1931 Donoughmore Reforms

Background

• British colonial reforms began in 1833, with follow-ups in 1910, 1920, and 1924.
• By the late 1920s, Britain believed Ceylon was ready for broader political
responsibilities.
• Donoughmore reforms introduced a responsible governing system for locals.

Reasons for Donoughmore Reforms

Weaknesses of the 1924 Manning Devonshire Reforms

• Disconnection between power & responsibility made governance inefficient.

• Both local leaders & British Governor demanded a better system.

Influence of the Indian Freedom Movement

• India’s independence struggle was intense & effective.

• Britain feared Ceylon’s movement would escalate and wanted to pacify local leaders
with reforms.

Labour Party Government in Britain

• Britain had a two-party system (Conservatives & Labour).

• Labour Party (late 1920s) supported lenient colonial policies, granting broader
reforms.

British Rulers Were Impressed with the Ceylonese

• Compared to other colonies, Ceylonese leaders were seen as politically mature.

• Britain believed Ceylon deserved more political autonomy.

Decolonization & Dominion Status

• By the 1920s, colonies were no longer profitable for Britain.

• Britain began decolonization, with dominion status (self-governance) as the first step.
• Donoughmore reforms laid the foundation for this transition in Ceylon.
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Response of Locals to Donoughmore Reforms

Despite the bold political features introduced, local leaders were divided in their responses.
Different groups had different demands, leading to discontent rather than unanimous acceptance.

1. Sinhalese Leaders
o Supported Dominion Status but rejected Universal Franchise.
o Believed the local population lacked political maturity for such a system.
2. Minority Leaders (Tamil, Muslim & Others)
o Rejected both Dominion Status and Universal Franchise.
o Feared Sinhalese majority would suppress minorities and deny them political
rights.
3. Upcountry (Kandyan) Leaders
o Demanded Federal Status instead of Dominion Status.
o Argued that Upcountry, Low-country, and Northern regions had distinct
populations.
o Proposed dividing Sri Lanka into three provinces under a federal system.

Main Features of Donoughmore Reforms

I. Universal Franchise – Granted voting rights to all men and women above 21 years, regardless
of ethnicity or wealth.

II. Abolishing Communal Representation – Replaced communal representation with territorial

representation to reduce ethnic divisions.

III. Establishing the State Council – Created a single-chamber State Council with 50 elected
members and 8 appointed members to handle governance.

IV. The Executive Committee System – Introduced committees responsible for different
government sectors, each led by elected members.

V. The Board of Ministers – A governing body consisting of executive committee chairmen to

oversee administration.

VI. The Three State Officials – Key British officials retained power:

• Governor (held veto powers).

• Chief Secretary (oversaw administration).
• Financial Secretary (controlled finances).

VII. Keeping the Governor Away from Political Institutes and Political Conflicts – Limited
the Governor’s direct involvement in governance while retaining ultimate authority.
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Donoughmore Reforms (1931) – Universal Franchise

Introduction:

• Limited franchise introduced in 1910 (only for rich, educated adult males).
• Donoughmore Commission granted universal franchise (all adults, regardless of gender,
wealth, or education).
• Ceylon = First British colony to receive universal franchise.

Reasons for Universal Franchise:

1. Laying foundation for dominion status – Needed politically mature citizens.

2. Ending elite monopoly – Political power was controlled by the elite class.
3. Establishing representative democracy – Previous councils didn’t truly represent the
people.
4. Balancing rural & urban development – Cities were developing rapidly, while villages
were ignored.
5. Empowering welfare services – Politicians had to focus on public welfare due to voting
rights.

Application of Universal Franchise:

• Every male & female citizen (21+) got voting rights.

• First election in 1931 (54% voter turnout, 76% in Panadura).
• Foreigners residing in Ceylon could also vote.

Outcomes of Universal Franchise:

1. Improved political maturity – Increased voter awareness & participation.

2. Foundation for dominion status & independence – Led to 1947 Soulbury Constitution
& 1972 Republic.
3. Ended elite political monopoly – Equal political rights for all citizens.
4. Birth of political party system – Formation of Lanka Sama Samaja Party (1935) &
others.
5. Authentic representative democracy – People directly elected their representatives.
6. People sovereignty – Power shifted to the people.
7. Rural development – Politicians started focusing on villages.
8. Introduction of welfare services – Free education, labor laws, Govijanapada program.
9. Responsible governance – Politicians became more accountable.
10. Impact on the labor movement – Welfare programs reduced labor movement
enthusiasm.
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Abolishing Communal Representation

Introduction:

• Introduced in 1833 (Colebrook-Cameron Reforms) – Unofficial legislative members

chosen based on ethnicity.
• British "Divide & Rule" strategy – Created ethnic conflicts to weaken the National
Movement.
• Continued in later reforms (1910, 1920, 1924) – Regional representation introduced,
but communal representation remained.

