong to other castes. They are easily "moved on," and at the first indication of the attention of the Police being turned in their direction, they usually tako to flight, and this characteristic is frequently improperly taken advantage of to get rid of them. 156. There are said to be over seven thousand Sansis and Kanjars wandering in Rajputana, and the last Census Report shows that, at the time when the census was taken, there were 25 Sansis, of whom 10 were males, and 188 Kanjars, of whom 106 were males, then in the Alvar State. These are the only figures available in respect to these tribes in the States, but I attach the following brief statement showing the “ deras” of Habura Sansis and Kanjars which were ascertained during the investigation of the Karnal Kanjar cases in 1895, to frequent the Rajputana States, for what it may be worth, and I may mention that there is every reason to believe the information to be reliable. Statistics. Name of leader of the Gang Sorial No. Number of tho mombord of the Gang. Name of Goth or Clan. Places frequented by the Gang. 1 1. Hardan 2. Badnu. .. 40 2 1. Shamsber 2. Roshania. 40 . 3 Mir Khan Bir Bal 32 40 Mabaish Jaipur, Jodhpar, Karoli States and Ajmir in Rajpatana. Rerrari and Gurgaon in tho Panjab. Do. Is one gang, bat occasionally divides into to deras, wben Shamsher dera Tyander in Almar Jnipar and Jodhpur while Rosbania's party visit Jaipar and Bikanir. Do. Bikapir State and Hissar in the Panjab. Do. Kheri and Neolgarh in Bharatpur Stato, Bikanir, and Rigsar in the Panjab. Kal Khur Bikanir State. Do. Rajputana. Gada Chando- Rajputana and Gurgaon and Rohtak Districts in the Panjab. Kal Khur Alwar, Bharatpur and Gurgaon. Do. Rajputana. I.. 5 6 SO .. SO 7 125 yara. 8 9 ... 20 20 ... . 10 Cheni Lal 1. Jaimal 2. Fatta. 1. Afimi 2. Posti. Bayya 1. Alia 2. Sarjia. 1. Gorji 2. Saba. Susa Phula 1. Khemla 2. Saljni. Karbali, son of Bhupla. 1. Balla 2. Johri. 30 Do. Rajputana and Gurgaon. 21 ... 12 60 22 ... Do. Do. Do. 13 Bharatpur and Alwar. Jaipur and Jodhpur. Rajputana and Gurgaon. 70 ... 14 15 Mabaish . Ditto. 15 80 Do. Alivar State. Total 754 ·59 The complete list contains altogether 59" deras” comprising a total of 3,279 individuals, but in the above list I have omitted those encampments which are not known to frequent Rajputana. 157. There are no Sansis and no Kanjars registered in the Alwar State, and, so far as I have been able to ascertain, there are no Control, individuals of either class with a fixed habitation in the State. Until the people of these wandering classes acquire, either voluntarily or by inducement, a fixed Jesidence, any attempt to settle or register them is useless, for they disappear from tho neighbourhood at the first possible opportunity. Efforts are made in the Punjab to have the gangs followed and watched as they move from one police station jurisdiction to another, but success cannot be claimed for the system. It was recently ordered that they should all be registered, but that measure must almost cortainly prove abortive, except in the case of the jsolated individuals who have acquired a fixed residence. The whole problem of controlling and reclaiming the vagrant classes of India, who own no immovable property, whoso " homes are on their backs” and who are not amenable to any kind of law or discipline, is probably one of the most difficult which has ever presented itself in the annals of criminal administration. T s would appear to be the removal c' of their parents and training t probably be objections to such a course in this 20th century. CONCLUSION. 158. I think I may venture to claim that the actual reorganization of the sapervidion Police of the Alwar State has been completed, and that the and anvistance required, system of working in all branches of the department has been reformed and brought into line with the acknowledged methods of the day. A year, however, is a short period within which to virtually create a new department, to settle systematically the working of its many parts so as to insure smooth and consistent working, to eradicate old and deeply rooted abuses and to inculcate methods of energy, perseverance and honesty, and while content with the progress and improvement which have become apparent during the past year, in the behaviour, working and general aspect of the Force, I feel that in gevering my connection with the Alwar State at the present time I learo much work undone and, at the same time, leave the accomplishment of the ultimate object of the past year's work in the hands of others. Whether the great promise of the Alwar Police is fulfilled depends not on what has been done in the past, but on the degree of care and solicitude with which the system, now well started, is fostered and oncouraged in the future. The reorganization was generally unpopular at the outset merely because it constituted a change from the old order of things, but there can be no doubt that the stead.ly growing influence of the new Force has been marked with a very decided decrease in crime and an equally welcome change in the opinion of the people of the State. There is no reason why this improvement should not continue but, on my approaching departure from the State, I would particularly impress on the Durbar that the new machine cannot be expected to continue to norintauna 4-1 supervision. It hether the great old abuses are At the present sincerely trust promise may be Continued without completely realized, Attention 159. Before concluding the report I will briefly enumerate certain Matters still requiring measures which, although touched upon dnring the reorganization, verenot satisfactorily, or only partially, concluded, and which still call for attention. (1) The abolition of the remains of the razinama system in the villages, vido paragraphs 102 to 114.

·60 (2) Better system of co-operation on the borders of the Rajputana States, vide paragraphs 124 to 131. (3) The careful observance of the Rules for co-operation with Gurgaon District, vide paragraph 132. (4) The settlement and re-registration of the Criminal Tribes; vide paragraphs 133 to 154. (5) The steady enforcement of the Rules for village responsibility, vide paragraphs 116 to 118. (6) The necessity for a Criminal Procedure Code of some kind, vide paragraph 121. (7) The necessity for an Arms Act, vide paragraph 123. (8) The early issue of summer uniform, vide paragraph 95. (9) The necessity for a new Police Officer in Alwar, vide paragraph 98. (10) The necessity for three new police station buildings and 14 outs posts, vide paragraph 97. 160. It is now my pleasant duty to acknowledge the courtesy and assistance which I have received from His Highness the Obligations. Maharaja of Alwar during the time I have served in the State, and to thank him for the interest he bas shown in the reorganization of the Police. Police. My hearty thanks are also due to Lieutenant-Colonel C. G. F. Fagan and Major P. T. Spence for much assistance and valuable advice, and to the three Members of Council for their cordial co-operation. 161. Klan Sahib. Muhammad Behram Khan, until recently one of the very best of our Punjab Inspectors and now Superintendent Superintendent of Police, of the Alwar Police, has once again proved his value duringthe reorganization, and the Alwar State is extremely fortunate to have secured ani official of such ripe experience and unswerving integrity. . My thariks are due to him for His great help. 162. The Officers of the Punjab Police; who were associated with me in Officers of the Punjab the work of reorganization, bave worked hard and willingly throughout and have ably upheld the traditions of the Force to which they belong. The work of introducing the new system, training and instructing all ranks in their duties and the strain of unremitting and minute supervision in all branches of the department was one calling for tact; patience and endurance to an extraordinary degree, and I cannot speak too highly of the manner in which these officers, my assistants, addressed themselves unflinchingly to the task. The work of reorganizing the Alwar Police and reforming the methods of working has been a great and valuable experience, necessitating the close study of all' branches of Police working, and specially selected as these officers were, they cannot fail to have vastly benefited from their past year's services. I make the following recommendations in their behalf and trust that the Inspector-General of Police, Punjab, will see his way to entertaining them. (1). Deputy. Inspector Habib Ali, 1st Grade, of the Jhelum District, I' very strongly recommend for promotion out of turn to the rank of Inspector. He returns to duty in the Punjab with me. (2) Deputy Inspector Ali Muhammad, 2nd Grade, of the Hissar District, has previously been recommended for promotion to Inspector in his own district. He is a young and extremely able officer and I very strongly recommend him for promotion out of turn to the rank of Inspector. His services, however, have been lent to the Stato for three years and he will not be due to return until 12th November 1906: (3) Deputy Inspector Kartar Singh, 3rd Grade, of the Ferozepore District, is recommended for promotion out of turn to the 1st Grade. His services have been lent to Alvar for threo years and he will be due to return on 5th February 1907. 1 ·61 (4) Sergeant Maula Rara Khan, 2nd Grade, of the Hissar District, is a thoroughly honest and experienced officer, who has hitherto been debarrod from well-inerited promotion by the Phillour rules. I consider him well fitted in overy way for the rank of Deputy Inspector, and I rocommend promotion for him accord. ingly. His services have beon lent to Alvar for two years and ho will be due to return on 11th January 1906. (5) Sergeant Abdul Aziz, 2nd Grade, of the Hoshiarpur District, is a capable and promising officer and has passed the Phillour test. It is kis turn for promotion, I understand, to Sergeant 1st Grade, but for his services during the past year I recommend that he should be allowed to jump the 1st grade, and be promoted to tho rank of Deputy Inspector. B18 sorrices are only lent to the State for one year and he is due back in the Punjab on 25th January 1905 With the exception of Deputy Inspoctor Habib Ali, the other four officers laro not yet completed their services in Alwar, but I beg to request that their rowards for their services raay not be delayed on that account. ALWAB: LIONEL L. TOMKINS, District Superintendent of Police. 15th October 1904.

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·TABLE OF CONTENTS. PAGE. 1 2 . . 3 5 : 5 5 G 6 7 8 10 . CHAPTER I. Constitution and Proceedings of the Committee (paragraplis 1 to 7) .. CELAPTER II. The Grievances of the Public in regard to the Protection of Goods (paragraphs 3 to 10) CHAPTER III. Tbo Evidence of Ollicial Figures in regard to Losses (paragraphs 11 to 16) CILAPTER IV. Tho Guarding and landling of Goods (paragraphe 17 to 30) Tatch and Ward - recruitment (paragraph 18) personnel (paragraph 19) strength (paragraph 20) discipline and organization (paragraph 21) recommendations (paragraph 22) (1) Tho Handling of Goode (paragraphs 21 to 29) handling contracts (paragraph 30) CHAPTER V. Mechanical Improvements for the Protection of Goods on Railways (paragraphs 31 to 39) (1) locking and riveting (paragraphs 31 to 31) (it) protectivo plates (paragraph 35) (in) lighting, fencing and shed accommodation (paragraphs 36 to 38) (iv) protection of parcels (paragraph 39) CITAPTER VI. Aliscellaneous (Railways) (paragraphs 40 to 48) (1) risk-notes, claims, etc. (paragraphs 40 to 42) (ii) thefts of fruit and liquor (paragraphs 43 to 41) (iii) thefts of railway material (paragraphs 45 to 48) CHAPTER VII. The Railway Police (paragraphs 49 to 53) (i) Personnel CHAPTER VIII. The Railway Police--contd. (paragraphs of to 71) (11) Organization (a) historical retrospect -- Bladras Bombay Bengal United Provinces .. Punjab Bihar and Orissa Central Provinces Assam North-West Frontier Province Balucbustan 10 . 10 11 12 12 44 C. 12 12 13 13 . 15 15 18 18 ) .. 19 19 20 20 21 23 23 23 24 .. - ·ü PAGE. CITAPTER IX. 25 26 25 28 28 The Railway Police-control (paragraphs 72 to 97) (ii) Organization--conld. (6) recommendations (1) The advantages of the provincial system (paragraphs 72 to 79) .. The English system (paragraph 80).. (2) The need for & Central Bureau (paragraphs 81 to 87) (3) The need for Special Detective and Investigating Agencies in the Provinces (paragraphs 88 to 90) (4) Administration of the Railway Police within the Province (paragraphıs 91 to 91).. (0) Training (paragraph 95) (0) Strength and Reserves (paragraph 96) (7) The need for a uniform Janual (paragraph 97) 31 33 . 34 3.) 35 CHAPTER X 36 36 37 The Working of the Railway Police—some criticisms and suggestions (paragraphs 98 to 113) (1) Criticisms by railway oficers (paragraphs 98 to 101) (2) Relations between railway adininistrations and the police (pararaph 102) (3) Co-operation between the district and the railway police (paragraph 103) (4) Reporting of shortages (paragraphs 10.1 to 108) (5) Seal-checking (paragraphs 109 to 110) (6) Issue of fire arms to the railway police (paragraph 111) (7) Thefts from unbooked goods (paragraph 112) (8) Thc porer of search (paragraph 113) . 38 38 40 .. 41 41 41 CHAPTER XI. 41 42 .. The Protection of Passengers (paragraphs 114 to 119) Pilgrim Trafic (paragraph 119) CHAPTER XII. (0) Summary of recommendations (paragraph 120) (ii) Conclusion (paragraph 121) 43 44 APPENDICES. 45 58 7 59 59 APPENDIX A.-Itinerary of the Committee's Tour and list of ritnesses crimined .. B.-Paragraph 48 of the report of the Railway Police Committee, 1907 .. C.-(1) Extract from paragraph 103 of a “Statement of the case into which the Police Commission is to enquire” forwarded to the Government of India with letter no. 9388, dated the 23rd October 1902 from the Central Provinces Administration (2) Extract from letter no. 22, dated the 1st September 1902, from the District Magistrate, Sukkur, to the Commissioner in Sind D. Statement showing the strength of the Railway Police and crime dealt with during 1919 E.-Statement showing crime classification according to the six classes of offences, 1915 ard 1919 F.-Statement showing cases of thefts from goods trains, etc., reported during 1915 and 1919. G.Statement showing goods earnings and compensation paid and strength of March and laid staff on Railways 11. Statement comparing the work of Railways in 1902 (date of Police Commission) and 1919-20 . 60 62 22 64 66 67 ·CHAPTER I. CONSTITUTION AND PROCEEDINGS OF THE COMMITTEE, The Committee was appointed under Home Department Resolution No. 114 (Police), dated the 13th January 1921, which ran as follows :- " The Governor General in Council has decided to appoint a Committee to examine the existing organization and working of the Railway Police administration in Ind.., which appears to be defective in certain respects, and to make proposals for the improvement (where necessary) of this branch of Police administration. 2. The constitution of the Committee will be as follows 1 Presi lent. MR J.P. THOMPSON, CSI, Chief Secretary to the Government of the Punjab. Alembers. Mr. H DEL Ross, Deputy Inspector-General of Police, Railways, United Provinces. MR F. W. HANSON, CIE, late General Traffic Manager of the Bombay, Baroda and Central India Railway, and once a temporary Member of the Railway Board. Rao Bahadur RANGO GOVIND NAIK, M.BE , Pleader, Belgaum (Bombay). Rai Bahadur UPENDRA LAL RAY (Bengal) Me.C. ATKINS, Daulatpore Factory, Turhoot, Bengal and North-Western Railway. MR. H. C. HUNT, Indian Police, Secretary, The Committee will have power to co-opt additional members in any province if thought advisable. The Committee, which will submit its report to the Government of India, will assemble at Delhi at an early date and then visit the various provinces of India. 3. The terms of reference to the Committee are as follows: (1) To consider whether the arrangements now made for the protection of travellers and property on railways in India are effective, (2) If the arrangements in question are ineffective, to report how far the shortcomings are due to (a) defective organization, (6) defects in the personnel, (c) defective methods of investigation, (d) defective arrangements madefor the protection of passengers, (12) for the protection of goods in transit or for the protection of property at goods and transhipment sheds and station yards. (3) To make such recommendations as may seem calculated to mltigate or remove any defects that the Committee may discover, or as may seem otherwise germane to the objects of the enquiry. Questions of pay will not form part of the enquiry. 2. It will be observed that the first paragraph of the Resolution refers only to Railway Police administration, while the terms of reference include the consideration of the arrangements made for the protection of goods 2 transit and in goods sheds and station-yards. These arrangements are at preseut made entirely by the railways, and the Committee have assumed that it was the intention that they should examine all the arrangements made, whether by the railways or by the police, for the protection of passengers and goods. 3. The Resolution appointing the Committee gave them power to co-opt additional members in any province of thought advisable. The only provinces in which members were co-opted were Madras and Assam, where the local Government nominated, respectively, Dr. Williams and Mr. Giles, Superintendents of Railway Police. The feeling of the Committee was against co-opting local members, but they complied with the wishes of local Governments wherever the latter expressed a desire to nominate an additional member. 4RPC ·2. 4. Mr. Ross joined on the 16th of December 1920, and did a certain amount of preliminary work before the arrival of the President on the 7th of January 1921. Messrs. Hanson and Atkins joined on the 15th January, Rao Bahadur Rango Govind Naik on the 18th, and Rai Bahadur Upendra Lal Ray on the 19th. Before the Committee left Delhi, lists of questions were framed and issued, and local Governments and Railway administrations were addressed with a view to the selection of official witnesses, and the issue of invitations to commercial associations. Notice of the movements of the Committee was given in the Press, and persons interested were invited to favour the Committee with their views. 5. The itinerary of the Committee, including a list of the witnesses examined, is given in Appendix A. In the course of their tour, the Committee held 43 sittings for the examination of witnesses. They examined 69 police witnesses, 77 railway witnesses, and 85 non-official witnesses including representatives of twelve Chambers of Commerce and twenty-one other Associations. The nonofficial witnesses represented several thousand firms and businesses interested in every kind of commodity transported by railways in India and ranging from the Tata Iron and Steel Company and Messrs. Ralli Brothers down to small retail traders in the bazar. The Committee also inspected 30 parcels and goods offices, goods sheds and transhipment stations, 17 Railway Police stations and 6 Railway Police offices. 6. Local Governments for the most part have preferred to await the publication of the report before expressing their views on the various points considered by the Committee. The Governments of Bihar and Orissa and Assam and the administration of the North-West Frontier Provinco have given us their views on certain questions, and the Punjab Government has expressed general approval of the opinions of the provincial Inspector-General. 7. The Committee regret that some of their Members have been unavoidably absent for considerable periods from their meetings and deliberations. Mr. Atkins was called away on the 2nd March owing to labour troubles in Bihar, and did not join again till the 9th of May. Rai Bahadur Upendra Lal Ray was absent from March 23rd to April 11th partly on private business and partly in order to attend meetings of the Bengal Legislative Council, while reasons of ill-health deprived the committee of the assistance of Rao Bahadur Rango Govind Naik, M.B.E., fronı 6th to 27th February, March 24th to April 3rd, and April 11th to May 12th. CHAPTER II. . THE GRIEVANCES OF THE PUBLIC IN REGARD TO THE PROTECTION OF GOODS. 8. It is the public who suffer most from theft on the railway, and it was a complaint from the Upper India Chamber of Commerce that ultimately led to the appointment of the Committee. It seems appropriate therefore that the grievances of the public and of the commercial community in particular should be given first place in a discussion of the arrangements made for the protection of goods on the railways. 9. The case as represented to us is that theft and pilferage* from goods in transit are on the increase; that they have attained a magnitude which reflects serious discredit on the police and railway administrations; that in regard to a large portion of the goods traffic the railways are so completely protected under the different forms of risk-note that they are careless of the interests of the public, and that conditions exist and are allowed to continue wbich make theft and pilferage both easy and safe. As to the nature of these conditions, we mention briefly those in regard to which we have heard complaints in practically every part of India. Much of the thieving, it is alleged, is done by the railway staff. There is no i effective supervision, and the misdeeds of those below are winked at by those who are supposed to control them, Purely mechanical methods of protection, again, are'ignored. A loaded wagon is secured by a piece of string. Goods yards are generally thoroughfares. They *The term pilferage is used to mean abstraotion of a portion of the contents of a package. Theft means the removal of one or more whole packages, ·܀ 3 are for the most part badly lighted and imperfectly protected by fencing. The shed accommodation is as a rule inadequate, and the consignments lię about at the mercy of the evil-disposed. It almost seems as though the convenience of the thief was consulted in the construction of the wagons. Projections and attachments enable him to board them in motion. In some of the older wagons, manholes help him to gain access to the contents. The flap door when closed admits of the insertion of a knife by means of which bags are slit,* and the same method of extraction is used through the crevices of wooden floors, while the contents of open wagons are an easy prey. Delays in transit, too, are now general. Each day that the goods are allowed to lie booked or unbooked in the yard before despatch, each day that they are detained at transhipment stations, each halt by the roadside and each shunt into a siding means so much more exposure to depredation. And in face of all this, it is claimed that the railways and the police do nothing, Dishonesty on the part of railway subordinates is said to be encouraged by superficial enquiries and inadequate punishments : they are allowed to protect and screen themselves by insisting unreasonably on risk-notes and clear receipts, and to burke complaints by a refusal of open delivery where theft is suspected As for the police, their work is marred by a desire to shirk responsibility, difficult investigations are not pressed home, and culprits are rarely brought to book. 10. Some of the witnesses we have heard have given us rough estimates of the extent of their losses. The representative of the Tata Iron and Steel Company said that of the consignments of fruit, fish and vegetables to the industrial colony at Jamshedpur, scarcely one per cent reached their destination intact. The Mysore Chamber of Commerce stated that one-half of every consignment of coal was pilfered by women who carry their spoil away openly in baskets. A firm of provision merchants in Bombay estimated that 10 per cent of their consignments suffered. At Chittagong a professor who is interested in a co-operative society informed us that if they could get their consignments through without loss, it would mean a saving to their members of 25 per cent. The representative of the Indian Tea Association, the members of which import large quantities of rice for the use of the garden coolies, stated that until recently 20 per cent of their consignments had been pilfered. In the United Provinces thefts of fruit were so notorious that the local Government itself moved in the matter, and in the instructions which -P-ly gazette of Juno of fresh fruits can 27 11 .. תו -- זיייתי : AL. CHAPTER III. THE EVIDENCE OF OFFICIAL FIGURES IN REGARD TO LOSSES. 11. Some of the charges set forth in the last chapter it is unnecessary for us to discuss. The delays in transit are due to shortage of rolling stock, and the defects in wagons largely to the difficulty of replacing or improving old stock owing to the war. But it cannot be denied that soveral of the counts in the indictment are true. In this chapter, we shall show how far the official figures for claims, - it and growth of specific charges (1) inefficiency and dishonesty on the part of subordinates and lack of supervision, (ii) neglect of mechanical means of protection, and (iii) indirect encouragement of theft by the risk-note system, etc. After discussing the case against the railways we shall proceed to consider the criticisms made against the police. * Many wagons are now fitted with protective plates which make this impossible, but thare are still a large number not so fittad, ·4 12. There can be no question that losses by theft and pilferage bave increased. So far as the increase is due to causes other than those into which it is our duty to enquire, it is generally attributed to the rise in the cost of living. No statistics are available to show the full extent of the evil, but in ten years the amount paid in compensation by seven of the principal railways has risen from 11.95 lakhs to 70.27 lakhs. In the same period the goods earnings on these railways rose from 25:37 crores to 38 44 crores. In other words an increase of 52 per cent in the goods earnings was accompanied by a rise of 488 per cent in compensation and the percentage of the goods . earnings paid in compensation rose from ·47 to 1.83. The bulk of the increase has occurred since 1917. 13. We have not been able to obtain from every railway statistics of the number of cases in which loss was reported, but the following figures have been supplied by five of the largest systems :- NUMBER OF CASES IN WHICH LOSS WAS REPORTED, Tailways. 1909.10. 1914-15. 1919-20. North-Western (excluding Karachi and Quetta districts) 33,179 105,948 Bengal-Nagpur 3,000 10,124 . . Bombay, Baroda and Central India (excluding metre-gauge) 36,844 60,572 Great Indian Peninsula 27,938 61,688 East Indian 44,789 100.819 In six years, the number of reports has risen 64 per cent on the Bombay, Baroda and Central India Railway, 125 per cent on the East Indian and no less than 244 per cent on the Great Indian Peninsula. On the North-Western and the Bengal-Nagpur lines, the number has more than trebled in ten years. 14. These statistics, however, require some explanation. They include a number of claims and reports which have nothing to do with theft or pilferage. The amount paid in compensation covers damage to goods by fire, water and accident, and loss by misdespatch and misdelivery. From 15 to 20 per cent should probably be allowed on this account* Then again owing to the rise in prices, the 488 per cent increase in compensation means a much smaller increase in the quantity of goods lost, and there is evidence to show that claims have received an artificial stimulus from the growth of claims agencies. Similarly, in a large proportion of cases in which goods are reported lost, they are found on enquiry merely to have been left behind or misdirected or carried beyond their destination. On the other hand, much is lost for which compensation is never claimed. The goods may have been sent at owner's risk, or a clear receipt may have been given before the loss was discovered or the owner may not think it worth while to make a claim. It is impossible to estimate the amount of the losses for which no claim is made, but the total must be very large indeed. 15. The Police figures of reported crime show that thefts from running goods trains increased from 6,898 in 1915 to 11,227 in 1919, and thefts from goods sheds and transhipment stations from 4,479 in 1915 to 7,476 in 1919. Convictions in the former were 336 in 1915 and 598 in 1919, and in the latter 989 and 1,778, respectively. * In two successive years the percentage on the North-Western Railway averaged about ll and on the Bengal and North-Western Railway 22.