Consequences of Communal Representation:

• Ethnic Conflicts:
o 1915 Sinhala-Muslim Riots
o 1920 Colombo Seat Conflict (Sinhalese vs. Tamils)
• Political Division – Ethnic groups competing for power rather than national unity.

Donoughmore Reforms – Abolishing Communal Representation:

• The Donoughmore Commission identified communal representation as a major

obstacle to political progress.
• Replaced it with regional representation + universal franchise.
• Commission's Statement: “Communal representation is a cancer on the political body of
Ceylon.”

Impact & Long-Term Effects:

✅ Encouraged national unity in elections.

✅ Reduced British influence over ethnic divisions.
❌ Decades of division had already caused damage, leading to post-independence ethnic
conflicts.
❌ Civil war (1983-2009) was partly rooted in historical ethnic tensions.

Establishing the State Council (1931 Donoughmore Reforms)

Introduction:

• Key feature of Donoughmore Reforms – Combined executive and legislative councils

into one body.
• Reason for Formation:
o Previously, locals had limited executive experience.
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 o The Donoughmore Commission aimed to train local leaders for future self-
governance.
o Preparation for Dominion Status.

Structure of the State Council:

• 61 members total:
o 50 elected members (regional representation & universal franchise).
o 8 nominated members (to represent unrepresented minorities).
o 3 state officials (consultants).
• First Speaker: Sir Francis Molamure (1931).
• Sessions:
o Met twice a week – one day as legislature, one day as executive committees.
o 7 executive committees (excluding speaker & state officials).

Powers & Tasks of the State Council:

1. Passing Laws
✅ Had some power to approve bills.
❌ Governor's interference – Could approve, postpone, amend, demand a 2/3 majority,
or veto bills.
2. Financial Management
✅ Allowed to pass annual budgets and financial estimates.
❌ Limited power due to British-appointed Financial Secretary's authority.
3. Controlling the Executive
✅ Power to pass a no-confidence motion.
❌ Could only remove local representatives, not British state officials.
❌ No-confidence motions were rare since executive members were also part of the
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legislature.
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 4. Amending the Constitution
❌ Completely prohibited – Only the British Parliament could amend or create a new
constitution.

Significance of the State Council:

✅ Provided local leaders with executive & financial management experience.

✅ Foundation for Dominion Status & future independence.
✅ Trained future leaders & politicians for post-independence Ceylon.
✅ Began the Speaker tradition in Sri Lanka’s Parliament.
❌ Limited legislative power – British Governor retained control.

The Executive Committee System

Introduction:

• Purpose:
o The Donoughmore Commission sought to maximize local participation in
executive affairs.
o Avoided a Cabinet System to allow all members of the legislature to be
involved in executive duties.
o Modeled on the British local government authority system.

Structure:

• 7 Executive Committees were formed to handle different executive areas:

1. Executive Committee of Health
2. Executive Committee of Education
3. Executive Committee of Local Government
4. Executive Committee of Local Affairs
5. Executive Committee of Land and Agriculture
6. Executive Committee of Trade and Commerce
7. Executive Committee of Roads, Postal, Communication, and Common Affairs
• Committee Composition:
o Members (57 total) were randomly assigned to one of the committees.
o Each committee had 7-9 members, with a chairman chosen internally.
o The chairman of each committee was appointed Minister by the Governor (e.g.,
C.W.W. Kannangara for Education).

Roles of Executive Committees:

•
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Each committee handled annual estimates, budgets, administration, and other key
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tasks in their specific areas.

 • Decisions made in each committee were passed to the Board of Ministers via the
committee chairman.

Advantages:

1. Local Leaders Trained in Executive Affairs:

o Unlike previous reforms, local leaders gained practical experience in executive
tasks.
2. Increased Value of State Council Membership:
o All members had the opportunity to be part of the executive, raising their
influence.
3. Justice for Minority Groups:
o Minority groups were represented through 8 nominated members, allowing them
to also participate in executive duties.
4. Improvement of Representative Democracy:
o More public representatives had direct involvement in the executive, expanding
democratic engagement.