·5 The odds therefore taking India as a whole, are nearly twenty to one in farour of the man who robs a running train, and it is not surprising that the occupation is growing in popularity. The railtrays themselves suffer as much as the public. Six hundred maunds of coal are said to be stolen every day at Asansol at the present time, and last year on the East Indian Railway alone thefts of mineral oil belonging to the Company amounted to nearly a quarter of a million gallons. We think the evidence justifies the conclusion that the total value of the property stolen on railways in India does not fall short of a crore of rupees per The number of offences, if all the petty pilferages are included, must run into millions. Of thosc, in 1919, only 33,333 were reported to the pulice and of the reported cascs less than 16 per cent resulted in conviction. 16. The figures are startling. Fortunately, the remedies, we believe, are simple. IVe accept the principle first laid down in 1882 and over since adhered to, that the railways must be held responsible for the safe custody of property entrust. ed to them, and in our view the present situation has arisen because the obligations which flow from that principle have not been sufficiently regarded. The problem is in the main one of prevention, and as such falls primarily witlun the province of the railways. annum. CHAPTER IV. THE GUARDING AND TANDLING OF GOODS. (i) Tatch and I l'ard. 17. We shall consider first of all the watch and ward staff, its recruitment, personnel, strength and organization. Each department has its own watchmen, Tut it is thosc employed by the Traffic Departınent for the protection of stations, goods-yards and goods-sheds with whom this Committee is mainly concerned. 18. Recruitment.—Traffic watchmen are appointed by the District Traffic Superintendent, or by station masters and traffic inspectors subject to his con. firmation. The character of the men is supposed to be verified by enquiry from the police after appointment and before confirmation. Other precautions ard sometimes taken. At Howrah, the candidate has to produce a suretz. On the South Indian Railway he has to get a recommendation from some official or private person of known respectability. It is not found possible to maintain lists of candidates as the men who apply cannot usually wait for employment. They are recruited from practically all castes, though streepers, chamars and members of criminal tribas are generally excluded. Most of the railway officers who have given evidence espress a preference for pensioners or at any rate for men who have served in the army or the police, and on several railways special rates of pay have been sanctioned for men of this class. 19. Personnel - On alnjost every line, the officials complain of the quality of the men employed. Pensioners are difficult to obtain and when obtained are often past trork. The other watchmen too are frequently old and decrepit, and unequal to personal conflict with able-bodied thieves. They are usuallr recruited in the neighbourhood and from the same class as the mental. They have friends among the local bad characters, and not infrequently combine with their old as30- ciates and the less upright of the station staff in theſt and pufferage. This is the picture as drawn lag railway officials themselves In Borrlay and Madras we were told by police officers of cascs in which ex-convicts and men who had been dismissed from the railway and the police were employer! as watchmen. In the United Provinces, an experienced superintendent saul they were mostly criminals. An inspector on the Bengal and Yorth-Western Railway says, It is an open secret that no chaukılar pays for luis foul lut helps Jimself". Lnother inspector classes them with the monuits whom he Irganils as responsible for all the pilferage that goes on. We have not been able to ascertain the total number of ratchmen convicted of theft on all th: Triltrays in India but the figures supplied to us by the police in Bengal, Bihar 101PC ·12. There can be no question that losses by theft and pilferage laye increased. So far as the increase is duc to causes other than those into which it is our duty to enquire, it is generally attributed to the rise in the cost of living. No statistics are available to show the full extent of the evil, but in ten years the amount paid in compensation by seven of the principal railways has risen from 11:05 lakhs to 70.27 laklis. In the same period the goods carnings ou these railways rose from 25:37 crores to 38:44 crores. In other words an increase of 52 per cent in the goods carnings was accompanied by a rise of 488 per cent in compensation and the percentage of the goods earnings paid in compensation rose from ·47 to 1.83. The bulk of the increase has occurred since 1917. 13. We have not been able to obtain from every railway statistics of the number of cases in which loss was reported, but the following figures have been supplied by five of the largest systems :- NUMBER Or CASES IN WIIICII LOSS WAS NIVOILTED. Kailways. 1909.10. 1914-15. 1919-20. North-TVestorn (oxoluding Karachi and Quetta districts) 33.170 103,948 Bongal-Nagpur 3,000 10,124 .. Bombay, Baroda and Central India (excluding mctre-snuge) 30,844 60,672 Great Indian Peninsula 17.938 61,088 East Indian 44.789 100.819 In six years, the number of reports has risen 64 per cent on the Bombay, Baroda and Central India Railway, 125 per cent on the East Indian and no less than 244 per cent on the Great Indian Peninsula. On the North-Western and the Bengal-Nagpur lines, the number has more than trebled in ten years. 14. These statistics, however, require some explanation. They include a number of claims and reports which have nothing to do with theft or pilferage. The amount paid in compensation covers damage to goods by fire, water and accident, and loss by misdespatch and misdelivery. From 15 to 20 per cent should probably be allowed on this account*. Then again owing to the rise in prices, the 488 per cent increase in compensation means a much smaller increase in the quantity of goods lost, and there is evidence to show that claims have received an artificial stimulus from the growth of claims agencies. Similarly, in a large proportion of cases in which goods are reported lost, they are found on enquiry merely to have been left behind or misdirected or carried beyond their destination. On the other hand, much is lost for which compensation is never claimed. The goods may have been sent at owner's risk, or a clear receipt may have been given before the loss was discovered or the owner may not think it worth while to make a claim. It is impossible to estimate the amount of the losses for which no claim is made, but the total must be very large indeed. 15. The Police figures of reported crime show that thefts from running goods trains increased from 6,898 in 1915 to 11,227 in 1919, and thefts from goods sheds and transhipment stations from 4,479 in 1915 to 7,476 in 1919. Convictions in the former Tere 336 in 1915 and 598 in 1919, and in the latter 989 and 1,778, respectively. * In two successive years the percentage on the North-Western Railway averaged about 11 and on the Bengal and North-Western Railway 22. > - ·7 +1 - 17 - 1 The police witnesses, - - scenes, are severe in their among the watchmen. O worst possible agency for supervision; another tells us that four-fifths of the crime comes from the defective supervision which at present exists. In several provinces we have been advised that the only remedy is to make over the duties to the police and we have heard repeated allegations that station masters use watchmen as private servants. We máy note in passing that this criticism by police officers is not irresponsible criticism as in almost every province they have shown themselves ready to back their opinion by arranging for patrols in yards with the object of keeping the watchmen up to the mark, although under ordinary circumstances this is no part of their duty. 22. Recommendations - The main defect in the watch and ward lies in the organization. There is ample evidence to justify the charge that the bulk of the Their protest Agento by a strong body of police opinion in Sind and Upper India. We do not recommend that this course should be adopted. We accept - the principle that the railways are responsible for the watch and ward of all property entrusted to their charge and any proposal to discard this principle would probably meet with opposition from all railways in India would, we believe, find considerable support among experienced police officers and we are convinced that the substitution of police for watchmen would lead to increased friction. We should prefer to see the railway companies organize and improve their watch and ward staff as a railway unit. Some of the leading railway administrations are already moving in this direction The Bombay, Baroda of a retired Deputy dward, the and on the North-Western Railway a scheme is under consideration. What we have to aim at is to make the chaukidar a real watchman with a single eye to the interests of his employer. It must as far as possible be made easy for him to stand against the local influences which at present envelop him, and lead him astray. It is quite unnecessary for this purpose to put him under police control What is required is (3) to take the control out of the hands of the station staff, and (11) to give the watchman a status which will increase his self-respect. Both these objects will be attained by the creation of single force of watchmen on each line. It will probably be found convenient to include the watchmen of all departments, the Locomotive, the Carriage and Wagon and the Engineering as well as the Traffic department, but this is not a matter on which we are in a posit1022 to make a definite recommendation as we have not examined representatives of those departments. The note supplied to us by Mr Hindley, the Agent of the East Indian Railway, expresses so well our own views in the matter that we reproduce it in full :-- "] Watch and Ward --The staff employed comes roughly under two heads First we have the ordinary departmental chowkidars or night-watchmen employed to watch T' 1 a determined aggressor "Secondly, there are the loosely organized bodies of chowkidars employed in the larger goods yards and sheds, such as at Asansol and Howrah They are employed under the T P. -- *In the Punjab, during the years 1918 1920, 4n8 railway servants were convicted-of these 134 were watohmen, 43 pointsmen, 31 clerks, and 197 'othera' (including guards, firemen, meqals, etc.)

·8 << “It is to be regretted that systematic thefts have occasionally been traced to individuals of this chowkidar staff and there have been other cases of actual collusion which indicate a necessity for improvement in control and discipline. Considering the large amount spent on this force and the good wages which are now being paid, I am of opinion that better results should be looked for and that it is necessary that the whole organization should be put on a better footing. " It is necessary to introduce better methods of recruiting and discipline and to strengthen the supervising staff. I would advocate that the whole of the watch and ward staff (except such as are essentially departmental) should be placed under a supervising staff of officers and subordinates torking as a separate Railway department. At the head of this branch it would be necessary to have a trained Police officer, who would be employed by the Railway and might: at first work directly under the General Traffic Manager. Without expert Police knowledge to guide the Railway officials in business of this nature, I do not think much can be done, but to ineet this difficulty I should like to have the services of a fairly scnior Superintendent of Police lent to the Railway for say six months in order to organize the new department, " It is probable that considerable economies might be effected in re-arranging the distribution of the watch and ward staff and clearly defining their work and duties and their relations to the work of other departments of the Railway. The Police Officer while on special duty in this connection would doubtless be able to give the Railway valuable advice as to improving other means of security of goods while in the hands of the Railway and by bringing to notice the weak spots in the arrangements for safeguarding goods generally." Once organized, the force should be under a superior officer who might perhaps on the more important systems be given the rank of Deputy Traffic îlanager. He would in some cases require an assistant and would everywhere have inspectors, sub-inspectors and havildars for purposes of local control. The matchmen should be given a uniform as well as batons or lathis. They should have proper quarters in lines where they would be under discipline and they would, of course, be liable to transfer. They should be eligible for pronotion and the prospect of promotion would be an incentive to efficiency. If the force were re-organized on each railway on these lines, we believe that the watchmen would feel that they were members of a force which had some position in the world and some reputation to maintain. It is certain that a force like this would attract better men than the railways now secure. It is not unlikely that in some places re-organization would mean an actual economy in men, as for purposes of watch and ward, five men under discipline are better than an undisciplined troop of three times their number. An effort would naturally be made. to recruit the best men available for a force of this nature, and it is unnecessary for us to make any recommendations as to the class of men required. We see no need at present for putting the force on a statutory basis, as some witnesses have suggested, or for makirg the members of it liable to the same penalties for neglect of duty as the police. We consider that the railway administrations have sufficient powers of punishment under their ordinary rules, and that the powers possessed by the watchmen for the defence of property and the arrest of offenders, both as railway servants under the Railway Act, and as private individuals under the Penal Code and the Code of Criminal Procedure, are sufficient for their requirements. 23. Questions of pay are excluded by the terms of our reference, but many of the witnesses-- railway men as well as police officers, non-officials as well as officials have pressed on our attention the view that the watch and ward are often uuderpaid. The feeling is that under-payment means tacit sanction to pilfer and tre have heard several stories of inenials going on strike when they thought that their prerogative ras being infringed by what they regarded as excessive activity on the part of the police. The living wage varies in different parts of the country, and it would be dangerous to dogmatize without careful local enquiry, but the impression Te bave received is that in mary places the pay given to the watchmen is less than E living wage. This is a view, we may add, in which many railway officials concur. (it) The handling of goods. 24. Abstraction in the course of legitimate handling is a common form of crime and the remedy for it lies in adequate supervision over the handling staff, ·D rlich includes the coolicy and those who superintend them. It is unnecessary to describe at length the system of invoicing anl tallying gools into and out of vagons, etc. No fault lag been found with the system as it exista on piper. The weakness lies in the fact that in practice the safeguards are generally ignorel. 25. During the handling stages the coolies are supposed to be supervised at emoll stations by the station masters and at large stations by the loading clerka who are subject to general supervivion by station masters, gouds supervisois, etc. The evidence we have heard and our own observations indicate that the Eupervision orer the coolies and over those who are supposeil to superintend them is not very effective. We have found clerks trying to tally goods into ten wagong at once, we have seen loaded wagons 1. so arrargid that it would be impossible and we have In practice 's things on trust from the coolies and wonder is perhaps not that so much goes astray as that so much comes safely through. Gillit 17 loading clerk has unloaded them. Similarly, with luggage and parcels, the responsibility passes from the parcels clerk to the guard, and from the guard to the parcels clerk at destination, and each is expected, in his own interest, to make a The chain of course lengthens with cach tranmajority of cases the check is perfunctory. tour,“ The rules are all very well for tho we followed the rules, no train would ever And many others have told us the same thing 27. Certain results follor from this system. It is casy to fix responsibility. The ag sound a package which, ig been tampered with, is m is not suited for locat. i missing goods cases to e imposed but it rarely s. The chances that the wrong man is being punished aro too great to justify a debit of the full value. Dishonesty consequently is a fairly safe game, and it must be admitted that the complaint of the public on this scorc is not without foundation. 23. The view we take is that the system of responsibility without supervision has been pushed to extremes So far as superv'sion over the handling staff is concerned we think a re-organized watch and ward should be able to render valuable assistanco though the clerk's responsibility for what he signs for will not be affected. But we are also of opinion that there should be some systematized method of checking the work of those with whom responsibility rests. This duty might be entrusted either to the regular officers of thic re-organized watch and ward or to special travelling inspectors. These men would make occasional surprise checks of the contents of loaded wagons before despatch or en roule. In this way mistakes, whether deliberate or otherwise, would be discovered and enquiries started at an earlier stage than at present. Sane railway companies have already taken action on these lines with useful results. There can be no doubt that short-loading and crossloading are often deliberate, the station staff being in collusion with consignor3 or their agents. As regards thefts from parcels or luggage en route, we think, in addition to the locking of vans, the system of employing travelling parcels clerks ou passenger trains is one which might be considered by railway administrations. 29. Complaints have frequently been made that pilferage is facilitated by rough handling. With the improved supervision suggested by us, there should 40PC ·pentral Provinces, but hardly a single non-oflicil witnesslias said anything against io he fewer of these complaints in future, and loailing and unloading cerks slozile] be made to understand that it is their duty to sce tliit all packages are handled with duc carc. 30. Jandling contract.On several lines the practice prevails of giving the contract for the supply of labour for houding gools to the station asteis or goods supervisors. The olicial who takes the contract is paiil at a fixed rato per Aliousand maunds handle, and the profits are a recognizerl soumre of income, vickling in some cases as much as Rs. 200 a month. We have, however, licar complaiuts that the rates sanctioned by the railway authorities liave not everywhere kept pace with the rapid rise in waves, with the result that the officials who take the coitzacts are actualis losing money, Primui foris, such a system is open to oljection but it is on the whole surprising j'ow little adverse criticism it has received sling been clonounced by several police oflicers in the Unite:l Provinces, and by one or two others in Bengal and the it, while most railway officers tell us that it is a sati-factory svorking arrangement. Those who condemn it allege that it tempts the oflicials to whom the contracts are given oitler to uler-pay their roolies on the merstanding thnt nothing will be s. id slut, pulſeragr. or to compel merchants coulies to work witlont paynent on the same wlerstan.ling. We do not think the srstom a very satisfaciare one. It appears to give olicial countenance: to sucl abuses as nacuran is calumatol to puist merossary temptations in a man's way. The evidence before us doas not jnstily s gorer: coulemnation of the spatom in its practical appliration, but we find it difficult to believe that the coolies are in all caurspid a living wage, and we think that were the sistem is adorandi, District Traffic Simerintendents shoulil take care that it is not abusel. Similar vigilisice is required where labour is supplied by private contractors. CIIALTER V. MECHANICAL IMPROVEMEXTS FOR TIIE PROTECTIOX OF GOODS OX RAILWAYS. 2 (i) Locking and rircting. 31. In view of the great increase in the number of thefts and the value of the property stolen, it may seem strange that the security of almost all covered wagons depends in the last resort on a piece of string and a wax seal. Anyone who has the hardiness to cut the string or the skill to remove the seal with a lot knife has the contents of the wagon at his merev unless the watchman is more than usually rigilant. The tin shackles and lead seals which are in use on certain lines are hardly more effective as a protection against the determined thief. Some railways llare tried to increase the security of wagons by means of lop fasteners, but they have vot been found of any great use in practice. 32. In October 1919 a proposa) to introluce a system of universal locking on all railirays was cousilered by the Indian Railway Conference Association on a representation made by the Agent of the Bomlar, Baroda and Central India Railway, extracts from whose letter are reproduced below:- “I do not know what the position is on other Railways, but, on our own, there has been a very great increase in thefts from goods wagons during the past few years. Most of thein are from running trains, not only from trains en route between stations but from rehicles standing in refuge sidings or in yards, and it seems necessary to take special measures to make these thefts less easy of accomplishment than they now are. As matters not stand, people who depend largely for a livelihood on that the con piller from trains, have a very rosy time. It is the simplest thing in the world for a man to steal from an open wagon and almost as easy to steal from a covered wagon.... 6I think it is time that all Rajlrays took steps to provide locks on covered tragons, and so far as is' possible, discontinue the use of open stock for the carriage of goods which attract thieves....".

·11 I. The resolution adopted by the Railway Conference after inspection of different locks, was.as follows: (That this Conference is of opinion that the wagon lock proposed by the East Indian Railwăý is the best which has so far been designed, and recommends that it be given a thorough trial on all the broad-gauge Railways 33. Little practical effect appears to have been given to this resolution. Sereral of the railways seem to have altered their views regarding the suitability of the East Indian Railway lock (Ellis' Patent) and have been looking about for some- IT 1. 34. We regard the effectiveness of locking or riveting as establ shed beyond dig. pute. It is in evidence that these methods of securing pagons containing piece-goods between Cawnpore and Lucknow, and brtween Kharagpur and Shalimar, from Sabarmati northwards on the Bombay, Baroda and Central India metre-gauge, and from Karachi to the borders of the Punjab on the North-Western Railway, have reduced thefts almost to the vanishing point. The South Indian Railway have leen experimenting with three different types of fastenings none of which is either a lock or a rim "! In with one or other of these fasteners and Inths, not a single case of theft from any. On the East Indian Railway, a patent lock has been in use for a month for certain classes of consiguments between Howrah and Mokameh with the same result. We have inspected during our tour, the following patent locks and other devices for securing wagons (1) The Empire door lock, (12) The Crowden combination lock, (ni) The Monthero lock, (iv) The Travers Philips patent, (*) Pereira's locking apparatus, (er) The Universal spring lock (Ellis' patent), (vil) Dr. Bhagwant Narayan Tandon's safety lock, (*11) Dr. Amarendra Nath Bosc's automatic safety lock, (13) The Copley Devon lock, (c) Grogan's patent. We have also examined the "F"type of wagon on the South Indian Railway and the system of riveting which has been tried with success on the North-Western and Bombay, Baroda and Central India Railways. The Committee do not feel competent to express an opinion on the comparative-merits of the different patents. They venture to suggest, horrever, that much valuable time is being lost by the railways up endevouring to come - to a decision on this point, and they would suggest as a business proposition that all railway administrations should adopt as soon and as widely as possible, a simple system of riveting It requires little alteration of existing fasteners, will cost little to introduce and to mautain, and can be abandoned without appreciable sacrifice should wider experience reveal defects. The Committee attach great importance to this recommendations. Some system of locking or riveting is essential if running train theſts and thefts from • "58 will Kections ! still be eans of 1. 35. plates as have been entail he. (11) Protectire plates, ber of wagons have been fitted with these : of bags through the flap door. They fitted wherever possible. This will not ·(in) Lilling. frvicing and skil 14 rnuntiin. 31. Lighting is generally inurrades it:hinc vitlom. diarios portation Bligh power lamps Bilver porwriting, and more Homili lozim borrinoliebut for the difficulty in obtaining the requisite misterials. It several place : Y: 1, 1120383 Pents were expeted it in early vite. The wil lamp which is the only por:retici!?" of illumination: 11:28 statis is watillisetery. It gives a forbil: licht enler hem ... 11:51 Colisions, and we la tribosna plosintel.: : 1.tim.az. in cui si che staff misappropriate olie vil. The inadeqare of the arran!!!*!!!!: 1:7,"zoolri 1.1mini !!! and improrrunt: shull los puhe 1 :: ; 1:1 1. solib tale, As one wil???:531110 il," üiffror or litlir lieliels.ichni!... " 37. Exporn-ive wall: and forces lieux Bontroll 1113441 in :: {****pi?%, 6:(!!! experience is that they are often m maintailmiin: ":L:!! Bair. 1; are and in ww.ld, and billions or pali-::..: 17-237WBTB dris prieintl... yarl. Best of the statiu) sarili at pins og : fares, and there are sert til indeed ilutin clientes pie slitt!:11? Pa fornir! that wire fcnrring to king out ! ;. Ex in this !!!! silured in thietilyo pupil.com 11:21mi ni vitio !!! lorogebogo il loginpidi song mois. 11. ('ummitire do nui asrl mmcliimpuitt.:11p to the finish bors by 11.8.Surf feucing. The main thing is to provide an miria ir atviai. 33. rarisse acro!!bition, this i!1 112!134.PDF Broots, boat the Committee reconize that final opruimerudding howlite ! 0 2 toile... administrations from long JAXY witli il geith i trittiin in the con covered acronymulsion and local res for the finestris **riz vol puurid a waiting despatch and delivery. fil) Psiz!!!! ;377,!. 39. The provisional morubirms for the lonthespormenti: non rest..! calls fur enrly con-jr.:11. slip in vli u tev !*!! Inspector-liciveral of l'olice, l'unjil, ardilegant citlau Suit! Kulit expressed himself in furour of it. CI.ITTER VI. MISCELLISTUS (1.1L118). (-) Risk-noc, claims,rie. 10. There is a poneral ſcling :?!!!01! the grablir, which is shriller smp ni police witnesses that the wirles protection given to rlwyiligt: kitietenilories of risk-note indirectly encourages ilest. It is 441!!!36" by tl.00. 11. 113 fceiing that railway emploire: krow what clasing of prosli ' 0:10-11 at owner's usk and link that there is less chance of il segreling equir' ).Ling made where the railway is protected. We have not been able to obtaining Pictures to sink whiler pensignmenta booked at owner's risk ere more subject to pilfer me and left in others, and any figures that the railways couk furni-l touleibe incompat as my essa nevir reported. But railway oficers ceas that the handling sali cal ungui-l l;etween consignment: sent at owner's risk and those uni ot ruinak zisli, al on the evidence before us, we are unable to like that loss crois talooliv jailway administrations of the former than ol lliu latirom. Our rifinisaris ofilio arrangements made for security in transit apply equally to both cases. and we have clsewhere expressed the opinion that departmental enquiries inte losses are not as a rule deterient in their efïccts, as they aim at fixing responsibility rather than guilt. 41. Another allegation of a like selure is that clnims are treated in such a way ?s to put a premium on theſt. There is no doubt that claims are not always disposed of as promptly as they might be, and that the two months rule laid down by thic ·13 Railway Conference Association is not very strictly ndi.ered to, but tl. allegt. ilitina fur sensibily tale sis months instead of three. 42. There is more, we think, in the charge that pressure is put on consigners to five clear recripts where pilferaçe is suspected. We have had indisputable evidence that clerks and others often think it their duty to their emploscts to protret them in this way against possible claims. This practice must lead to the lurking of complaints, and may in this way encourage thelt, and we think that railways in their own interest should take steps to check it. Another frequent complaint is that the duliculty of obtaining oprn dritare delays the discovery of pillcrage and to thit cxtent reduces the chance of thing culprit l»cing caught and punished. As a rule, p.:ckages cannot be opened brfor delivery except in the presence of traffic inspectors, or at the larger at:.180118, goods supervisors, and station nuisters, and it often happens thai ronin tim clapsrs Lefore a duly authorized officer can attend We are no reason why geruter facilities should not be granted for the opening of purkages in the prewence of a responsible railway official, where thc consignee suspects piller..ge. (12) Thrfts of fruit and liquor. 43. We have heard complaints nll over India of the wholesale way in which consignments of fruit are pilfered. We have referred above to the admission made liye the Oudh and Rohilkhand Railway that hardly a single paree! goes through to its destination without suficring some loss. The importance of the matter has, we understand, been impressed on all railway administrations by the Railway Board und has been discussed by the Indian Railway Conference Issociation. There is no doubt that the flimsy packing of the fruit makes pilferaga very casy. We have ourselves scen many baskets in which the fruit was actually expoarel. Somo railway administrations have tried to induce consignors to pack their fruit in stronger crates or cases by offering to carry the "enpties." back free of charge, lut little good, we understand, has resulted from this ofier Among the measures n lich have been adopted on various mailirays for the greater securits of packages of fruit may be mentioned supervision at transhipnient points lis fpecial officers, locked vans and parcek express trains. With an improved watch and waru, laers should be diminished, and we think that useful results might lie obtained by the einployment of detectives, and by the use of cages for the safecu-toly of parlours of fruit while awaiting despatch and delivery and wlule lying on platforms rt trapshipcnt stations. 11. Consignments of liquor al o are frequently tampered with, ent special pre. cautions are now taken and apparently with good results, though pulſeraga is still fairly common. The Great Indian Peninsula Rilway, we were tuld, jiut their own fastenings and reals on the cases. On the last Indian Railway, care con. tnining liquor nie kept under lock and key as far as possible until delen erz, while on the Madras and Southern Valinta and the Eastern-Bengal Railuay's special intructions lave lwen issued for the weighing of all such cases at translipment stations. The extraction of one or more lottit's ont of a chce tnlns tiuc, but opportunities nrise when the case is lying at a station Ixforc despatch or infor: delivery, or while it is in a van or at a transhipment station. The u-c of cages, ...at ... inspectors and detectives and the loading of circs "ible in fast through vans, will tend to reduce (1) Thefte of railuray walcriol, for Thclts of railway material, fittings, etc. Lasclecome very common during thic past for yrars. Mr. Hindley;the Afront of the East Indian Mailsar, las sub. Initted an intriesting note on the suliject. Vany wagons, le mais, arc rendered unfit to run, and there has leen a serious slowing down of trafic. lic attributrs the rapid growth of this form of crime to the rise in thr sale of metal in corsequence rol.c war. 176f1s were at first confired to l masa fittings lelonging to the vacuum lilo geur. When tl.com sere replaced by iren ardsteel.thir tiens turned thrir atten. tion to loltsord nute, and Mr. Jlinley lelieses 11 at large ouantities of pillered Lolls and nuts were tcnderd in fulfilment of contracts grion by the Munitio's Joard. Property of this hird is hardly casalile of identification, and couriction ARIC ·14 consequently is difficult. From the bolts and nuts of axle-boxes the thicves went on to cotton waste and oil from the box itself, and thousands* of wagons have been stripped of their axle-box covers and the necessary packing. Tie latest development is the removal of brake-blocks, brake-rods, screw-couplings, vacuum brake hose pipes, etc. The figures given for the last Indian Railway would be almost incredible were they not well authenticated. We reproduce them below:- 1917-18. 1918-19. 1919-20. Axle-box face platos .. 66 . 55,562 85,588 Cute Cwte. Cwis. Bolts and nuts 2,251 1,176 1,993 Cotton waste soaked in minoral oil .. 6,350 12,637 19,335 Cotton tvaste soaked in onstor oil 004 1,192 1,320 Cotton waste .. 908 1,937 3,381. Galls, Galle. Galls. Castor oil 19,142 24,428 24,702 Blincral oi... 75,103 15-1,812 233,197 On the Eastern Bengal Railway we heard complaints of thefts of electrical fittings, brass work and cushions, as well as of nuts and cotton waste. At Naibati we were told that the consumption of cotton waste had risen from a hundred weight to a ton a month. On the Great Indian Peninsula Railway, at one period in 1920, 50 per cent of the axle-box covers on the wagons were missing: 46. The remedies suggested by Mfr. Hindley are :- (i) the extension of the jurisdiction of the railyvay police to the private sidings in the colliery areas, where much of the tbieving is believed to take place, (ii) more effective co-operation between the railway police and the district police, and (iii) legislation for the colliery areas on the lines of section 2, Howrah Offences Act, 1857, in order to enable the police to deal adequately with cases of suspicious possession, As regards the first of these, the responsibility of the railways for protecting their own property must not be lost sight of and with the improvement of the watch and ward which we hope will be taken in hand at an early date, prevention should be more effective than it is at present. We think that the railway police, from the nature of their training and experience, are better qualified to deal with thefts of railway material than the district police, and that Mr. Hindley's suggestion deserves consideration by local Governments and by the owners of the sidings in question. With regard to the second suggestion, we agree that co-operation between the railway police and the district police is essential. The property stolen all passes beyond railway limits, and local smiths, as Mr. Hindley informs us, display great ingenuity in adapting wagon ſittings for household and other purposés. 47. The third suggestion requires more detailed treatment. The Police Acts in force in the Presidency towns and the Howrah Offences Act, 1857, provide that whoever has in his possession anything which there is reason to believe to have been stolen or fraudulently obtained; shall, if he fails to account for such possession to the satisfaction of the Magistrate, be liable to fine or imprisonment. Not long ago, the Bengal Chamber of Commerce pressed for the extension of legislation on these lines to the colliery districts of Bengal and Bihar and Orissa. They pointed out that the reason for the inclusion of these provisions in the Calcutta *The total number of wagons of all kinds on the broad-gauge railways of India was 134,627 at the close of 1919-20. Complaints are fewer on the metre-gauge lines.

·15 Police Acts in 1910 tras that it had been found very difficult to obtain convictions under the ordinary law in the absence of means of proving the ownership.of the goods. They suggested that an Act might be passed by the Indian Legislature authorizing local Governments to declare that tliese provisions should apply to such industrial districts within their jurisdictions as they might think fit. In 1910, the T. 19. 111. .t.in 11 Cawnpore and could not, tnder the ordinary law, be adequately checked. Several witnesses in Madras, Bengal and Bilar and Orissa have pressed on us the need for legislation of this nature in important centres and the Mysore Chamber of Commerco have suggested it as a remedy for the state of affairs existing at Bangalore. 11 1.........14 with local nceds, but we venture to leave on record the results of our own cnquiries. 48. The scris :- a station yard or even with a. 1 which wagon, package or vehicle the accused person obtained the property in his possession, no court will convict, and it is obvious that in many cases the proof required cannot lic furnished. We have made enquiries as to the extent to which the various sections are used in connection with railway crimcat present. At Howrah, in the two years 1919 and 1920, there were over 800 cases. At Sealdah and Chitpur there were 114, while at the railway stations in Bombay city there were only 18 and at those in Madras only 14. The Presidency Ithe sections in question, t they are much utilized inc sion, however, is not to be measured entirely by the number of cases in which it is enforced. It is not one which should be applied universally and our experience is that the demand for its application is confined in the main to industrial centres in Jadras, Bengal, the United Provinces and Bihar and Orissa. The improvement of the watch and ward and the occasional use of detectives should make pilferage more difficult, but it is in connection with thefts of railway material that the case for legislation is strongest. As a rule, the nature of the property itself will be almost suficient to establish the presumption of wrongful possession, and the grave inconvenience to the public, to say nothing of the danger, involved in many of these thcfts may be taken as an additional argument for legislation. CHAPTER VII. THE RAILWAY POLICE. () Personnel. 49. There is a general feeling that the quality of the forco lcàves much to be desired, that the Superintendents aro not as a rule selected for their merits and 41 L11 1 . 50. The railway police superintendentships are not generally regarded as equal in importance or interest to the heavier district charges. The figures *The officers in every province are borne on the general provincial cadre. The rank and file in the United Provinces and the Central Provinces aro recruited from the district police Elsewhere recruitment n direct, except in the l'unjab where there 13 & mixed system, ·16 below compare tlic average work in district:3 and railway charges in Madras and the United Provinces :- Province. liniju Jurilor. Poi:1. Dicoity. Roblurra bpralia ing. ing. Average filimlier of c19c1 in 1910, Thcit. . Madras I'er district 1: 591 . 1860 Per railway district 3 1 2.1 . United Prorincc3 Per district IS 33 1,7699 091 . Per milway district D JS 9,616 It will be observed that crimc on the railways is for the most part restririca to a few varieties of one particular ofience, namely, theft. The wosk is, therefore, apt to be monotonous. Further the lack of success in dealing with crime is disheartening. In 1918 on the railways only 20 per cent of the cases reported resulted in conviction as compared with 30 per cent in the districts. Where reports were investigated, the railway police were successful in 25 per cent of the cases (1919) and the district police in 45 per cent (1918). Thests from running soods trains are perhaps the most important class of crime the railway police officer has to deal with. In 1919 convictions were obtained in 5.! per cont of the cases reported. In the United Provinces, there were 31 convictions in 1872 reported cases, a percentage of 1.7. In 1915, there were only 10 convictions in 1421 cases. This want of success is due partly to the conditions of railway crime, especinlly to the difficulty of localizing theſts from running trains. but also in part to the defects in the investigating agencies and the lack of machinery for improving unprogressive methods. These considerations are sufficient to explain why railway police works does not attract the best men. They affect not only superintendents but officers of all grades. 51. As regards the subordinato officers, we have been told in the United Provinces where all the divisional inspectors are Europeans and Anglo-Indians, that the pick of the European schools now go into (iovernment offires or the railwir's where the prospects are more attractive, and that it is very difficult to get candidates for the police. Sergeants with little experience or education are promoted to inspectorships, and are expected to control investigations and maintain discipline. As regards the subordinate Indian officers, the head constables an:l constables, the answers to the questions we put to police officers about the popularity of service in the railway police appear to show that its popularity varies in different provinces and sometimes even in different parts of the same province. In several provinces the lightness of the work and the concession of free leave passes have been mentioned as attractions. One of the Superintendents in Bihar and Orissa told us that he had twenty to thirty applications for cach vacancy. In parts of Bombay it appears that there is no lack of candidates. In Bengal, the Inspector-General stated that the men protest strongly against transfer to the district police, and in the Nortlı-West Frontier Province, the life of a railway policeman is said to contrast favourably in point of comfort and safety with the life of a district policeman. More frequently, howerer, the feeling appears to be that the balance of hardship and discomfort is against the railway policeman, especially in the case of subordinate officers. If we may judge by the evidence of the Indian officers who have appeared before us, the railway police service is distinctly unpopular in the Central Provinces, the United Provinces,* and Assam and somerhat less so in the Punjab. The night travelling, followed by uneasy repose in a corner of the platform, the irregular meals and long hours are substantial drawbacks. *In anster to a recent test-call for volunteers for the railway police in one of the districts of the United Provinces, out of 41 sub-inspectors, 52 head constables and 461 constables, only one sul-inspector and 15 constahles responded. The Superintendent informed us that the 15 constables were members of the armed police who were tired of shouldering a muştset and that the sub-iaspector was a man whom the District would willingly bare parted with.