Disadvantages:

1. Lack of Coordination Between Committees:

o Committees often worked independently, with poor communication, resulting in
inefficiencies.
Example: Committees acted like "7 horses pulling a chariot in 7 different
directions" (Professor Ivor Jennings).
2. Lack of Teamwork Within Committees:
o The absence of political parties caused difficulties in collaboration and decision-
making.
3. Inexperience in Executive Tasks:
o Local leaders lacked prior experience in managing executive functions, leading
to poor prioritization.
Example: Some committees spent minimal time on important matters (e.g., the
budget) and excessive time on trivial ones (e.g., a pilgrim rest house).
4. Overpowering Independent Members:
o Without political party alignment, independent members could wield excessive
influence, causing obstacles.

Conclusion:

• Despite its weaknesses, the Executive Committee System marked a milestone in Sri
Lankan political history by exposing local leaders to executive functions and contributing
to political experience.
• Ultimately inefficient, but essential for political training and exposure.
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Board of Ministers:

Introduction:

• The Board of Ministers, established under the 1931 Donoughmore reforms, laid the
foundation for Sri Lanka's future cabinet system.
• Composition:
o The board consisted of 10 members:
▪ 7 Executive Committee Chairmen (local ministers)
▪ 3 British state officials
• The Chairmen of the executive committees were appointed to the Board by the
Governor. If a committee chairman was refused appointment to the Board, their position
as chairman was invalidated.

Purpose & Role:

• The Donoughmore Commission's Goal:

o The commission intended for local ministers to coordinate with British officials
to learn the functions of a cabinet system.
• The State Secretary (General Secretary) was considered the head of the Board.
• Quorum:
o For a meeting, the quorum was 3 British officials and 3 local ministers, ensuring
a balance of power.
• Main Tasks:
o Oversee the executive activities of the committees.
o Implement proposals and plans passed in the State Council and approved by the
Governor.

Impact:

• The Board served as a crucial step towards local ministers learning how to manage
executive affairs, while still under the guidance of the British officials.
• Despite the local ministers holding a majority, the 3 British officials had significant
influence, effectively acting as spies for the Governor, ensuring the continuity of British
control.

Three State Officials:

The Three British State Officials were central to the Donoughmore political system, and they
were positioned both in the executive and the legislature. These officials held permanent seats
in the State Council and the Board of Ministers, acting as critical guides for local
representatives who were inexperienced in legislative and executive affairs.
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The Three State Officials:

 1. State Secretary (General Secretary)
2. Finance Secretary
3. Legal Secretary

Roles and Powers:

1. State Secretary:

• Most powerful position of the three

• Head of the Board of Ministers and practically served as the acting governor.
• Scope of duties:
o Oversaw the public sector, defense, security, and police.
o Managed foreign affairs.
o Possessed the national seal in the governor’s absence.

2. Finance Secretary:

• Managed all financial affairs of the government.

• Local representatives needed approval from the Finance Secretary to use government
funds.
• Scope of duties:
o Taxation decisions, preparing the annual budget, and controlling
governmental loans.
o Provided financial consultancy to local representatives.
o In charge of currency issuance, government treasury, and salaries of public
servants.

3. Legal Secretary:

• Responsible for overseeing the judiciary and providing legal consultancy to local
representatives.
• Scope of duties:
o Judiciary administration, overseeing civil and criminal courts.
o Managed state council elections and provided legal advice to local ministers.

Impact and Criticisms:

• Despite being referred to as consultants, these officials were extremely powerful and
acted as administrative heads rather than just advisors.
• Local ministers often faced obstacles as their decisions required approval from the three
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British officials, particularly for legal, financial, and crown approval.

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 • Example: C.W.W. Kannangara faced significant resistance from the Finance Secretary
when trying to implement free education.
• The state officials held separate meetings with the Governor, making important
decisions and often acting as an internal cabinet, influencing both executive and
legislative decisions.
• Even though they could not vote in the State Council, their ability to vote in the Board
of Ministers gave them substantial influence.

Perceptions:

• Criticisms:
o Some viewed the state officials as "watchdogs" for the British Empire, acting in
their role as protectors of British interests.
o Locals eventually formed good relationships with these officials, and post-
WWII, some local representatives even filled these positions (e.g., Oliver
Goonetilake as Finance Secretary).

The Tasks of the Three British Officials:

1. Guiding and Consulting local representatives.

2. Maintaining coordination between the locals and the Governor, who was kept separate
from political institutions.
3. Protecting British interests by acting as spies and ensuring British control over the
political system.