·17 -.1 . 1 . -- L'ESCLYLACE OP LITERITE HLAD WU1914ALIS AXD CO17ABLES I DIA. In Sind there is some dissatisfnction about quirters, and in several provinces me have heard of the discontent caused by the withdrawal on certain railway lincs of the concession of leave passes* and by the practice of giving duty passes to police officers for a clasz infcrior to that by which they are entitled to travel under the Civil Service Regulations. Less substantial but not less keenly felt grievances are that the police oficer in the district enjoy's greater prestige anıl the railway oficial of corresponding rank draws higher pay. There are, however, other reasons militating against the popularity of tho railway, police which are entitled to greater repet thin mera considerations of cc the char notion in the railway police in the United Provinces because all thi divisional inspectors are Europeans, and in the Punjab because divisional mspectorships baie been abolished. 52. In these circumstances, it is only natural that the quality of tho -:..........l'linman manorurn something to be desired.f at the rank and filo are ite. This 18 satisfactory 80 far as it goes but what experienced officers in several parts of the country have told ug is that every railey constable should be literate in the verancalar of his province and that crery sub-inspector should possess it. - 1. linet plan of this stanilway work The railway constable has to deal with persons of all clasare and lives much in the public eye. Runy Dietrict Ilis platform dutics call for the exercise of tact and saroır fare, and when patrolling Isaras Bombay 88 or investigating he jg in touch with the Brad subordinate, railway staff who are apt to Tengl. no be jealous and obstructive. He cannot United Provinces.. check a scal or examine & label without Tanjab Bilar and Onsss some knowledge of English characters and Central Province it 19 impossible to follow the recorded move. ments of a burgled wagon without going North-West Frontier Troy. through documents which are written in Total 48 English. 63. The improvement of the railway police is partly & question of personnel, $ and local Governments will no doubt continue to do what they can to make the department attractive by the grant of allowances, the provision of quarters and the removal of legitimate gricvances. But the quality of the officers must in the long run depend more on the importance and interest of the work they have to do than on anything else. If the work itself is unimportant, no Inspector- General with an eye to the economic disposition of his forces will send his best men to the railway: if it is uninteresting, the best men will try to avoid it. The present position 13, we believe, largely due to the fact that railway polico work has never been properly exploited. Owing to the grent increase in running train theſts it has recently assumed an importanco it never had before. No railway charge is without cases and problems thich will appeal to the skilful police oflicer when he is properly equipped for his duties, and when each province las, as recommended by us in chapter IX, its own detective and investigating agency for railway police work, the attractions of the railway police will no longer suffer l-coint 1 Province l'obiec I'olic, 83 67 BI 14 89 27 31 67 39 27 21 > ·1s CITATIER VIU. The Ruwar POLICE-conlid. (11) Organizulion. (a) Historical trospect. 54. In this chapter we propose to give in outline, 50 far as thir materinis at our disposal permit, the history of the different sys{tills of organization which love been applied in the clifferent provinces down to the present time. Before doing so, it will be convenient to expliin what is meant by the terms which we shall use to describe the various systems which have been tried or suggested. Under the district system, there is no separate railway police force, and the district police are responsible for the policing of the railing line within the limits of each district. Pruler tlic provincial systrin, there is a fimparate rail. way police force for all railway lines within the limits of a single single provincc. Under the railway administration systein, it railway (or a group of railways is constitucila single police charge. This system is not necessarily inconsistent with the provincial system, as there are some silwills in India which are confined to al single province, but its clistinguishing feature isilind it viscomarcis provincial boundarics where a railway runs out of one province into:lbustier. It iſuus, in the words of the Police Commission, "involves a police force ander one local Government working within the jurisdiction of another." In thic sketch whirl follows we shall, cxcept wlicre otherwise indicated, apply the form railway:arlıninistration system only to cases involving the exercise of extra-territoriul jurisiliction. The three systems describes above have all been tricol. The imperial sysırın which is a development of the railway scministration system, hin4 n0t. Under it, the railway police forces on the different railways, would be converted in whole or in part into an imperial force, under an imperial Inspector-licner..l, who would be controlled by the Government of India. 55. These four systems full natur:lly into two groups, according as they do or do not contemplaic extr.2-10.rritorial jurisdiction, it is round this print that controversy has centrail. The grou, majority of the prolier witnesses hold that the co-operation with the district police which is echtil to the success of the railway police, cannot be surual in thes:meceutic when die ruil wily policcare working outsile their own province, and in this vicw they have the support of sucli local(iovernments as have given us thuir opinion. Josi vitlir railway witnesses, on the other hand, suggest that such co-operation as oxisis will not besliminished it provincial boundaries are ignored, while a susirm under which each railway aclministration would have to deal with a single force empleving uniform methods from one end of its line to the other would be more convenient for lem. The railway admir:istration system was recommended by the Railway Police Committee of 1882, subject to il rescrvation is favour of the provincial system where a line lay almost equally in two provinces. During the next twenty years, it was widely adopted. Its general acceptance ler to tie passing of Act III of 1888 which for the first time give statutory recognition to extra-territorial police jurisdiction and the North-Western Provinces Commiitec of 1891 recommended that it should be carried to what may be regarded as its logical conclusion in imperialization. The system was condemned, however, by the Police Commission of 1902-03, and was discarded in favour of the provincial system, apparently with the approval of almost all concerned. 56. The distinction between what are known as the duties of (1) crime (or law ) and order, and (2) watch and ward, is an old one and as recognised by the committee of 1872. It was the Committee of 1882 which obtained the recognition of the principle that the railways should enploy their own watchmen for the duties of watch and vard, instead of paying for police to perform them. This principle has ever since been maintained. The fullest statement of the duties falling under the two heads is given in paragraph 48 of the report of the committee of 1907, which is re-produced in Appendix B. $ ·19 Madras. 57. Prior to 1899 there were no separate railway police in Madras but police constables working under the District Superintendents kept order at stations, received complaints from passengers or railway officials, and took offenders into custody. The investigation of offences was entirely in the hands of the district police. A separate force of railway police was created for the presidency in 1899 under à Superintendent who had an Assistant in charge of the Southern Mahratta Railway. In 1906 a second Superintendent with headquarters at Trichinopoly was put in charge of the South Indian and Southern Mahratta Railways, and in the same year a Deputy Inspector-General was appointed for Crime and Railways as recommended by the Police Commission. In 1909 the jurisdiction of the Southern Superintendent was restricted to the South Indian Railway, leaving the other lines to the Superintendent stationed at Madras. Madras has thus had experience of both the district and the provincial systems. The arrangement on the Scuth Indian Railway is the railway administration system, without the characteristic feature of extra-territoriāl jurisdiction. BOMBAY, 58. The Committee have not been able to ascertain the history of the arrangements made for policing railways in the Bombay Presidency before 1882. But by that date a separate railway police force had been constituted which was responsible for the duties of watch and ward as well as for those of crime and order. On the Bombay, Baroda and Central India Railway, the police also nipped tickets, checked the contents of wagons and called out the names of stations. The railway police force at this period was a purely provincial one. lo 1882 the portion of the Rajputana-Malwa Ruilway which lay in the Bombay Presidency north of Ahme-labai was under the District Superintendent, Ahmedabad. In the following year a Superintendent was appointed for the whole of the Rajputana-Dialwa Railway with headquarters at Jaipur, and in 1889 the syscem was created a single police district under the Lieutenant-Governor of the -Punjab. The control was transferred in 1891 to the Government of Bombay, and again in 1908 to the Agent to the Governor-General in Rajputana. Up to 1892 the Sind district police were responsible for the policing of the North-Western line in Sind, but in that year the Punjab Government assumed ch: rge. This section of the line was re-transferred to Bombay in 1908. In 1908 the Rajputana-Malwa system was transferred to the control of the Agent to the Governor-General in Rajputana, and in the same year the Sind section of the North-Western Railway was re-transferred to Bombay. Bombay I as thus seen both the provincial and the railway administration systems in operation, and the working of the latter system in Sind was cited by tuo Police Commission as the worst instance of its defects, 59. As regards the internal organization of the railway police, we find that by 1902 there were four railway police districts, comprising respectively, the Great Southern Mahappear to have ccordance with aced under the admiristrative control of the new Deputy Inspector-General for Railways and Crime. In 1906 the charges of the Great Indian Peninsula and the Dladras and Southern Mahratta Railways were amalgamated, and the transfer of the Rajputana- Malwa Railway in 1908 left the Presidency with only two police districts. In 1910 owing to pressure of Criminal Investigation Department work, the rallways were transferred to the Range Deputy Inspectors-General. The railway police continued to be responsible in Bombay for watch and ward duties long after they had relinquished them in other provinces, and it was not till 1912 that the duties were finally transferred to railway matchmen. iT 1.

·She 20 BENGAL. 60. The railway police on the Last Indian Railway in Bangal dates from 1867. A few months after it was created, it took over the duties of watch and ward which it continued to discharge until they were transferred to the railway in consequence of the recommendations of the Railway Police Committee of 1882. After the creation of the province of Bihar and Orissa in 1912 the policing of the East Indian Railway within the limits of the new province remained with the Government of Bengal until 1916. The Eastern Bengal Railway is an amalgamation of several small lines, The old Eastern Bengal Railway running from Calcutta to Rajbari had its own police force. Criminal cases were handed over to the district police for disposal. On the Northern Bengal State Railway, on the other hand, the district police were responsible for watch and ward as well as for the maintenance of order and the investigation of crime. In 1885 a railway police force was sanctioned for the whole of “ the Eastern system of Railways," but in accordance with the policy which had recently been adopted, its duties were confined to the maintenance of law and order. We have not been able to trace the beginnings of the railway police on the Bengal-Nagpur Railway, but in 1901 the line so far as it lay within the limits of the Presidency, was policed by the railway police force of Bengal. After the severance of Bihar and Orissa in 1912, it was arranged that the railway police of the new province should be responsible for the policing of about 235 miles of the Bengal-Nagpur line in Bengal, the most important section of which was that between Khargpur and Howrah. On the Bengal and North-Western line a railway police force was sanctioned for the Bengal portion in 1885. There is now no part of this linc in Bengal, and since 1912 the Bihar palice have been responsible for the Bihar portion of the line. The history of the policing of the Assain-Bengal Railway is given in paragraph 68 below. Bengal has thus had a wide experience of the different systems of railway police'administration. It has known the district system, the provincial system and the railway administration system. It still exercises to a limited cxtent extieterritorial jurisdiction in Bihar and Orissa and Assam, and it still has the police of those two provinces working within its own boundaries. 61. As regards internal administration, it appears that as long ago as 1872 there was an Assistant Inspector-General for the Bengal portion of the East Indian line. In 1901 there were two Assistant Inspectors-General, one for the East Indian, Bengal-Nagpur and Bengal and North-Western Railways and the other for the Eastern Bengal State Railway system. In 1906 in accordance with the recommendations of the Police Commission, the control of the railvay police was transferred to the newly appointed Deputy Inspector-General, Crime and Railways. In 1917, however, the duties of the Deputy Inspector-General in connection with crime had grown to such an extent that it was found necessary to. transfer the control of the railway police to the Ranges. UNITED PROVINCES. 62. In 1867 a railway police force under an Assistant-Inspector General was constituted for the 788 miles and 70 stations of the East Indian Railway which fell within the borders of the North-Western Provinces. Not many months elapsed before the provinces had their first experience of extra-territorial jurisdiction, as in the following year, the railway police assumed control of the East Indian line in the Central Provinces as far as its terminus at Jubbulpore, and the Punjab Government made itself responsible for the policing of the Sind-Punjab-Delhi line from Ghaziabad to Sarsawa through the districts of Meerut, Muzaffarnagar and Saharanpur. Additions were made to the extra-territorial jurisdiction of the North-Western Provinces railway police in 1882 when they took over from the Rajputana State railway police the Scindia State Railway running from Gwalior to Agra, in 1838 ·21 then they took over a portion of the Indian Midland Railway, and again in 1892 when they extended their control on that line as far as Itarsi, and assumed charge of the Dellii-Umballa-Kalka line in the Punjab. 1-.1..----- 21.1. 11 11 -the Oudh ake up the no railway ce until the Wliere er opportunity offered, cxtra-territorial jurisdiction was extended, up to the very ere of the abandonment of the railway, administration system. In 1904 the United Provinces railway police assumed charge of the Kalka-Simla line and in 1903 of the Agra-Delhi chord. The years following the acceptanco by Government of the provincial principle were a period of wholesale rendition. În 1906, the Delhi-Umballa-Kalka and the Kalka-Simin Railways were surrendered to the Punjab, which in its turn relin- -11.-1.1.1------ 11.11.21 11 63. The railway police were at first organizerl under an Assistant Inspector General. A Deputy Assistant was added in 1891, and in accordance with the recomn:endations of the provincial committeo which sat in that year, the titleg of the two officers were changed to Deputy Inspector-General and Superintendent, respectively. The whole of the railways in the province were at the same time divided into three sections, of which the Northern and Southern were under Superintendents while the Deputy Inspector-General himself was in direct charge of the Central. These sections, it should be nientioned, were so arranged that no railway should have to deal with more than one Superintendent in the United Provinces. This principle has been observed ever since. In 1900, in accordance with the orders of the Government of India on the report of the l'olice Commission, the Deputy Inspector-General of the railway police was put in charge of the Criminal Investigation Department and a separate Superintendent was appointed for the Central section. In 1909, the local Government asked for a separate Deputy Inspector-General for railways on the ground that the special a temporary measure. The opportunity was taken to relieve the Deputy Inspector- General in charge of the Crimíunl Investigation Department of his railway duties, and the charge of the railways was combined with that of the new fourth Rango which comprised oply seven districts. This is the arrangement which is in force at the present moment. tras r. 1-.11. ܢ ܐ ܐܫ PUNJAB. 61. The railway police force on the Sind-Punjab-Delhi Railway, now the North. Western line from Delhi to Multan tiâ Meerut, Ambala and Lalore, was first constituted in 1868, and was placed under an Assistant. Inspector-General, who lengt Thus administration system. With the further development of railways in the province and the opening up of communications with Sind viâ the Indus Valley State Railway (afterwards incorporated in the North-J'estern Railway), the Punjab Government adhered to its preference for this system, and in spite of the orders RPC ·22 contained in TTome Department Resolution No. 69-72 of the 28th February 1879, in which the Government of India ruled that" the police force entertained on any State railway should form a part of the regular district police," they submitted, within a few months of the issue of that resolution, a proposal that the whole of thic line from Karachi to the borders of the Punjab should be included in the juridiction of the Punjab railway police, which, they clesireil, should be constituied as a single force, distinct from tlic district police. The Ciovernment of India gave way as regards the introduction of the district system, but there were at the time legal dificulties in regard to extra-territorial jurisdiction, and though these were remored by the Police Act of 1888, it was not until 1892- that the whole of the North-Western Railway, excluding the portion in Baluchistan, was created a single police district under the Lieutenant-Governor of the Punjab. Up to this clate, the only other railways in the l'unjaly were the Rajputunn- Nalwa State Railway, which ran from Delhi vii Rewari into Rajputana. and the Rewari-'crozepore State Railway constructed in 1983. In 1892, when the railway police committee marleits report, the railway police on the l'unjal) section of the Rajputana-Malwa Railway were under a Political Assistant who resided at Jaipur, but in May 1853, a Superintendent was appointed for the whole of the Rajputana-Valwa Railwar. These oflicers were not subject to the control of the Punjab Government, but in September 1883, it was decided by the Ciovernment of India that on the Rewari Ferozepore line, exclusing the station of Rewari, the Punjab Government should be the controlling authority. alter the passing of the Act of isss, the Rajputana-Malwa arid the Rewari-Ferozepore Railways were created a single police district under the Licutenant-Coveror of the Punjab.i These orders, which have the Punjalı (iovrrnment jurisiliction up to Ahmadabad, remained in force for less than two years. As il result of representations made by the Bombay, Baroda and Central Inulia Railway (which had taken over the management of the other two lines), control of the Rajputana-Jalma Railway and ine Rewari-lerozepore Railway was in 1891 transferred to the Government of Bombay. I On the construction of the Delhi-Umballa-Kalka linc, the jurisdiction of the North-Western Provinces railway police was extenleri into the Punjab), and wlicn the Nortli-\Vest Frontier Province was created in 1901, the jurisdiction of the Punjab railway police over the trans-Indus portions of the North-Western line was retained. + The railway administration system, with its frequent accompaniment of cxtra-territorial jurisdiction, was thus given ample scope in the case of the Punjab during the period from 1868 to 1905 when it was condemned by the Government of India on the findings of the Police Commission. In accordance with the orders then passed the Punjab Government has since relinquished its police jurisdiction in the United Provinces, Sind and the North-West Frontier Province and assumed or reassumed control over the lengths of line within the province which, prior to the orders of 1905, were policed from outside. 65: Up to 1906, the railway police in the Punjab were organized under a single Assistant Inspector-General. In that year in consequence of the recommendations of the Police Commission, the appointment of the Assistant Inspector-General was abolished and the administrative control was transferred to the Deputy Inspector- General, Railways and Crime, under whom there was a single Superintendent, in executive charge. Another Superintendent was afterwards added. In-1018 in accordance with the recommendations of a committee which had been appointed to examine the organization and working of the railway police, the Deputy Inspector-Gencral was relieved of his railway duties, which were made over to an Assistant Inspector-General. The two superintendentships were abolished, and four sub-divisions created, cach in charge of a Deputy Superintendent. An advantage claiined for this system is that it concentrates power in the * Home Department Notification No. 336-Police, dated 15th June 1892, tHone Department Notification No. 217 of 12th April 1889. | Home Department Notification No. 4-Police of January 6th, 1991, ·23 hands of the Assistant Inspector-General who combines both executive and administrative functions. BITAR AND ORISS... 60. In 1912, the railway polics of the name ruota LALU Agent of the East Indian Railway objected to the transfer. en in operation Loth The Bengal polico sed extra-territorial jurisdiction in Bengal. The railway police have, until the present year, becn under the control of the Deputy Inspector-General, Crime and Railways, but it has now been found necessary to rel eve him of his railway work, which is being transferred to the Range Deputy Inspectors-General. CENTRAL PROVINCES. 67. In the Central Provinces, a railway police force was first created in consc. i quence of the recommendations of the Police Commission. At the time when the Commission reported, each District Superintendent was responsible for the policing of the railway within the borders of his own district, except on the sections of - (1) the East Indian Railway between Katni and Jubbulpore, (ii) the Indian Midland Railway between-- (a) Katni and Bina, (U) Bina and Baran, and (c) the borders of the United Provinces and Itarsi, and (iii) the Rajputana-Malwa Railway from Khandwa to Mortakka. The first two of these scctions were policed by the United Provinces railway rolice and the third (which had been taken over from the Central Provinces district police some time after 1882) by the Rajputana-Malwa railway police. In 1909 all th adjomıng States Commissioner.* urder a Superintendent, and the whole force since 1917 has been under the administrative control of the Deputy Inspector-General, Crime and Railways, The Central Provinces have thus had experience of the district system, the railway administration system, and the existing provincial system. Assau, C. Shortly after the completion of the Assam-Bengal Railar to Badarpur in 1890, it was arranged that, as the greater portion of the line then open fell within thie boundaries of Bengal, the policing of the entire line up to Badarpur should be under the control of the Assistant Inspector-General, Eastern system of Railways, Bengal, subject to the Inspector-General of Police, Bengal. It was not till 1902 that Assam bad a railway police forec of its own. This force was for thic Gauhati section of the Issam-Bengal Railway. - On the amalgamation of Assam with Eastern Bengal in 190.7, the line of the railway police on the Assam-Bengal Railway caine under the Government of the Ders Province, After the reconstitution of Assam in 1912, it was 11- 1 • Hece Dejaileet Notifcalion Xo 1193, datal L. 3'et Decenler 1009.

·24 decided to adopt the arrangement sanctioned by the Government of India in their Resolution on the recommendations of the Police Commission and to bring the whole of the Assan-Bengal system under the Assam Government. The policing of the section of the Eastern Bengal Railway which lies within the province of Assam north of the Brahmaputra was at first under the Government of Bengal but in 1908 was transferred to the Government of the new province of Eastern Bengal and Assam.- Before this province came into existence, the Government of India in their orders on the report of the Police Commission had proposed to treat this portion of the line as an exception to the general rule and to permit Bengal to retain jurisdiction, and when the question of its treatment came up again after the redistribution of 1912, it was decided to leave the police arrangements in the hands of the Bengal Government. 69. It has recently been proposed that the Government of Bengal should take over that portion of the Assam-Bengal Railway-which lies within the boundaries of Bengal and that the portion of the Eastern Bengal Railway which runs through the Districts of Goalpara and Kamrup in Assam should be taken over by the Assam Government. The effect of this would be to complete the provincialization of the railway police in Assam. The Committee is hardly in a position to make definite recommendations on the questions involved, if only because they have not had the opportunity of hearing the views of the Bengal Government. They have, however, recommended that the provincial system with certain improvements should be retained throughout India, and they think that the burden of proving the existence of special circunstances which make the system unsuitable or a change undesirable, rests on those who seek to make or preserve exceptions. They understand that the present proposals had their origin in the difficulties experienced in the Dacca and Mymensingh districts, and where extra-provincial jurisdiction has led to difficulties in practice, the case against it is primâ facie a strong one. They think too that it is generally undesirable that places like Chandpur and Chittagong should be policed from outside the province. The case for a change on the section of the Eastern Bengal Railway in Goalpara and Kamrup, north of the Brahmaputra, is not such a clear one, but the question whether the inconvenience to the Eastern Bengal Railway authorities is sufficient to counterbalance the advantages of provincial control on this particular section of line from the point of view of general efficiency is one on which we cannot venture to express an opinion. NORTH-WEST TRONTIER PROVINCE. 70. The North-West Frontier Province was a part of the Punjab until the end of 1901, but the Punjab Government continued to police the trans-Indus portion of the North-Western Railway until 1914. In that year control was transferred to the Chief Commissioner and the Inspector-General of Police of the North-West Frontier Province. The correspondence shows that the Chief Commissioner asked for the transfer mainly on the ground of administrative convenience which it was thought would be greatly promoted by the control by one authority of all the police in the North- West Frontier Province. It was argued that this would facilitate recruitment and postings as well as the introduction of such changes in the personnel as might be deemed suitable to local needs, while a closer co-operation and more frequent interchange of communications between the district and railway police might also be anticipated if both forces were brought under the same administration. The circumstances of the North-West Frontier Province, like those of Baluchistan, are different from those of most other provinces, but the reasons given for the transfer show that the policing from outside of the short length of railway beyond: the Indus led to administrative inconvenience. The railway police are in charge of a Deputy Superintendent who has the powers. of a Superintendent. BALUCHISTAN. 71. In Baluchistan the railway police and the district police form one force under the control of the Political authorities. Up to 1897 the executive police officers were two European inspectors. In that year a Superintendent was appointed to hold joint charge of the railway and the district police, and this Arrangement is still in force. * Home Department Notification No. 250, dated. 6th April 1946, ·41 . CHAPTER IX. THE RAILWAY POLICE contil, (ii) Organization-contd. (6) Recort mendations, (1) The advantages of the provincial system. 72. The Police Commission of 1902 declared themselves against the rail. may administration system on the ground that it “involves a police force under one local Government working within the jurisdiction of another, an arrangement which has been condemned by nearly all witnesses who have had experience me it sonoriollo in Sind though it is not unnaturally forensiro by many railway The Commission hesitation in say s obtained from auverence iu lut puuup vs PAUTTU wuuy. They condemned imperialization, which they regarded as a development of the railway administration system, because The unit of police administration is the province and a departure from this principle in the case of the railway police would greatly weaken the co-operation between that forço and the district police, a co-operation which is admitted by all to be essential for efficiency in police work. It would also render impossible the connection between the railway police and tho proposed provincial Criminal Investigation Departments, and would thus deprive the latter of a most valuable auxiliary staff." 73. When the report was referred to local Governments for opinion, they were unanimously in favour of the provincial system, and most railway administrations appear to have agreed with them. Whether local Governments are still unanimous on the subject, we are unable to say, but the four which have favoured us with their views, are all against imperialization. The Bilar and Orissa Government prefers the present system -though it declares itself open to conviction. The Punjab Government has contented itself with giving general approval to the views of the Inspector General which are unfavourable to a "thange. The Government of Assam have themselves put forward proposals which Tun counter to imperialization, whilo the administration of the North-West Frontier Province is definitely opposed to it. As recently as 1916, the Government of the United Provinces expressed itself as still in favour of the provincial system. In practically every province the higher police officers are against imperialızation. In the United Provinces it finds some support among superintendents but ist it. In the Punjab, a small committee he railway police in 1918 expresscd them- , the present Assistant Inspector-General ho vis cne of the tiro members of the Committee, has informed us that he does not regard it as a practicablc system in existing circunstances. .74. On the other hand, almost all the railway officers we have examined are in favor uld be the unit o' : consideral The Agent* of the Great Indian Peninsula Railway, however, told us that le preferred the pristine cctnm rhila tha timot mina mir... v the South The vicirs of th is one of the few 15. We regard imperialization as the necessary corollary of the railway administration system, and the issue is now, more definitely than in 1902, that of imperialization tersus the provincial system. It is one on ishich there is a sharp difference of opinion between the railways and the police, the local Governments, so far as they have declared themselves, siding with the police. • Mr 1. C. Rumboll, CIE, CBE, 4L.T but a nager of ARC ·26 If the railways were opposed to the local Governments and the police on a question which was in substance one for railway experts, it would be natural to conclude that there was a primâ facie case in favour of the railways. Here the question relates to the circumstances under which the police can best discharge their duties, and it must be admitted that there is a primâ facie case in favour of the view held by the great majority of those who are most conversant with problems of administration in general and police administration in particular. 76. Imperialization is moreover in two respects contrary to the spirit of the times. A strong case would be required to justify us in recommending the removal of what is now a branch of the provincial police force from thc control of the provincial Governments, in view of the rapid trend of events towards provincial autonomy which is the inevitable result of the recent reforms. We have to look forward to a time, not far distant in some provinces perhaps, when the administration of the police will be transferred to popular control. When that time comes, we think it possible that the intrusion of an imperial department not responsible to the local Council, might be resented and for this reason, if for no other, we should feel compelled to advise against calling into existence an agency of this nature, marked out for the likelihood of dissolution before the new constitution is many years older. Secondly, it seems more than ever necessary to maintain the control of the provincial Governments over the whole of the police force working within provincial limits in view of the prevalence of strikes at large railway centres, and the probability that the railway police will be called on more frequently than in the past to assist in the preservation of order. A recent instance in point is the case of the Lillooah strike. The Bengal-Nagpur line up to distant signals, of Howrah is policed by the railway police of Bihar and Orissa, and when violence was threatened at Shalimar, problems arose which were only solved by a referenceto the Inspector-General at Ranchi. 77. The opposition of the local Governments and the police witnesses to imperialization is based mainly on the belief that if the control of the local Government and the local Inspector-General is removed, it will be even more difficult than it is at present to secure the co-operation of the district police which all admit to be a condition essential to success in dealing with railway crime. It is true that under the present system there is not always that degree of co-operation which is to be desired but, as one witness said to us, the same might be said of the co-operation between adjoining police stations. The problem is really a simple one when reduced to terms of human nature. Witness after witness has said to us ip almost identical words—“The district police have their own work to do, and you cannot expect them to take an interest in cases for which they are not responsible. And without interest, you will never get really intelligent assistance. Consequently everything depends on the personal qualities -of the officers copcerned. One man will get help where another would fail.” It can hardly, we think, be argued that under an imperial system, co-operation with the district police would be improved. The utmost that can be said, even by the advocates of imperialization, is that it could not be more ineffectual than it is at present. This, however, seems to be a distorted view of the truth. In Madras, we heard few complaints of lack of assistance. In Bengal, the Inspector-General told us that relations had improved since the railway police were brought under the Range Deputy Inspectors-General. · The Government of Bihar and Orissa say that no complaints have come to their notice, the Inspector-General of the Central Provinces says that the co-operation between the railway police and the district police is as close as that between district and district, and the administration of the North-West Frontier Province expresses itself satisfied. with the relations between the two branches in that province. In some provinces," no doubt, there is room for improvement but much can be done if the superior officers of the police will give the matter their attention. 78. We have little doubt that under an imperial system, the railway police Fould get less assistance from the district than they do at present. They would ·be looked on as stiangers*. Their officers would not be on the same terms with tho district police officers as under the present system when both belong to the samo service. It is possible, as one witness suggested to us, that they rould look on themselves as belonging to a superior service, and rouse resentment by showing what they felt. Differences might devclop which could only be settled by the intervention of the Government of India and might lead to lasting ill-feeling between the services. 79. Ye have so far considered the question mainly from the police point of view, but we think it can be shown that practically all the advantages claimed from the railway point of view for imperialization and the railway administration system can be obtained on the present provincial basis if the reforms we recommend are carried out. Those advantages are briefly :- (1) continuity of investigation (2) uniformity of procedure, (3) reduction of correspondence, (4) better co-operation and closer touch between the railways and the police, and (5) improvement in the quality of the higher officers of the railway police. The first of these will be secured by the improvement in the provincial investigating agencies proposed by us in paragrapha 88–90 below. The creation of a Central Bureau under an advisory officer recommended by us in paragraphs 86-87, will tend to secure uniformity of procedure so far as it is desirable with due regard to provincial conditions. As regards the claim that the railway administration system would lead to a reduction of correspondence, several of the railway witnesses whom we have examined seem to be under the impression that iſ an officer of the standing of a Deputy Inspector-General were put in charge of the railway police on a trunk line, tho Tailway administration would correspond entirely with him. This, we think, is a misapprehension. Most of the correspondence between railway headquarters and the railway police refers to matters of detail, such as claims, missing goods moto of time to correspond $ & post office. • bulk of the correspondence woulu StilL DE WILLL LLL Lvua, por vw. It were possible, as it might he, to reduce the number of local police officers, the actual number of letters issued would hardly be reduced, as each case must have its own series of letters. We think, therefore, that the advantage claimed for the railway adminstration system on this score will not bear examination. Better co-operation and closer touch between the railways and the police fannthin which all police 1 1 All ha 1 IT to the limits of a single province in a distinctly worse position than luey unupy. at present. Where the railway police are controlled by the local Government -1.administentione of aneh railways control om this, xtisfying rintend. ents and railway officials, we should hear very much less of the uca vi cordiality 1.1.-:... then rrado at oregent We think, moreover, to some extent pose of bringing them into closer accord. * For interesting side-ughts on the practical working of extra-tenitonal jurisdiction in the Central Prorinces and Sund in 1902, reference may be made to the extracts gren in Appendix C, which were ļaid Lelcro the Police Commission ·28 Lastly, it is claimed that imperialization would tend to keep oſlicers permans: cntly in the railway police and make them specialize in railway work and that it would help towards the pooling of experience. So far as the pooling of experience is concerned, the Central Bureau we have proposed will do all that is necessary, but the permanent retention of police officers in the railway police woull be no acvantage unless there was a certainty of getting good men to start with. Under the existing system it is always possible to get rid of an officer who is lacking in fact or capacity, but unler an inperialized system, the railways would probably be saddled with him for the whole of his service. As we explained in Chapter V, we believe that if the railway police are properly equipped for the work that they have to do there will be no lack of cilicient rcctils. Tor the reasons given by us in this and the preceding patographs, we have after full consideration come to the conclusion that the p:ovincie system should be retained, with the improvement suggested in paragraphs 86-97. 80. The English System.We have been shown some interesting notes by Rír. Robertson, Inspector-General of Police, Bombay, on the English system of railway police, from which it appears that on English lines the railway police are a department of the railway, paild by the railway company and not subject to inspection by Government. The men arc enrolled as special constables under the Companies' Acts and their power of arrest is very much the same as that of a private person under Section 59 of the Criminal Procerlurc Cude. On some lines but not on all, they are employed ils Watchmen and the amount of investigation done by them varics. On sonic railways the investigation is alwost entirely in the hands of the county police. We do not think this system suitable for existing conditions in India. We have seen that the first condition of success in India is co-operation with the district police. We have found that this co-operation is never casy to secure even where the district police and the railway police are members of the same force. But the difficulties would be increased indefinitely iſ the railways had their own police without anything to bind them, either in the shape of coninion traditions or common control, to the force on whose assistance they depended for their success. Another point which has been put to us is that for the proper discharge of their duties in connection with law and order, it is essential that the railway police in India should be servants of Government and that as employees of a company they would not carry the necessary weight. This argument, we think, is deserving of attention. (2) Thc uced for a Central Bureau. 81. It has been pointed out above that in 1904 the local Governments unanimously agreed with the Police Commission that imperialization was undesirable, that those local Governments who have given us their opinion are still against it and that they have the support of the great majority of police officers throughout the country. An inperial service, however, is one thing and a central bureau of information is another. The latter is what the Police Commission recommended and what the Government of India intended to create when they issued their resolution of the 21st of March 1905 on the recomiendations of the Commission. The following passages in the report and the resolution will make this clear. 82. In paragraph 166 of their report, the Commission wrote that they had been “much struck with the ignorance of most superintendents of what is going on outside their own districts and with the want of co-operation between police officers of different districts." In view of the assistance criminals derived from improved communications, it was essential, they held, that there should be combined action on the part of the police. « There must be systematic attention to professional offenders and criminal tribes and classes, combined arrangements for dealing with crime on main roads, rivers and railways and cordial co-operation between officers of different districts. There must be a proper system for securing regular information of the operations of organized crime, well-regulated communication of intelligence from one district or province to another, combined action- ·31 - rapidly increasing and with it the amount paid by railways as compen. for losses Yet there is still in most provinces the same párochialism that Hmmission complained of. In paragraph 174 of their report, they wrote:- " In the course of their enquiries throughout India the Commission have been deeply inspressed with two facts. The first is that much of the defective administration of the police is due to the ignorance that exists in one province of what is going on in another. Not only is there often profound and disastrous ignorance of details +7 Jethods in the railway police are still in places tooden and antiquated, and investigations are not infrequently conducted as though detection were only s secondary objcct. There is still a lack of co-operation between the forces of different provinces and a lack of understanding between the railways and the police. matinnnirot 1.1 the mothertat tonirinn US hovo 1 tions of the officer in charge vould be (i) to collect and distribute information of interest to the railway police about railway crime and the methods of dealing with it, (ii) to not of India local Governments, the Railway I and Inspectors-General of Police ży police administration. IIe should spend a considerable portion of his time on tour and should make point of conferring with the railway and police authorities in every province le visits. IIc should draw up notes embodying the results of his obscrvations and containing suggestions for improvenients in Torking, and copies of these notes should be sent to the Government of India and also to the local Govern. ments and railway administrations concerned. The central burcau must be subordinate to the Home Department. The officer in charge must, we think, be an officer of the standing of an Inspector- General. An oflicer of lower status vould not be able to deal with Inspectors- General and Agents of rail rays on terms of equality. Colonel Kaye, the Director of the Intelligence Bureau, is not in favcur of the amalgamation of the new bureau with his own. It is doubtful Thether the Director of the Intelligence Bureau would have time to exercise any real control over the work of the officer in charge and we think the simplest solution would be to create a separate bureau under an officer who might be styled Director, Razlıyay Police Burcau.* (3) The need for Special Detectite and Investigating Agencies in the Prorinces. 88. The terms of reference direct us to report how far the shortconings of the railway police are due to defecti--- minthala nf investigation. Taking their methods 2.1. detectives. * Dit. Nakl desires to add that+hile riot entuely out of symerathy with the proporal for A central Lureau, be 13 pot cofinced that there would be creogb sork to jostaly Covernment in creating one.

·30 The Central Criminal Investigation Department has specialized more and more very title of the departin one particular form of intelligence, so much so that the ment has been changed. 85. It may, however, fairly be claimed, that, so far as the Government of India are concerned, the need for a Central Bureau of Information affecting railway police work is res judicata, and that all that is now required is to give effect to the orders of 1905. The need for such a central agency is still keenly felt. Mr. L. Robertson, C.S.I., C.I.E., Inspector-General of Police in Bombay, said :- i. “What we really trant is a Director-General of Crimes and Intelligence for the whole of India. We should form a central bureau of crimes and information which would have no executive authority. It might have a number of expert detectives on its staff who will be available to go anywhere they were required and to advise the local officers when any special form of crime takes place. But its main function will be to obtain and systematize information." Mr. Holman, Deputy. Inspector-General of Police, Bombay, writes :- The only improvement I can suggest is the appointment of a Director of Railway Police for the whole of India. Such an officer would ensure uniformity of methods. He would also be responsible for the collection and dissemination of information.. He would not interfere in the internal economy of the force." and in his oral evidence he said “One case in which such an officer's functions would come in would be the registration of offences by the railway and district police in regard to which the system differs in different provinces. The duties of the Director would be to co-ordinate systems in different provinces and collect and disseminate information having particular reference to railway police work." Mr. Deighton, Inspector-General of Police in the Central Provinces, expressed the view that “It would be desirable to have a senior railway police officer attached to the Railway Board in a position somewhat analogous to the Director of Central Intelligence. He would be responsible for securing uniformity of procedure in the railway police throughout India and the appointment would result in the various railway police systems carrying weight with railway administrations. Such an officer should, however, have nothing whatever to do with the internal administration of the various Tailway police forces. He may be assisted by a small detective force for each railway. Mr. C. Stead, O.B.E., M.V.O., Assistant Inspector-General, Railway Police, Punjab, suggests the creation of a central authority having the same relations with provincial railway police forces as now obtain between the Government of India, the Central Intelligence Bureau and the Provincial Criminal Investigation Departments. The Central Bureau should be under a Director-General assisted by a Deputy Director with an efficient and representative subordinate staff.” In his oral examination he explained that the main functions of the central bureau would be the collection and analysis of information and the introduction, so far as possible, of a uniform procedure, but he contemplated also a bureau which would deal with railway cases which have wide ramifications and would be able to depute men who would act as liaison officers between the provincial agencies. The superintendent in charge of railway police in Sind, though he is in favour of maintaining the present provincial system of organization, is of opinion that a high police official Director or Inspector-General of Railway Police in India should be appointed to deal with-important questions and, where necessary, take them before the Government of India." 86. We are convinced that the case for a central bureau of information and advice for the railway police is stronger than ever. Since the Commission wrote the railway mileage has increased 50 per cent. and the number of passengers carried 171 per cent. While the tonnage has more than doubled. Crime, as we have 1 ·31 shown, is rapidly increasing and with it the amount paid by railways as compen. sation for losses. Yet there is still in most provinces the same parochialism that the Commission complained of. In paragraph 174 of their report, they wrote: "In the course of their enquiries throughout India the Commission have been deeply im. --pressed with two facts. The first is that much of the defective administration of thanolo in drn to the imati r. ! لما ب ب :1 is that unsound principles and methods are maintained without the Government of India having any knowledge of them," . Methods in the railway police are still in places wooden and antiquated, and investigations are not infrequently conducted as though detection were only :) prononderv nhiert 1 in another. We believe that if full effect had been given to the orders of 1905, many of these shortcomings in railway police work would long ago have disappeared, and " given the rail The presence prevalence o central agency which did not exist when the Commission wrote. 87. The officer in charge of the bureau would have no powers of control over the provincial railway police. He would stand to them merely in the position of adviser. We do not think it necessary to suggest that a staff of detectives should be attached to the bureau as we are recommending that special investigating agencies should be created in all provinces where they do not at present exist. The functions of the officer in charge would be to collect and distribute information of interest to the railway police about railway crime and the methods of dealing with it, (ii) to advise the Government of India, local Governments, the Railway Board, railway administrations and Inspectors-General of Police on matters connected with railway police administration. He should spend a considerable portion of his time on tour and should make a point of conferring with the railway and police authorities in every province he visits. He should draw up notes embodying the results of his observations and containing suggestions for improvements in working, and copies of these notes should be sent to the Government of India and also to the local Governments and railway administrations concerned. The central bureau must be subordinate to the Home Department. The officer in charge must, we think, be an officer of the standing of an Inspector- General. An officer of lower status would not be able to deal with Inspectors- General and Agents of railways on terms of equality. Colonel Kaye, the Director of the Intelligence Bureau, is not in favour of the amalgamation of the new bureay with his own. It is doubtful whether the Director of the Intelligence Bureau would have time to exercise any real control over the work of the officer in charge and we think the simplest solution would be to create a separate bureau under an officer who might be styled Director, Railway Police Bureau.* (3) The necd for Special Detective and Investigating Agencies in the Provinces. * rit 88. My railway of dealir tendency to shirk investigation on the ground that a case is primarily one for the nolice of another jurisdiction. The second is the very limited use that is made of detectives. *Mr. Kall desires to add tbat-obile not entirely out of sympathy with the proposal for a central lezeau, be us pot convinced that there would be enough tork to justify Government in creating Odc.