Governor's Role:

• Under the Donoughmore reforms, the Governor's role was intended to be more
ceremonial, staying away from political conflicts and direct involvement in the
governance of the country.
• Despite this, the Governor still held vast powers in the political system and could exert
influence over the local political structure.

Powers of the Governor under the Donoughmore Reforms:

The Governor under the 1931 Donoughmore Reforms held substantial powers, though these
were designed to be more ceremonial and separate from the political processes. The reforms
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aimed to protect the reputation of the Governor, as he represented the British Crown, and thus,
he was kept away from direct political involvement. His powers and tasks were categorized
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into different areas:

i. Traditional Powers:

1. Using the National Seal: The Governor had the authority to use the national seal as a
symbol of his power and authority.
2. Governor’s Pardon: The Governor could grant pardons to individuals, an act of mercy
or legal forgiveness.
3. Foreign Policy: The Governor held the authority to oversee and engage in foreign policy,
making decisions that aligned with British interests.
4. Commanding the Armed Forces: The Governor was the Commander-in-Chief of the
armed forces, though this role was often more symbolic.
5. Participating in Social Functions: As the head of state, the Governor would attend
social events and functions in an official capacity, representing the Crown.

ii. Tasks Related to Public Service:

• The Governor was responsible for overseeing public service matters, including:
o Appointments, promotions, terminations, transfers, and disciplinary actions
within the public service.
o These tasks were carried out with the assistance of the Public Service
Commission, which provided consultations on public service matters.

iii. Executive Tasks:

• The Governor had several powers related to executive functions, with specific actions
that could be taken:
1. Approve legislation.
2. Postpone approval for up to 6 months.
3. Withhold approval for the Crown’s review.
4. Return legislation to the State Council with a request for a 2/3rd majority.
5. Amend and return legislation to the State Council.
6. Veto legislation if deemed inappropriate.
• The Manning Devonshire Reforms in 1931 outlined 10 acts that the Governor should
not approve, adding another 7 acts that had special considerations, including:
1. Acts impacting the rights and benefits of public servants.
2. Acts detrimental to financial stability.
3. Acts posing a threat to national or public security.
4. Acts related to foreign trade.
5. Acts affecting the rights of religious/ethnic groups.
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6. Acts related to the protection of minority groups.

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7. Acts involving judicial administration.

iv. Tasks Under Special Circumstances:

• The Governor had discretion in certain situations, including:

1. Taxation decisions, where the Governor could make independent decisions based
on national needs.
2. Approving the budget or estimations that were rejected by the State Council.
3. Implementing laws without the need for approval from the State Council if
necessary.

v. Tasks Under Emergency Circumstances:

• In emergencies, the Governor could take more direct action, including:

1. Law enforcement to maintain order and stability.
2. Taking over any department to ensure continuity and governance in times of
crisis.

vi. Legislative Tasks:

• The Governor had several powers related to the State Council and legislative functions:
1. Opening the State Council for new sessions and addressing it when necessary.
2. Nominating 8 members to the State Council to represent minority groups,
ensuring their inclusion in legislative processes.
3. Dissolving the State Council in certain situations, such as:
▪ If the annual budget was rejected twice.
▪ If the annual budget was not approved within 2 months.
▪ If an impeachment was passed against the Board of Ministers.
▪ When the Governor deemed it necessary, for political stability or other
concerns.

Governor's Role in Political Bodies:

• Under the Donoughmore reforms, the Governor was deliberately kept away from all
political bodies, which included:
o State Council
o Board of Ministers
o Executive Council
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• The Governor’s coordination with political bodies was mediated through the 3 British
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state officials (State Secretary, Finance Secretary, and Legal Secretary), who acted as
 watchdogs for the Governor's interests and ensured that political decisions aligned with
the Crown’s wishes.

In summary, while the Governor was designed to be a more ceremonial figure in the
Donoughmore system, he still held considerable powers, especially regarding foreign policy,
executive control, and emergency decision-making. His role was kept separate from political
conflicts, but he still played a significant part in governance through his control over legislative,
executive, and emergency powers.

Other Important Features of Donoughmore Reforms:

The Donoughmore Reforms (1931) marked a significant turning point in Sri Lanka's political
history, introducing features that reshaped the country's governance and political system. These
reforms laid the foundation for many of the political systems in use today, and several key
elements can be identified as noteworthy:

1. The Public Service Commission:

• Role and Powers: The Public Service Commission, appointed by the British rulers,
played a critical role in overseeing the public service, which included:
o Appointments
o Promotions
o Transfers
o Disciplinary actions
o Terminations
• The commission was composed of the 3 British state officials and operated under the
direct supervision of the Governor. This further restricted local representatives’ authority
in administrative matters, limiting their control over public service.