·32 In regard to the first of these defects, it must be rememberul that the great difficulty in railway, police work is to locate thefts. When a case is first reported, there may be nothing to show in which of half a dozen jurisdictions the offence was actually committed. The Criminal Procedure Code allows the case to be taken tip any one of them, but station oflicers often wiste valuable time in arguing which of them is primarily responsible. It requires constant watchfulness on the part of inspecting officers to keep this tendency within bounds. in At the same time, there are many cases in which the only chance of success is to detail a special officer for the investigation. The proportion of cases in which it is necessary to carry the investigation beyond the limits of the police station wliere the offence is registered is very large* and iſ the investigation of such cases is left to the station officer, it may entail long absences from his lisadquarters. Jis responsibility for the ordinary work of his station continnes and his anxiety on this account inevitably tends to prejudice tlıe success of his investigation. On the other hand, where a special officer is appointed he can concentrate his whole attention on the particular case. He can carry the investigation through to its conclusion without regard to the boundaries of police stations or even of provinces and he will get much more assistance from the police of other jurisdictions than a station officer whose main anxiety is to shift responsibility for the case on to some police station other than his own. The defects due to distance hamper the police and favour the criminal in other cases Desides those of theft from running trains, and the large variety of cases investigated by special agencies in provinces where they exist shows the wide use to which they can be put. The second defect in method to which we have referrer is the insuficient use that is made of detectives. Without the use of detectives it is impossible to cope with frauds involving collusion between consignors and loading clerks, cheating by booking clerks, pilferage of fruit, theſts from passenger trains, tiets of railway - material and other forms of railway criine. 89. These considerations point to the neell for a special detective and investiating agency. On this point railway police officers throughout India are almost unanimous and many railway officials have presse l the matter on our attention. In Bengal, the Punjab, Bihar and Orissa and the Central Provinces, such agencies have already been established. The following statement shows the number of cases dealt with by them :- Province. 1919, 1920. 1921 (up to 16th llarch). REAKS. Benga] 115 16G Punjab 147 37 Central Provinces † The staff did not start work until the latter part of the year. 24 14 In Bihar and Orissa the force is primarily a force of detectives. They do not as a rule investigate, and we were informed that on the East Indian Railway oring to shortage of men it has not yet been possible to employ the force on the duties for which they were intended. The Government of Bihar ånd Orissa informed us that on the Bengal-Nagpur and the Bengal and North-Western Railways the system had up to date given no marked result, but they expressed the opinion that if specially selected and trained officers and men were employed, they would undoubtedly prove useful. *We have obtained figuſes for the investigations made during 1919-20 at eight important railway polico stations in the United Provinces, the Punjab, Sind and Delhi, and find that 48 per cent of the cases necessitated enquiries from other police stations. Of the total number of investigations at seven of these stations, 3.5 per cent. involved enquiries beyond the province. We have excluded Delhi as there is some doubt about the figures. / ·83 In Bengal the functions of the department are thus described in the rules for its working :- The Detectire Department is an investigating stuff and not merely an advisory staff and sha) in na tinata --- mitted Danas goods wagoas an1 Rullivay Police, LUISTUers le Detective Department can be usefully employerl subject to the principles laid down in these rules" The Department also maintains lişts of notorious receivers and important absconders, and notes on gangs and criminals as well as district crime maps. The Inspector. General informed us that the cases actually inrestigated included cases of murder, poisoning, drugging, outraging female modesty, unnatural death, running train robberies and thefts of goods and passengers' luggage, mail van thefts, thefts of arms and ammunition, thefts from godowns snd platforms, thefts of railway and telegraph fittings, forgery, cheating, etc. The staff employed in the three sections consists of 3 inspectors, 13 sub-inspectors, 8 uşsistant sub-inspectors and 37 constables. In the Punjab the gystem of work is thus described in the rules of the Central Investigating Agency :- All matters connected with (railway crime are dealt with in the office of this Agency which by means of analytical crime maps watches carefully the incidence of crime, issues appropriate • special in 1.... details or more JUL! LUWUN. It sends detecteres to look out for pick-pockets, thans* and other professional criminals and when crime becomes epidemic in any particular section of the line, details a strong staff to tackle the situation." The executive staff consists of 3 inspectors, 3 sub-inspectors, 14 hcad constables and 50 constables and is directly under the control of the Assistant Inspector- General. The cases dealt with include cases of murder, poisoning, embezzlement of milway funds, cheating, theft, misappropriation of goods in transit, obstructions on the line, and cases under the Excise Act. In the Central Provinces there is one inspertor attached to each of the two sections. The cases investigated incinde cases of murder, theft, cheating, theft of mails, embezzlement, dacoity, obstruetions on the line, and opium smuggling. 30. The methods of dealing with railway crime are bound to improve if they are made the subject of scientific study by experts, and we consider the establishment of a chanin if the rail over, thai P this natuz personnel on which we have commented elsewhere. (1) Administration of the Railway Police within the Province. 91, The Government of India, in their Resolution of the 21st March 1905, accepted the view of the Police Commission that the railway, police should be under a Deputy Inspector-General who should also be the head of the Provincial Criminal Investiritinu Ty Small the railway police would prove a valuable auxiliary staff to the Criminal Investigation Department. The dingly been abandoned after trial Punjab and Bibar and Orissa. Provinces, though the Inspector-General of the latter is in favour of appointing a separate officer for railways. *It is explained that thage mean thieves who drug their pictims. UPC ·34 In Bombay and Bengal the control of the railway police is now merged in the ranges and Bihar and Orissa is adopting this system. In the United Provinces the Deputy Inspector-General in charge of railway police holds concurrent charge of a small range consisting of seven districts. The Punjab is the only province in which the railway police have been constituted a separate charge. 92. What we may call the range system is defended in Bengal on the ground that it tends to produce closer co-operation between the railway and the district police. In Bombay it is condemned by the principal police witnesses because officers in charge of ranges have not sufficient time to devote to railway police work, and a separate appointment for the railway police is recommended. The question is one which must be left to the different local Governments to decide, but where the charge of the railway police is combined with that of a range or the CriminalInvestigation Department, there must always be a risk of railway work being neglected. Apart from that, the appointment of a separate administrative officer for the railway police, is, it seems to us, the best method of ensuring that the control shall be in the hands of an officer who really understands and specializes in railway police work. This is certainly not the case in all provinces at present and the Committee do not believe that the best results will be obtained until there is in every province a separate administrative officer in charge of the railway police. It appears rather an expensive arrangement to have a separate Deputy Inspector-General for a force which is so much smaller than that controlled by the Deputy Inspector General of a range, and we think it is quite sufficient to appoint an officer of the rank of Assistant Inspector-General. 93. We recommend further that wherever possible, the experiment should be made of putting Deputy Superintendents in charge of sections with the powers of Superintendents. Something approaching this has been tried and is working well in the Punjab, where the 4,000 miles of line have been divided into four subdivisions, each under a Deputy Superintendent. This system would have the advantage of economizing officers of the Indian Police and giving new openings to the Provincial Service. We recognize that the case of the Punjab is exceptional aş almost the whole of the province is served by one railway and the Assistant Inspector-General is stationed at the headquarters of that failway, but we are of opinion that other local Governments should be invited to consider the extended employment of Deputy Superintendents in the railway police. 94. Another feature of the new system in the Punjab has been the abolition of divisional inspectorships, and in the United Provinces these appointments are apparently regarded as the weak spot in the system. We have not heard the same complaint elsewhere, mainly because inspectors in other provinces are almost exclusively Indians who have received training as sub-inspectors and are already qualified for the work of inspectors at the time of their appointment. The experience of the Anglo-Indian inspector, on the other hand, is limited to what he has been able to learn in the reserve lines, and, as we have mentioned elsewhere, the prospects in the police are no longer sufficient to attract the best class of Anglo- Indian boy. The abolition of inspectorships would probably necessitate an increase in the number of Deputy Superintendents, which would lead to increased efficiency. The question is not one on which we venture to make a definite recommendation, but the idea should be veniilated and considered by local Governments. (5) Training. 95. No prorince, except the Punjab, appears to have any special system of training railway police officers and men. In the Punjab the system is in its infancy. Officers are attached to the special Investigating Agency and constables who are unable to attend the central police training school are put through a simple course of law and procedure in the railway police lines. In Madras and Bombay, the view is held that no special training is necessary. This view has received the support of a few officers elsewhere, but the great majority of police witnesses in other parts of India are in favour of some form of special ·35 training wbi h should include the study of the Railway Act, the methods of railway thieves, seal checking, signalling, the line-clear system, the routine observed in loowling and parcel offices and goods sheds, railway methods of enquiry into missing goods, and so on. .....::-- -1.0i-lat It is no 1 1 there is so much that is peculiar to the rork of the railway police that arrangemients should be made for a special course of training for all ranks. doubt true that the expérience of a few years will give most men all they want, but with special training they will acquire it more rapidly and more systematically. In some provinces it may be possible to arrange for the deputation of gazetted and non-gazetted oficers to the railway for a study of traffic working. Where Central Investigating agencies are established as recommended by us, it will always be possible to attach officers for training, while special courses should be arranged for constables and head constables at the central training school or in the railway police reserve lines. (6) Strength and Reserves. 90. In almost every province we have visited we have been informed by both police and railway witnesses that the railway police are undermanned. The question of strength is essentially one for the local Governments concerned, and we could not advise on particular cases without a detailed examination of local features ion of the watch be possible, after other hand, the creation of a special cuvesugaung agency wiu eulan aawuons lu certain provinces. Another question which must be left to local Governments is that of the provision and strength of reserves. In some provinces it has been found possible to draw on the district police for special occasions such as fairs; in others police witnesses have asked for a separate reserve for the railway police. The question must be decided in the light of local conditions, and we do not feel able to suggest any general principles for guidance. (7) The need for a uniform manual. 97. There are only two provinces which have separate manuals for the railway police. Elsewhere the rules regarding the railtray police are contained in one or more chapters of the general Police Rules. The proposal for a uniform police manual for the whole of India, made by the Police Commission, was rejected by the Government of India after consulting local Governments and Administrations, the majority of whom were in favour of the proposal. It appears that the Gove ernment of India came to this conclusion with some reluctance, as in their letter asking for opinions, they expressed the view that uniformity was desirable. The proposal of the Police police manual and its & upiform railway poli The Inspectors-General o General of Police in the Unite railway work are in favour of $ime opinion, while the railiv. reduce the number of variations in procedure. We agree that uniformity of procedure is desirable in such matters as the registration and co-operation wi of the Central manual for consideration bp local Governdients. He should at the same time ur. for the railray police, the suggestion of the Police Commission which was approved lig the Government of India that certain important police records and registers should be maintained in a common form and under a com,on Dane throughout India. 1 3 ... Tanut Trenantnr. take ·56 CHAPTER I. THE WOPKING OF THE RALTAY POLICE-OVE CRITICISUS AND SUGGESTIONS. A (1) Criticisms by railiray officers. 98. The criticisms of police working made by railway officers are mainly:- (1) that they do not do enough to prerent crime, especially thefts from running trains; (2) that they are slow in taking action: and (3) that their investigating staff is inefficient and that their investigations are not carried through. The first of these criticisms raises the question of the stage at which railtray officers are justified in calling on the police for assistance in the prevention of crime. In one province we found that a clain had been put forward on behalf of a railway company that the responsibility for protecting goods on running trains rested with the police. The claim was based partly on the fact that though the protection of standing wagons was one of the specified duties of the watch and ward, the duty f mrotecting running trains had never been expressly imposed on them. This position is clearly untenable. He can see no valid ground for holding that responsibility of the railway comes to an end when the loaded wagons leave yard. The law imposes on the railways the duty of protecting at all times the perty entrusted to them. Their legal obligations are those of a bailee under ion 151 of the Indian Contract Act. They are obliged to take as much care of ds entrusted to them “as a man of ordinary prudence would, under similar umstances, take of liis own goods of the same bulk, quality and value”. Ciristances may arise in which a man of ordinary prudence would ask the police for stance in the discharge of his obligations. H He would know that the police are ind to do what they can to prevent offences, but he would not expect them assist him unless lie could show that there was a reasonable likelihood of an nce taking place. The railways are in the same position. The exact degree of lihood is no more capable of precise definition than the exact amount of care ccted of a bailee, but where there are repeated thefts from running trains on a ticular section of a line, the police are bound to give assistance. The position in regard to thefts from yards is the same. We have heard it ucd that the great majority of railway thefts are committed by railway servants, and that it is no part of the duties of the police to interfere. Cauiion is undoubtedly necessary. We have been informed of several cases in wluich police intervention has caused a strike among the menials, but where thefts have repeatedly occurred, and the railway officers ask for help, it should be given without hesitation. The case as regards trespass is different. The prevention of trespass is essentially a duty of the watch and ward, and the Railway Act gives them povers for the purpose. It is, however, the duty of the police to prevent offences of all kinds, noncognizable as well as cognizable, and cases for police intervention may arise, as for example where the stoppage of trespass is desired as a means of preventing thefts. In one province as a result of comments made by the Government Inspector for Railways on the number of trespassers who had been run over on a certain line, it was proposed that the police should be asked to prevent trespass. It was urged that railway watchmen have not the moral force necessary to enable them to use such popreis as they possess. We should hear less of this difficulty if the watchmen were members of a uniformed and disciplined force, but the prevention of trespass on railway property is primarily a matter for the railway and the fact that prevention is desired in the interests of the trespassers does not alter the position. The railway creates the danger and it is for them to protect the public against it. But as we have pointed out the police have a certain duty in regard to the prevention even of trespass, and we think it would not be unreasonable for the railway authorities to ask the police to post sentries temporarily at particularly dangerous spots when they Lad themselves done all that they could to keen ont trandaan na lamat frilast' - ·F F 99 As regards the allegation that the police are slow in getting to work, the retort Tould certainly be that the railways are more to blame than the police. We think on the whole that the retort would be justified In almost every province we have visited we have heard the same complaint that the railway station staff rill not report promptly. A month's delay is a frequent occur. rence. A delay of eighteen monthis is not unknown. We recognize that this is partly due to the fact that the railways bave to satisfy themselves that a cognizable ofierce has been committed before they repot, but we do not think their enquiries are always as expeditious as they might be. We are told also that railway subordinates are dılatory in supplying the necessary information and documents; that they send on wagons which arrive with broken seals to their destination without checking them and that there is delay about giving open delivery where open delivery is necessary for the purpose of ascertaining the nature of the property. stolen. They are also accused of apathy, if not of actual hostility, towards the investigating police. It must be recognized that the railway police work in a very different atmosphere from the district police. The latter have the personal interest of the complainant as a constant stimulus. This interest is lacking in almost all railway police cases. It is the railway which reports The owner, as a rule, shows more interest in getting his claim settled than in finding the thief. Where he has no case for compereation, he generally prefers to write off the loss, as he cannot afford the time to dance attendance on the police. This attitude is well illustrated by the criticisms of the non-official witnesses who have appeared before us Their complaints were mainly directed against what they regarded as inadequate arrangements for the protection of .property and for the settlement of claims. They showed, on the wholc, little interest in the punishment of the actual thieves. 100. We do not wish to imply that the police are always as prompt as they should be. We have seen cases in which they were guilty of dilatoriness and halfheartedness, cases where investigation: the property stolen was unidentifiable other police station, but the railway po unless the higher railway authorities wussy the need of reporting obvious thefts at once, of completing the preliminary enquiry where necessary as rapidly as possible and of putting the police in possession without delay of all the relevant facts of the case. 101. The justice of the last of the three criticisms must be admitted and we have already made suggestions for the improvement of the investigating staff. (2) Relations betwdzer railway, administrations and the police. 102. The Police Commission of 1902-03 stated that, although any subordination of the railway police to the railway authorities was impossible, they considered that every endeavour should be made by the police to maintain the most cordial relations and the fullest co-operation with the railways. Their investigation showed that a good deal of friction existe Railway officials seemed to expect and demand to too impatient of misunderstanding and criticism, Relations have altered little in the last twenty years. In the lower grades fric- --1---La natin that 1.1 ridno h] than its - superior officers, where there is tension between tuen, aus AL... the lowest grades. - In one or two provinces the relations between Superintendents of police and railway officials have not been satisfactory. Railway officers no doubt sometimes appear not to realize the statutory limitations on the powers of the police or ·SS 2 the extent of their own obligations, but we consider that the responsibilitr for the maintenance of good relations tests primarily with the police. The railirays still make large contributions towards the cost of the police force though the method of calculating the contributions has been changed, and they feel that so long as these arrangements continue they have a rigit to expect the consideration due to an employer. But the obligation which rests on the police has a more eduring foundation than an arrangement terminable at the will of the parties. The police are servants of the public and of the great public corporations, and it is their duty to see that the discharge of their functions is not made more difficult by unnecessary friction. Railmas officers often complain of the aloofness of the higher officers of the police and this we believe is the explanation of a good deal of the friction which exists. The maintenance of personal touch is essential, and Inspectors- General and their Deputies should insist on it and should themselves make a point of getting to know the higher railway officials and discussing with them the Forking of the railway police. Many of the difficulties which arise among subordinates can easily be solved by the sider experience of their superiors, and personal discussion is the best means of removing misunderstandings. We lay stress on this matter as we can hardly believe that the relations which have existed between the police and the railways in some provinces could have been allowed to continue if the higher officers of the police had been in touch with the railway administrations. In one province we were told that the Inspector-General had not visited the headquarters of the local railway for four years. (3) Co-operation between the district and the railway police. 103. The Police Commission attached great importance to the maintenance of the fullest co-operation between the railway and the district police forces and there is no police officer in India who would not endorse their opinion. They even went so far as to frame a set of rules for securing this co-operation but the Government of India came to the conclusion that the United Provinces rules were preferable though they made no definite recommendation for their adoption by other local Governments. The instructions now in force on the subject in different provinces fall into two classes,--the general, an'l the detailed. The former type is found in D[adras, the Punjab and the North-West Frontier Province, and the latter in Bombay, Bengal, Bihar and Orissa, the United Provinces and the Central Provinces. The detailed instructions have had no more effect in stimulating co-operation than the general exhortations. In the province where the instructions are fullest we found that no less than 252 t'iefts from running goods trains had taken place in nine months within the limits of a single police station, and out of these only three hal been reported to the district police although it was hardly possible to deal with the thieves without their assistance. 1 From what we have seen in different provinces we are led to the conclusion that co-operation is not a matter of rules but of men. Where co-operation is deficient, the local officers are to blame and it should be the first duty of every railway police superintendent to insist on the cultivation of friendly relations between his men and the district police and to set an example in this direction himself. Without this, rules are mere print and paper, and we can only repeat that this question of co-operation calls for the constant attention of the higher police authorities. It is especially necessary in dealing with epidemics of theft ſro:11 running goods trains. (4) Reporting of shortages. 104. One of the most vexed questions in railway police procedure is the reporting of shortages. The Committee of 1882 recommended that police inspectors should be bound to carry out the instructions of District Traffic Superintendents as regards taking up enquiries after lost or missing goods. They admitted that it was impossible to say at the outset whether these cases were cases of theft or only of inisdelivery, but they felt that the chances of success in the case of thefts would be sensibly diminished if the police were to take no action until the Traffic Departwent had satisfied themselves that the missing articles had been stolen.

·39 The Police Commission of 1902-03 in paragraph 112 of their report wrote as follows: « The practice in regard to the investigation by the police of cases of “ shortages ' or missing - Anal Arant linng it is not that The Committee of 1907, while agreeing with the Police Commission that police enquiries must be restricted to cases where there is a reasonable suspicion that a 1.3---11-17 crne being suppressed by railway subordinates. They mentioned that they had tried without success to ascertain in what percentage of reported cases missing goods were actually recovered. 105. There is still the same variety in practice that the Police Commission noted in 1902. The cases fall into two classes : (u) shortages discovered in wagons, the seals of which are intact, and (b) shortages discovered in wagons with missing or damaged seals. As regards shortages from seal-intact wagons, in Bengal, Bihar and Orissa, and the United Provinces, the practice is that all cases are reported to the police but no action is taken by them unless special features indicate theft. In other parts of India, it is left to the railway official to decide whether there are any suspicious features in the case which justify report to the police. We are convinced that the reporting of all shortages imposes on the police a considerable burden of unnecessary work. In the A Section of the railway l'olice in the United Provinces we found that during the five years, 1915--1919 orly 5 per cent of the cases reported were registered as thefts The vast majority of cases reported are petty shortages of food-stuffs. In Assam, where the system of reporting all cases of shortage was introduced in 1913, it was found in the first year after its introduction that out of 1,526 cases (in all of which investigations were made) only 146 or less than 10 per cent were ultimately classed as cases of crime. The practice has been defended as we bojo said on the ground that it attracts the attention of the police to places where shortages from seal intact wagous are frequent and that where they are frequent there is sure to be dishonesty. This may be true bit the same result can be obtained if the railway anthorities will agree to send classified summaries of shortages to the Superintendent of police every fortnight or cvery month. We understand that this practice is already in force on one important railivay. 106. The practice in regard to the second class of shortages, namely those from wagons with damaged or missing seals is more nearly uniform In Madras such cases, are taken as cases of non-criminal shortages unless there are other features shich indicate theft. In Lombay shortage accompanied by a broken ecal is not accepted as sufficient justification for asking the police to investigate, and it 18 of course, though we understand that on the Great Indian Peninsula Railway enquifies are made into cases of shortage from wagons with broken seals where the seals have been broken in a goods yard. The ground on which the Bombay procedure ·40 other jidication of having been robbed by outsilers. This position appears to us to he untenable, and we think that the police shoull segister as crimes all cases of slrortages from wagons with damaged scals as is already done in other pirts of India: 107. As regards the method of report in the police, tre lave heard many complaints from police ollicers. The information given is said to bicolien defective and the police are handicappel by the vagueness or inadequacy of the information given. This is essentially a matter for arrangement between the local police officers and the railway administration concerned, and we have no cloubt that the latter will always be prepared to give cvery assistance in the matter. 103. In one province we have founl that telegraphic reports 1 been relusad on the ground that they do not constitute information within the meaning of section 154 of the Criminal l'rocedure Code. This argument, though literally correct, is misleading, as section 157 authorizes an officer in charge of a police station to intestigate whenever, “ from information receivel or otherwise," hic has reason to suspect the commission of an offence which he is einpovered to investigate. In views of the importance of starting investigations as soon as possible, we think it very desirable that the police should not refuse to take advantage of the facilities offered by the use of the telegraph. (5) Seal cliccking. 109. In paragraph 112 of their report, the Police Commission sinted that the checking of scals was clearly the duty of the watch and ward staffand should not be imposed on the police. In paragraph so of the resolution of the 21st March 1903, the Government of India decided to leave the matter to the discretion of local Governments on the clear understanding that the functions of the police were merely auxiliary and that they accepted no responsibility. The Committee of 1907 gave their opinion as follows: Opinion among railway slicers as to thic utility of the practice varics largely. Some attach considerable value to it as forming useful check on the railway staff. Others regard it as of little usc. In the opinion of the Committee, seal checking is useful from the police point of view as a special measure for localizing theits in thc erent of an outbreak: of such crime, but it is ordinarily unnecessary for the police to perform this duty at all stations throughout the year. The Committee Have accordingly adopted the view of the Police Commission and omitted seal checking from their list of duties, but it should be open to police oflicers to employ the investigating stafi upon it when they so desire." Iu Bengal, Biharand Orissa, the Punjab, and the North-West Frontier Province it is definitely laid down that tle examination of seals is no part of the duties of the police unless there is reason to suspect the commission of a cognizable ofience. The United Provinces mannal is singular in prescribing seal checking with the object of localizing theft as one of the duties of the railway police. In practice the railway police in almost every province have found themselves compelled to resort to seal checking for the purpose specified in the United Provinces manual. In Bombay, Bengal, the Punjab, Bihar and Orissa, the North-West Frontier Province and Sind it is done as a permanent arrangement at provincial boundaries and as a temporary measure at other places where thefts are frequent. In Madras seals are checked by the police at every railway police station and wherever thefts from running trains are common. Most experienced police oficers regard seal checking by the police as esseutial, and we suggest that the practical necessities of the case might be recognized by Bringing the rules in every province into harmony with existing practice. - 110. It has been impressed on us everywhere that seal checking is a duty which Tequires care and intelligence, for which constables and chaukidars are unsuited, and that it is a duty, which is often scamped by the guards and others who are supposed to perform it. Where badly done it is seriously misleading, and some officers have urged that for its proper discharge it requires police officers of the Tank of sub-inspectors. We hardly think it necessary to go to this length, though it is advisable to have sub-inspectors in charge at provincial boundaries. In ordinary cases we think that a literate constable, if properly trained, should be capable of doing what is required.

·(6) Issue of Fire-dirms tn 12. . 111. The root.. :. vinces. The supplied with Province. In 1 different pro upution of the force 1 wijab, and the North-West Frontier suvinces weapons are borrowed from the district police Shen required. In Mndras it tras urged on us by both railway and police witnesses that fire-arns should be issued to the railway police. Our riem is that increry province occasions arise for the nam, railway police and that the members of the sun them. Where their assistance E C e osades. allacks wasament for the railway (7) Thefts from unbooked goods. 112. It is not uncommon at certain places for merchants to allow their goods to lie unbooked on railway premises for considerable periods owing to shortage of Tragons or other causes. Thefts from these unbooked goods occasionally occur, and in two provinces we have been informed that under local orders, the railway police refuse to register these offences as thefts, holding that they are really acts of misappropriation falling under section 403 of the Penal Code and therefore not cognizable. We think legal opinion should be taken as to the correctness of these orders in the provinces where they have been issued. (8) The power of search. 113. The Police Commission in paragraph 111 of their report recommended that the officer in charge of a railway police station should be given the power of search in all district police station limits through which his section of the railway runs. They based this recommendation on the fact that the railway police work was often hampered by their being unable to search premises such as gatemen's houses, porters' lines and tlie like which are close to the railway but outside their jurisdiction, and that the delay thus caused was frequently fatal to success. The Gorernment of India after consulting local Governments expressed their agreement with the Commission, but it does not appear that the recommendation has been acted on in any province except Assam. The proposal has been revived by certain witnesses in Madras, the Punjab, and Bihar and Orissa. We think the power would be a useful one for railway police officers to possess, but at the same time it does not appear that in --- e the want of it has been widely or deeply felt, or more lelave taken action on the suggestion when it was ap . CHAPTER XI. THE PROTECTION OF PASSENGERS. Jiu. In 1916, the European Association represented the need for hand.. -n of passengers travelling by night trains, Trolle to the need for improving the police artar dies the Government of India expressed the walu luat the provision police guards on passenger trains was generally adequate. Steps had also been Enor were under consideration, to ensure the safety of female pascanning or other mechanical devices. Catches had heon sai shutters, and bars to lavatory wir - tower bolts were fixed on the insic iu second class com- Zents reserved for ladies. Assaults C. passengers, it may be remarked, are not Jous considering the enormous number of people who use the railways and me heard next to no ccmplaints based ch the prosed inadequacy of the g arrangements. 40 ( ·22 7 The provision of catches and bolts on windows and floors of third and intermediate class carriages does not appear to lie necessary, but with a view to provide for the greater security of third and inferma.liate class female passengers the Indian Merchants' Association, Chittagong, aw the Bengal Malajan Sabha of Calcutta, suggested that a separate compartment adjoining the carriage reserved for females should be set apart for persons in attendance on female passengers or for their inala relatives. The suggestion is one which might be considered by railway alministrations. It has, we understand, been already adopted on the Eastern Bengal Rail- Tay. 115. Thefts of :1ggage from first and second class compartments have increased in frequency on som: lines. The thieves generallı get their opportunity when passengers are asleep, or in tlic refresiimont rooms or clining cars. Door bolts shoull, we think. be provided for all first, and second class carriages as is alıendy done on certain lines and not only for compartments satiport for larlies. The drawback to an inside bolt is that passengers sometimes make use of it to lock others out an l it has been suggesteri that a form of bolt which could be operated from the outside by the guard, as well as from the insidle, woull nucet this dilliculty. Any device of this sort would diminish the socurity: the bolt affords, and the North- Western Rai'way are trying the effect of a natio appealing to the common-sense ani good-feeling of passengers 10" to abuse the arrangements made for thcir profection. Jy case of abuse, there should be no hesitation in charging the passenger for a reserved compartment. 116. The protection of standing passenger trains is the duty of the police, and it scems hardly necessary to make suggestions as to how this cluty should be discharg. ed. -We need only add that passengers are notoriously carclass in leaving valuablo property in their compartments exposed to theft. 117. Thieſts from 3rd class passengers occur as a rule in passenger 1: alls and the protectinn affordel hy the police is often inarie quite. We have heard repeated complaints ihat the police come on duty shortly before the arrival of a train and return to their quarters immediately it has loſt. This is duc partly to undernianning ard partly to defective supervision. 118. In all provinces except Bengal and Bihar and Orissa, police guards are sent with all passenger trains at night. In Madras. Sind, and the North-West lirontier Province they are sent with some, if not all, of the day trains as well. The strength of the guard in most provinres consists of a single constable and we have almost everywhere been told that one man is of very little use. lle is apt to go to sleep ani cven if lic is aiert, he cannot watch the whole of a long train on a dark night. This view is undoubtedly correct. The strength of the patrol must rary with circumstances, but supervision is also important and in one province, where special attention has been paid to this question, the train guards in each case consist of two constables with a supervising patrol of one learl constable for each two guards. Iv addition, sergeants are detailel twice a weak for patrol duty. In some provinces police guards travel in plain clothes. The weight of experience is against the practice where the guard consists of one man, ay passengers and supervising police officers cannot find him reaclily unless he is in uniform. On tlie other hand, the man in uniform is useless for detective work. Where there is only one nian, we agree that he should be in uniform. Where there are tiro it has been found useful to have oue of them in plain clothes. Pilgrim Traffic. 119. The Committee have not considered it necessary to make any recommendations in regard to pilgrim traffic. The questions involved are mainly of a sanitary nature and have been dealt with recently by the Government of India in the Education Department. Committees were appointed in Madras, Bombay, tlic United Provinces, and Bihar and Orissa, the four provinces which contain the niost important pilgrim centres, under the chairmanship of the Sanitary Coinmissioner with the Government of India, who himself summarized the results in his letter No.1170-PI.G.-1-8 of the 27th September 1916 to the Secretary to the Government of India in the Department of Education. The orders of the Government of India ·ܫܙܩܙ ܚܚܝܕܚܐ ܙܬܐ ܙ ܘܙ88 ܕܘܐܘܕ ܘhro rܝܬܬܬܟܕ: ܕ 1 As regards the police arrangements, we have heard a fer complaints from milway subordinates in southern ...'-221.indanda. duty on the occasion of fertirals rould make no reconinendations the festival season Beyond this, tº cractions by constables. CIIAPTER XI. SEMNAEY OF RECOMENDATIONS AND COXCLUSION. (0) Summary of recommendations. 120. summary of the recommendations of thic Committee is given below. Those which they rogard as of urgent importance aro priuted in heavier type. X (1) The watch and ward should be properly organized as a rallway unit under a superior officer at the headquarters of the railway and should be entirely removed from the control of the station staff. (Paragraph 22.) 2) There should be improved supervision over the handling staff by regular officers of the recrganized watch and ward or by special travelling inspectors, and travelling parcels clerks should be employed. (Parcgraph 28.) (3) Steps should be taken to discourage rough handling. (Paragraph 23.) (4) District Traffic Superintendents should see that the system of handling contracts is not abused. (Paragraph. 30.) (5) There should be more effective protection of goods in covered wagons (a) by riveting (or locking) and (b) by the fitting of protectie plates to wigon doors. (Paragraphs 34 and 35.) (0) Improrements in the (a) lighting of station yards and goods sheds and (b) shed accommodation should be pushed on as fast as financial con- Biderations allo. (Paragraphs 36 and 38.) (7) Diore protection should be given to parcels at stations by the provision of moveable cages. (Paragraph 39.) (8) The practice of unreasonable insistence on clear receipts should be checked and open delivery should be facilitated." (Paragraph 42.) (9) Further precautions should be taken for the security of consignments of fruit and liquor. (Paragraphs 43-44.) (10) Local Governments should consider the question of extending railway police jurisdiction to private sidings in colliery areas. (Paragraph 40.) (11) The provincial system of organization should be retained. (Paragraphs (12) A Central Bureau of Jaformatiori and Advice should be created. (Paragraphs 81-87.) (13) A special detective and investigating agency for the railway police should be created in each province where not already established. (Paragraplis 88-90,7) ·th (14) The system of having a separate administrative officer, preferably an Assistant Inspector-General, is the inost satisfactory. (Paravuraplı 92.) (15) An experiment should be made of putting Deputy Superintendents in charge of sections and the question of the abolition of inspectorships considered. (Paragraphs 93-94.) (16) Special courses of training for all ranks should be arranged. (Paragraph 95.) (17) The rules on certain fundamental matters oſ procedure sbould be wiform throughout India. (Paragraph 97.) (18) The primary responsibility for maintaining good relations between the railway officials and the railway police should be considered to rest with the police, and superior officers should see to it that such relations are maintained.“ (Paragraph 102.) (19) Constant attention should be paid to promoting co-operation between the railway police and tho district policc. (Paragraph 103.) (20) The issue of telegraphic reports of shortages from scal-intact. wagons to the railway police should be discontinued and fortnightly or monthiy classified summarics substituted, and all cases of si.ortage from wagons with damaged or missing scals should be registered as theſts. (Paragraphs 105-106.) (21) Rules should be amended where necessary in regard to scal checking by the railway police. (Paragraph 109.) (22) Officers in chringe of railway police stations should be given power to search within the limits of district police stations through which their section of railway runs. (Paragraph 113.) (23) Railway administrations should consider the setting apart of compartments adjoining third and intermediate class carriages reserved for females, for the use of their attendants and relatives. (Paragraph 111.) (24) Protection should be afforded to passengers on night trains by the extended provision of bolts on doors and the employment of police guards of suitable strength. (Paragraphs 115-118.) The changes proposed involve some small additional expenditure but their adoption will, the Committee believe, save Government, the railways and the public many times their cost every year. (2ï) Conclusion. 121. The Committee wish to acknowledge the assistance and courtesy they have everywhere received not only from Government officials and railway officers, but also from the representatives of commerce and trade. In particular they are indebted to the railway administrations for the arrangements made for their tour. They also desire to place on record their appreciation of the work of the Secretary, Mr. H.C. Hunt, of the Indian Police. The high standard of his work and his devotion to duty have materially lightened their labours. J. P. THOMPSON. V H. DEL. ROSS, F. W. HANSON, R. G. NAIK, UPENDRA LAL RAY. C. ATKINS.

·A. Itinerary of the Commutice's Tour, 1927. Date. Mace. I'olice witnesses. Railway witnesses Commercial witnesses Inspections, - 18th January to 22nd January 1921. Lucknow United Provinces. Oudh ard Rohilkhand Railway Mr. L. M. Kaze, LP, ML C., Inspector Mr, F, C. Harvey, Agent. Lucknow Station and General of Police, Allahabad. Goods yard, Oudh Tieutenant-Colonel C. F. Anderson, and Rohilkhand Mr. A. F. K. Begbie, Deputy Inspector. DSO, E, General Traffic Manager, Railway. Gencral of Police, II Range, Allahabad. Mr. Y. HH. Young, 20, District Government Railway Traffic Superintendent, Bareilly Police Office, Mr. W. E. Acock, Superintendent of Police, Sitapur Khan Bahadur Mansur Al Khan, Dist. Government Railway rict Traffic Superintendent, Lucknov. Police Station. Mr. R. S. Bell, Superintendent, Govern. ment Railway Police, Gorakhpur. Mr. Walsh, Traffto Inspector, Mr. R. J. Fitzpatrick, Deputy Superin. Bir J. R O'Connor, Station Superintendent, Government Railway Police, tendent, Lucknow, Lucknow. Mr C. Naida, Station Master, Barabanki Mr. E Macleod, Inspector, Government Railway Police, Lucknow Mr MJ, Murphy, Inspector, Govcro. ment Railway Police, Moradabad. Bomhay Presidency. Great Indian Peninsula Rasłuay Mr. L Robertson, C.S.I., ICS, MLC, Mr. A. C. Rumboll, C.L.E, OBE, Agent Mfr Shamrao Sett, Office Superintendeut, Camac Bridge, Goods Inspector-General of Police. Messrs. Ralli Brothers, Depôt, BB and Mr. W. Alexander, CIE, 0.BE , General C. 1. Railway Mr. W C. Holman, Deputy Inspector Traffic Manager. Mr R D Hughes, Secretary, The Bombay General of Pslice, Southern Range, Presidency Tradce Association, Tyadi Bunder Goods Belgaun. Mr D S Barn, Deputy Traffic Manager: Depôt G, LP Railway. A 25th January to 28th January 1921. Bombay ·APPENDIX A.-09. Date. Place. Police witnesses. Rail:say witnesscs. Concrcial vitnesses. Inspection. 25th January to 29th January 1921-contıl. Bombay-conld. Victoria Terminus G. R. P. Si tio!. Mr. P. O'Brien, Superintendent, Core Jr. E. R. (rokic, District Traffic Suporin. Jír. L. U. Vougini, Jastrz ni ilic Boinly trament svarbu..y Polics, Bombay, tendent, Poinbay. Presidency Trades.l-ociation. Baroda and Central Iudha Ruilwiry, Bombay. JIr. J. D. Flynn, Gooils Superintendent, Jr. J. W. Linion), l'roprietor of Pyrko's Vicioria Terminus. Store. Mr. W. Y. Austin, Deputy Superintendent, Gavermucnt Railway Police, Mr. T. c. diums, Stition Superintendent, Jr. J. 1. Fernande. representing Pjonal. l'ictoria Tcrminus. Jessrs. Phillips and Company. Mr. W. Birl, Insprctor, Gorernment Jir. T.C. (i synne, District Trafic Inspecto Jr. V. A. Grantham. rapresaring the Railway l’olice. Victoriit Terminus. or, Jalgaon. lomba; Chrber of Comerrc. Mr. M. D. Rege, Sub-Inspector. Covern. Rao Sahel, C. A. Gokhala, Issistant Sta. Vr. Devidas Ladhavji Tiikersny. Vic. pull Railwy Police, Victoria Ter. tion farte: (Gools), Ponil. Chmirman, Thc Bonbury Vitive liere miinus, Goods Merchants sijon. G. T. P. Superinten. dient's Otlice, B. B ord C. I. Ry. (oliz. bril. Port Trust Gools Sheds and Sidings. 46 Bombay, Berola and Central India Priscay. Nr. 1V. P. I'cchey, Cicnerid Tronic Vanaber. Ir. Ilan-rij l'r? Tinkeroy, licc.(inir. man, 'The Imion lorshontz' Clumber and Bucall. Jir. 11. \\'. Circen, District Trafic Super. Jr. Misri lal Sarangi. Honorary Serretary, intendent (Clanny Section). The Jarmilri Chamuler of Cosalicrec. Jr. A. G. 'Tydd, Cioodz Igent, Carnac Buidye. jler3. Tata Sons, limited, Lombay. Mr. Jchangirji, Station Master, l'aroiin. 29th January 1921 Almedabad way Police. Mr. Garside, Inspector, Covernment Roil- 'The Secretary, The Orain Jerchant' sa sociation, Bombay. Jr. Cobarillanblini Tesarbhani Patri. Sec. Ahmedabad Iniluras rotary, The Mill-ownicm' bronciation. Station Prri'c 2010 Goods yarda 1

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·. API'ENDIX A.-contd. Date, Place. Polico witnesses. Railway witnesses. Commercial witnesses. Inspections. South Indian Railway. 6th February 1921 Trichinopoly .... Mr. R. M. Logan, V.D., Agent Mr. A. W. Acres, M.I.T., General Traffic Manager. Mr. C. S. Rowbotham, V.D., Doputy Traſſic Vanager, (Claims Branch). Mr. W. E. Higman, District Traffic Sup. crintendent, Aladura. Mr. T. W. Parker, Traffic Inspector, Trichinopoly. 48 Mr. F. M. Merrit, Station Blaster, Nadura. Mr. M. S. Ramchandra Iyer, Station Master, Trichinopoly Fort. 7th February 1921 Madura G. R. P. Station. Mr. V. J. Devavarnm, Sub-Inspector, Governmont Railway Police, Madura. Dadura Railway Station Parcels Office, Goods and Transliip ment sheds, 7th February 1921 Bangalore Mr. B. K. Garudachar, President, Mysoro Chamber of Commerce, Bangalore. DIr. W. C. Roso, Managor, Bank of Mysore, Bangalore. ÀIr. S. Raja Rao (retired Traffio Ing. pector), Claims Agent, Bangalore. + . سن

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·F / APPENDIX A-contd. Date. Placo. Polico witnesscs. Railway witnesses. Commercial witnesses. Inspections. East Indian Railıcay. Mr. C. M. Ilindlos, Agents -11th February to 17th| Calcutta(conid.) February 1921- (contd) Colonel P. C. Sheridan, C. 11, G., Goncral Trallic dianager. dr. 4. E. Harrison, Trafic Inspector, Howrah. Mr. J. B. Hamilton, Goods Inspector, Blokameh Ghat. '78th Tobruary 1921 Chandpur .... 19th and 20th Feb. Chittagong . ruary 1921. Babu Kalka Porshad, Station Master, Jumna Bridge Goods and transhipment yards. Assam Police. desam Bengal Railtray. Nr. A. R. Gilcs, Superintendent, Gorcrn. | Mr. T. R. Nolan, Agent. Ur. A T Leishman, representing the Thc Jetties. iment Railway Police, Cluittagong, Chittagong and Naraingunj Chambers Dr. A. J. Cooper, V.D., Trafic Janager. of Commerce. Maulvi Syed Hashmatullah, Inspector, Government Railway Polico, Chitta- | Mr. T. L. Bucuan, District Trafio Super. Jr. Upendra Johan Pal and Nr. gong. intendent, Jottics. Amarchand, representing the Indian Merchants' lssociation, Chittagong. Babu Upendra Chandra Deb, Inspector, Mr. J. C. Purcell, Assistant District Government Railway Police, Badarpur. Traffic Superintendent (Commercial). WIr. Nadir Ali Chaudhri, B.L., representing tho Chittagong Traders' Associa- Mr. P. C. Janes, Supervising Stntion tion. Master, Chandpur. Mr. Akhoy Kumar Sarkar, Professor of Babu M. Ghosh, Station Master, Gauhati. History, representing the Chittagong Collcgo Co-operativo Credit Society. t 2 1st February 1921 Lumding .6 G. R. P. Station.