2. The Speaker Tradition:

• Prior to the Donoughmore Reforms, the Governor chaired the legislature, a tradition
inherited from earlier reforms like the Colebrook Reforms (1833).
• In 1924, a Deputy Chairman was appointed within the legislature, though the Governor
still held the official chair.
• The Donoughmore Reforms introduced the Speaker Tradition, where a Speaker was
elected to chair the State Council, establishing a more localized and democratic
legislative process.
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3. Foundation for the Modern Political System:

• Before 1931, the Ceylon political system was dominated by an elite class, and politics
was largely controlled by the British. The limited franchise further entrenched this
system.
• The Donoughmore Reforms introduced:
o Universal franchise
o Executive committees
o Political parties
• These reforms democratized Sri Lankan politics, providing opportunities for the general
public to participate in governance, fundamentally transforming the system from a
colonial governance structure to one where elections and political parties played
significant roles.

Positive Features of the Donoughmore Reforms:

The reforms led to numerous positive outcomes, including:

1. Introduction of Universal Franchise:

o Ceylon became the first British colony to grant universal suffrage.
o Democratic values were established, and citizens became more politically
mature.
2. Political Knowledge and Maturity:
o The introduction of elections and universal franchise increased political
awareness among the public.
o Political parties formed, contributing to the development of a political system
based on public participation.
3. Political Equality:
o The elite class lost their privileged position, and political equality was realized.
4. Welfare Services and Policy Changes:
o Welfare services were introduced and prioritized by politicians, improving
citizens' access to basic needs.
o Sri Lanka transitioned from a classical liberal state to one more focused on the
welfare of its citizens.
5. Political Unity:
o The general population became politically united, transcending ethnic,
religious, and caste divisions.
6. Abolition of Communal Representation:
o Communal representation was removed, helping reduce ethnic tensions, though
by this time, these tensions had already escalated.
7. Empowerment of Local Representatives:
o Local representatives had the opportunity to participate in executive affairs and
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gain experience, which later benefited post-independence leadership.

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8. Exposure to Executive Affairs:

 o The Board of Ministers provided local representatives with valuable experience
in executive governance.
9. Foundation for the Cabinet System:
o The Board of Ministers laid the groundwork for Sri Lanka’s cabinet system,
which came into full effect after independence.
10. Increased Local Control:
o Local leaders were given control over 7 out of 10 executive areas such as
education, health, and agriculture.
11. Freedom for Local Representatives:
o Local representatives had more freedom to engage in governance, as the
Governor was kept away from political institutes.
12. Inclusion of Minority Groups:
o Minority groups had the opportunity to participate in executive affairs under the
executive committee system.

Negative Features of the Donoughmore Reforms:

Despite its many positive outcomes, the Donoughmore Reforms had some significant drawbacks:

1. Negative Effects of Universal Franchise:

o Politicians began using populist tactics, like false promises and temporary
giveaways, to win elections, leading to a more superficial form of political
engagement rather than policy-based politics.
2. Weaknesses of the Executive Committee System:
o The executive committee system suffered from inefficiency, lack of
communication, and poor prioritization due to the inexperience of local leaders.
3. Lack of Collective Responsibility:
o Local representatives had limited collective responsibility for the annual
budget, which hindered teamwork and led to self-centeredness among them.
4. Limitations Despite Local Control:
o Even with 70% of executive powers in local hands, key areas like state finance
and legal matters were still controlled by the 3 British state officials, limiting
local autonomy.
5. Inefficiency in Executive Departments:
o The lack of experience in local leaders led to inefficiency in the departments
under the executive committees.
6. Dependency on Welfare Services:
o The growth of welfare services led to a dependency culture, where the public
relied more on government support than on proactive social change or labor
movements.
7. Decline of the Labor Movement:
o The labor movement, initially advocating for universal franchise, faced a decline
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after the reforms, as the public became more accustomed to government-

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provided welfare.
Conclusion:

The Donoughmore Reforms were a landmark in Sri Lanka's political evolution, aiming to lay
the foundation for dominance status and self-rule. After 16 years of implementation, these
reforms paved the way for Sri Lanka’s dominion status in 1947, culminating in the
establishment of a cabinet-style government under the Soulbury Reforms. Despite its
challenges, the Donoughmore system significantly shaped Sri Lanka's modern political
landscape, introducing democratic values and a more inclusive political structure.

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