·Police. L.E, Inspector 1 Nr. A. T. ITalliday, Superintendent of Police, C. I. D., Shillong. 3 25th February 1921 Nathali . Asansol ... .... Ral Sabeb Mano Alohan Labir, M L C. Rai Bahadar Promodo Chandra Dutta, MLLC Mr. For, representing the Surma Valley Branch of the Indian Tea Association. Mr. Play fair, representing the Assam Valley Branch of tho Indian Tea A880- ciation Babu Ramani Mohan Dan, NLC. Khan Bahadur Mohibuddin Ahmed, LLC. .. 26th February 1021 Mokameh Chat and Mokamch. ... 27th February 1021 Taroci ollice. Moghal Sara! Asansol Railway Sta. t10n-Parcel Office and Good yard. Asansol G. R. P. Sta. .... tion- OP 1 28th February to lst March 1921 Benares ..., Transdipment station, Goods yards and offices. 0. R. P. 1 Station, Mokameb. Goods yards and Parcels Office. G. R. P. Station. Dihar. East Indian Railway. Dr. F R. Ezechiel. Superintendent, Gov. Mr. 11. E. Presswell, Divisonal Trafic Ms. B. P. Halder, Proprietor, Annapurna ernment Railway Police, Patna, East Blanager (Claims), Cawpporo. Pharmacy, Cantonments Iadian Railway G. R. P. Station, Benares ·APPENDIX A-conlil. . Placo. Railway witnesses. Police witncsscs. Dalc. Commercial witnessci. Inspections. 28th Tebruary to ist Benares--conld. Miuroh 1021mconld. t Belir-conid. East Indian Railway-contıl. Babu P. D. Migrn, Deputy Superintend. Mr. D. M. S. Robertson, District Traſlic Mesirs. S.C. Mullick & Co., Merchants, Parcels Orice, Denares Superintendent, Allahabad. cnt, Government Railway Police, Benarca. Cantonment. l'atna, East Indian Railway. Bengal and North-Western Railwaij. Babu Bishwanath Prasad, Cloth Icrchant, Bohu t'rudar Narain Kur, Inspector, Jaunpur. Government Pnilwny Police, Gaya, Lt. Col. W. P. Tzat, D.S.D., R.E., Agent Enst Indian Railway. Nicssrs. Mohammad Ikram & Co., Dr. A. D. White, Trafic Inspector, Merchants, Benares. Mohommci Alciul Aizir, Sub-Inspector. Gorakhpur. Government Railway Police, United Mr. Malionmad Ali, Crain Merchant, Provincs, Benares Cantonment. Mr. E. Lucas, Station Visler, Sonepur. Benarcy. 52 Babu Sanok Lal Jhin, Station Master, Babu Parmeshwar Dyal, Clotlı Merchant, Chapra Jaunpur. Bahu Jridayal Madan Gopal, Cloth More chants, Denarcs. Mossrs. Abhoy Pain Chunilal, Crain Merchant. Lcuarcy, Babu Bislieshwar Prasad, Merchant, Benarcs. Messrs. Murlidhar Kaluram, Crnin Dealers, Benares. Messrs. Mohaminnal Jain Mohammad Siddiq, Sugar Merchant, Jsenarch. Dahu Cauri Shankar Prasad, Vakil, Benares. MouschSuresh Chunder Mukerji and Company, Morclunnis, Donaru...

·And March to 6th Marca 1921. Nagpur Mr. J. R. Wilson, Secretary, Bihar Plan- Ters' Assocation d'azzallarporo. Rai Babwar Radha Krishna Jolaa Mere cbant, Patna City. Babu Debi Prasbad Dhandansa, Merchant Bhagalpur, Central Provinces. B. I W. Derghton, Inspoctor-Gederal of Police. Mr. LC E Burst, Additional Superin. tendent of Police, Savgor. Mfr A.C Mayberry, Deputy Supetratend. cat, Government Radway Police, Eastern Section, Raipur, Bengal Nagpur Railway. Dr. W.C. Glackan, Inspector, Govern ment Ralway Polace, Nagpur. Mr. Sharu Muhammad Khan, Circle Inspector, Government Railway Police, Western Section, Hoshangabad, Great India Powasula Railway. 16. Baj Nath, Keala Sub-Inspector, Government Railway Police, Itarsi. Mr. Mazhar Naqi, Sub-Inspector, Gore ernment Reway Polre, Raspaik dir. Tarjibhor Jlormuez, Cotton Agent. GR. P. Station Empresa Mulls, Yeotwal. Goods Yards, L. Kihabhar of the firm of A. Adamj.. Whoy, General Merchants, Raspur. Me, Balkrishna' Nathani, Merchant, Raipur. Dr. Wobammad Yskub, Kotwal, Kampice. Hyderabad Deraan air. F. C. Crawford, Deputy Inspector. Ceneral, Railway Police, Myderabad (Deccan) Nuam's Guarsateed State Railway. Mr. Sorabji Mehta, Manager, Empress Nulls, Nagpur Mr Akbar Ali Bohamedals Hassan, representiog the Nagpur Merchants Association.

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·17th March to 19tb Lahore Marob 1921, 1 li "Punjab. Dr. C.G. D. Farqubsr, Inspoctor General 3. F. A. Hadow, Agent, North-West- Lala Diwan Chand, Proergools Merchant, Office of the Assistent of Police. em Raul way. Amritsar. Inspector General, and the Central In- Dr. M. O. Stead, 1.70., Assistant In. Mr. V. A. Boalth, Traffic Manager Lala Ratin Chand, O. B. E. President: vestigating Agency. spector General, Government Railway Tho Tea Traders' Association, Amritsar, Police, Labore. Mr. N. F. Schofield, Assistant Traffic G. R. Police, Station, Khan Bahadur Abdul Hakim, Deputy Superintendent (Claims) Babu Jathra Das, Mull Owner and Secre Lahoro Junction, Superintendent, Government Rawas tary, tho Bar Factory Association, Ly alll'ohce, A Section, North-Western Rau. Dir. O D. Jordan, Trallio Inspector. pur. Lahore Junction say. Parcels Office and Goods shel. Baulvi Chulam Dastgir, Inspector of Mr. C.C. Ryan, Station Superintendent, Lala Pritam Dags, President, Indian Police, Contral Investigating Agency, Labore Junction. Blerchantal Association, Lyalipur. Government Railway Polico, Lahore North-West Frontier Province Mr. E w. Tomkins, CIE, OBE, Mr Sheikh Muhammad, Troprietor, Inspector-General of Police, The Colony Iloor Mills, Lyall pur. Khan Saheb Rana Tala Muhammad Khan, Officiating Superintendent of of Police, Kobat Maulvi Syed Ali Shah, Inspector of Police. Bihar. Bengal and North-Western Railway Me R. 8 Macrao, C.LE, B.E, Deputy Mr. J. Westwood, ON csating Trafic Ir. 8 M. Bose, Allahabad Inspector General, C.I.D., Patna G. P. R Station, Cavn. Manager, Gorakhpur. poro, E.I.R Mr. J. G. Ryan, Secretary, The Upper India Chamber of Commerce, Mr T. al. Cook, Superintendent, Gov. Mr. G. Brown, District Trafic Supenn- Cawapore Coods Sheds. ernment Ralway Police, Khargpur. tendent. Lala Khush Buksh Rai, Representing O. and R, Ry. Nesers. B N. Rama and Company, B. B. aad C. Í Ry. Babu Inder Son Sachar, Inspector, General Merchants, Allahabad. Government Railway Police, Rengal and North-Western Railway, Samasti- Mr Bhagwant Narain Tandan, represent-E. I. Railway, ptir. ing The Nazna Glas Works, Allahabad Baba Gopal Dass, Manager, the Trbeni Desbi Sugar Works, Naini, Allahabad. 55 23rd March to 30th Cawnporo Marcb 1921. G. 1. P. Railway

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·58 APPENDIX B. Paragraph 48 of the report of the Railway Police Commillee, 1907. The revised classification of duties is as follows: 1.-GOVERNMENT RAILWAY POLIOL. CLASS A.-Crime. (Rank and file to be paid for cntirely by Gorernmcnl.) (1) Detection and investigation of offences cognizable by the railway police. (2) Inquiry and report under section 132 of the Railway Act, IX of 1890. (3) The arrest and detention of olienders in cognizable cascs and other cases in which arrest is authorized by law. (4) Thc prosecution in court of cognizable offences and non-cognizable offences under the Railway Act. (5) The reporting of all instances of oppression and fraud on the part of railway subordinates or others. (6) The travelling in passenger trains of specially selected officers and men for the prevention and detection of criinc and for the surveillance of suspicious persons, (7) The entry in prescribed registers and books of offences, reports and complaints of all descriptions brought to the notice of the police. CLASS B.-Orier. (Rank and file to be paid for entirely by railways.) - (1) Control of passenger traffic inside the station premises more particularly on the plat. forms, in the booking offices, waiting halls and at the entrance and exit gates and wherever specially required on emergencics by the station officials. (2) The control of vehicular and other traffic in the station compound. (3) The maintenance of order in standing passenger trains, prevention of overcrowding, etc. (4) Watching loaded passenger trains when standing in stations. (5) The arrest of those found committing nuisances or sufiering from infectious diseases and keeping the station premises clear of idlers and beggars. (6) The examinations of all empty carriages on arrival at terminal stations for property left behind by passengers and to see that carriage fittings have not been tampered with. (7) The removal of bodies of persons dying in the train and on station premises and corveyance to hospital of sick passengers. II.-RAILWAY WATCHMEN, (IVatch and I'ard). (To be administered and paid for by thic Railway Company.) (1) Guarding of all goods sheds and yards. (2) Guarding of goods trains when standing at stations. (3) Guarding of brake and luggage vans. (4) Guarding of all railway offices and buildings. (5) Any other duties of like nature assigned to them. -- ·69 APPENDIX C. (1) Extract from paragraph 103 of a" Statement of the cose into which the Police Commission is 10 enquire " fortearded to the Government of India with letter No. 9388, dated the 23rd October 1902 from the Central Provinces Administration, 103. Unofficial opinion had little to say on this subject. Official opinion strongly condemzed the system in force on the short lengths of the East Indian, Indun Midland and Rajputana-Malwa Railways. It was condemned as involving (1) Lack of co-operation betwecn the distnct and railway police, which was thougbt to be practically unavoidable amongst native ofhcials of separately organized depart nients. (2) Remoteness of supervision over the railway police as the superior officers must be stationed at long distances apart. This also involves & want of touch with the District Alagistrate. Inconveniences of the system are most felt at Jubbulpore, where the railway station at head quarters is in charge of the East Indian Railway Police. It was stated that the district rolice и ще делавшише pugieu Tue Day: dhe Volllll pagisile ulu WITEG 212ce to the railway In Nimarit rag said that un'a.ts come down small stations on the Rajputana-Malwa (2) Extract from Ictter No. 22, dated the Ist September 1909, from the District Angestrate, Sukkur to the Comm25820ner in Sind As regards the Railway Police Administration in this Province there is but one opinion, Miz. that the present extraordinary conditions should be done asray with. The whole of the railway police, over & system extending for upwards of 700 miles, is in charge of a young officer of the Punjab police whose headquarters are at Karachi He is under no local control, being departmentally subordinate only to the Inspector-General of the Punjab. The officer in charge (we are speaking impersonally, as there have been several) practically ignores not only the District Superintendents of Police, but the District Magistrates, Some of these are, and have beew; personally unacquainted with him. The personnel of the railway police is also inspitable, consisting as it does largely of Punjabıs, who are absolutely useless as regards co-operation with the district police. There is no co-operation and ay utter want of sympatbeto borking.

·60 APPEN Statement showing the strength of the Railıcay STIESGTH OF RALTAY POLICE FORCE 1919. Presidency Railway Police District. lile. age. Prorince. Superintendent. A.S. P. or D. S. P. Inspectora. Scrgcants. Suh.Inspectors. Hcad Constables. Constables, Hadras Madras 2,171 1 1 1 5 32 73 62 Trichincpols 1,512 1 11 5 7 29 76 607. TOTAL 4,013 10 12 61 149 1,229 Bombay 1.935 mend 1 6 IS 96 387 Bombay, including Sind. Poona 1,655 1 1 7 6 119 575 Sind 766 .1 . 3 3 12 64 290 TUTAL 3,656 CUS fant 15 13 54 272 1.252 1 Bengal Howrah .. 623 1 1 . 10 38 255 Sealdal 765 1 6 S 49 296 Saidpur 1,021 ܢܚܙ 10 3 52 291 TOTAL 2,409 3 19 20 96 148 832 United Provinces A. Section Agra 1,477 1 1 6 11 44 59 400 B. Section Lucknow 1,678 hands 1 6 9 35 498 1,995 ܝܙ 1 5 1 3+ 30 C. Section Goralih. pur. 25+ TOTAL 5,150 3 3 17 21 113 133 1,102 Punjab Lahore 4,027 1 4 9 19 260 1,177 -- Bilar and Orissa Patna 942 1 I 1A 1 28 47 239 Samastipur 1,012 1 2 13 24 151 .. mo Kharagpur 1,117 1 4 1 9 35 190 TOTAL 3,071 2 10 2 63 106 579 Central Provinces Raipur 1,270 1 1 1 1 9 27 107 Hoshangabad .. 1,699 1 1 CT 22 5: 203 TOTAL 2,909 2 2 S 6 31. 81 370 dasam Chittagong 1,144 1 3 1 15 24 101 North-West Frontier Province. Peshawar 305 1 1 1 4 17 166 CRLD TOTAL 26,774 . 17 15! 92 95 494 1,190 0,571 ·GL DIX D. Police and Crime dealt with during 1919. AVERAGE. CRISE (1919), Namber of Police stations, RESTARKS, Mücage per police etation. Number of invento £ations per police station. Reported Intest gated. Convicted. 21 103 123 2,839 2,628 1,254 ) M.S JL, B. N., P.K. L and N.O. Jiatlsays 1,079 S. I. Railway 17 103 195 9,3.37 2,117 39 100 193 5,179 4,745 2,333 10 124 230 2,587 2,497 457 B. B. and C. I. Radway. 00S G. I. P. and US B. Railways, 13 230 183 2,532 2,403 11 70 7.29 1,517 1,422 220 N. v. Rallway. 31 108 186 6,699 6,332 1,595 13 226 4,574 2,933 13 89 85 - 1,553 2,104 816E I Railway. 154 ) E. B. Railway 207 E. B. and B D. Rail says. 28 57 60 1,141 1,009 65 115 7,271 0,031 1,177 24 67 181 4,611 3,98+ 803 II and G. I P. Railways. 23 73 2,207 2,100 419 0. and I., and N. W. Railways. 28 78 2,283 9,120 397 Band N, T., 11, K. and C. A. Railways - 73 71 113 9,191 8,270 1,015 30 13! 107 3,010 3,208 23 41 103 3,008 2,499 638 N W.,L.I, B. B and CI,G IP. and J. B Railways. 368 | C I Radway. 192 ) B. and X. W, Railway. 28! B. X. Railway. 112 130 1,170 1,170 13 86 115 1,520 1,493 45 08 115 5,098 5,141 892 181 133 1,191 919 105 | BN Railpay. 14 121 123 2,114 1,721 309 G. I. P., II, and B. B and C I. Railways, 21 141 127 3,233 2,0.9 50-1 12 95 50 596 115 A B., D. S. and J. P. Radways. 78 64 214 214 37N, W. Ry 301 89 120 41,315 30,2.38 2,018 ·Sirin prima ling I'rrittre l'#8851 Ini L. Iue." .. 0 Til . Biotin mitalu 5 vi - -- r 1,319 10.1 Jial .. 1,621 D'ni 1.031 1.1.1 3 Unite l'orios.. .I.S.;*:,.1***.. 11 111 1.075 14 . 3.00 T... 5.01. Junjab N .. 1:2r nulozi..).. *** .::7): SI IS N!... .;!97 1.117 S3 Tel . Con...! Provinsen 1971 003 Ileadinga, 1:17:! 1.69 1.2117 13 1,779 Total Act11n Chittoon 12 1 499 Pesh.sar Norih-lettron. tiur l'rovince. 2.75 1 50 ISI Cr:130) Torv... 1,127 21,771 1,146 30,9:S *(4.35s 1.Olienrringainst the State, public tranquillit:, safety and justice. Cluss 11.-Serious oficnery against the pur-01. Class III.-Scrious oferecs ngainst person and property, or agai!kst proport; onli. .

·03 DIY L. Bo the six* classes of offences, 1915 anıl 1919. 19 9 DIFFERENT REMARKS I II 111 IY Y YI TOTAL + 6 EN 1 1,914 DG) 2,552 9.39 23 15 27 2 1,113 MI 2,327 219 28 37 73 3,337 1,801 1,179 1,203 12 80 2,909 175 1,821 15 CO ! 003 293 9,554 1,221 15 PS 30 6 1,351 CS 1,347 218 iv 82 196 D 5,903 466 6,698 3,963 10 40 613 5 3,850 673 4,574 . 123(a) Ime Indag Bihar and Orissa Bllvage 08 for 1913 15 17 78 6 1918 183 1,053 13 101 5 SGO 148 20 36 • 70 213 16 5,911 110 7,271 171 30 37 63 1 4,212 278 4,011 2,076 31 244 18 2,093 129 319 2.397 .. 26 40 19 2,016 163 2,283 877 60 100 90 1 8,351 869 2.272 9191 3 73 8 2 2,113 394 3,210 127 24 5 97 1,314 3,178 20 II 20 1 16] 105 1,170 452 - (6)Mileage for 1918 included in Dengal (Howrah) from which L'ihar and Orissa was separated in 1916 (c) Figures for 1916. 7 27 6 IOG 63 no 345 : 1,520 64 63 303 12 4,976 270 6,618 2,111 6 974 62 73 4 1,121 156 6 1,907 27 99 335 2,114 .. 9 23 491 1340 2 2,891 171 3,233 I fin 4965 FO MI 09 . 11 6491 es 12 4 8 158 33 32 214 301 41,345 10417 454 1,209 49 34,629 4,662 CLASA IV - Minor offences against the pereon. 15 Vinor off-repe ay unet pimperts CLASS VI -Otlier ofitaceg not specited abo e.

·AT'ITY SH! city of thrf: frond gues . - 4 I'm ifrary or J'rollorc. Inila slaliin IX tri!. 11:72 15 1. Min:lr.1.1 ,. 13 Trilin:fily T.. :1), 2. including 1.... I'-»1:11 .. Tu! Icarnl.. Hermosil 19 13. 11 15 7 .. T::: 4.3 l':itel I'morinrr.. 1. Setinn, 1,57a Co 071 1.070 11. Sa, 1388.719 904 1. Sredini, Give aps 4 . I'una Lalerien Hihir and Orisan 1'.:11.1. Sin.. tipur form ܙ ,] lihatajalle 17 . To:1 717 119 . Central I'rovirice Raipur 175 11 IS 20 llo-hangulod C4 Toin 603 25 07 9S 90 Aanm. Chilingong 77 3 SS on 17 C North-West Fronti. Peshawar cr I'rovince. .. .. 93 17 21 GRAND TOTAL 0,598 336 11,227 DIS 059 7,176 1,778 ·DIXF. trains, etc., reported during 1915 and 1919. TIENTS FROM PASSEXGERS. AssatLTS OX FEMALE PASSENGERS. 1915. 1919, 1915. 1919 RYNARES Reported. Convicted. Reported. Convicted. Reported. Conficted Reported. Convicted 218 93 339 152 2 3 282 84 327 153 3 . 530 177 605 307 7 3 2 73 19 109 20 1 1 75 100 213 43 321 55 1 1 391 02 630 75 2 1 2 2 272 82 33+ 89 3 2 7 162 69 171 67 2 137 49 172 53 1 1 3 571 199 697 209 6 5 10 5 419 92 615 141 3 1 297 77 392 98 2 2 1 273 445 97 1 2 989 238 1,482 339 6 3 4 298 220 674 517 5 4 9 3 CO * 137 5 3 91 45 114 5 3 09 39 117 64 3 250 84 369 69 6 1 7 169 23 123 28 3 413 19 489 74 4 891 75 712 102 7 2 15 7 63 26 .. .. .. .. -- 3.625 16 35 1,061 6,191 1,674 39 16 ·./10 - ۰۲ : ۴ 25 / 9 !r: : : : : . :: - .:: !..1- 55 : : : : : : : : : ::۱۴ ۰۰ : ۶ دیا، اس :۰۹ ۰۰۰ : ؟ و بعه مس بها 1.5 :.. ۱۴۰.۰۰۰:: :: :: :: :: ،، . ۰ 1. :: !! . . ب م { ۰ ۰ ۰۰۰ : 1 :: ::۱۰ پا : ) ؟ -.:: :: .:.: S ::!!:: :: :: :: :: :: } ، {1351 : . :: (): !!. :: 1 ... }}. ! . ! : : : : : . 1:۳:۰۹۱۱ ۲۱:!!:: : : : : : . " .۱۱۱ 8:۱۰::: :: :: :: :: يا 1!:::: :: :::::::۰۱۲'۲۰۰۰۰ :: :: :: :: . :. كنا ! :: :: ::1.4 : ۳:A : ۹t براء 11:11.1.2..1 15 1 11 :: :: :: ! A9 ز. :: :: :: :: ::۱۴در انواده های مهم ات,. م - ه م

·67
APPENDIX H.
Stalement comparing the work of railways in 1902 (ddle of Police Commission) and 1919 20.
Phileage, earnings, etc
1902
1919-20,
Bilenge of railways open
25,931
38,735
RS, 33,92,€9,00n
89,15,32,000
Gross eamings
Number of passengers carried
196,649,000
633,180,400
Tonnage of goods moved
87,630,000
45,537,000
92,527,000
162 161 000
Train mileage, Goods and Coaching
Number of railway servants employed
312,617
711,000

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