While the law was thus sternly enforced, important acts of conciliation and measures of reform were carried out simultaneously. In 1907 two natives, a Hindu and a Mahommedan, were appointed to the secretary of state's council; and in 1909 another native, a Hindu barrister, was for the first time appointed, as legal member, to the council of the viceroy. Occasion was taken of the fiftieth anniversary of the assumption by the crown of the government of India to address a message (on November 2, 1908) by the king-emperor to the princes and peoples, reviewing in stately language the later development, and containing these memorable words:--
"From the first, the principle of representative institutions began to be gradually introduced, and the time has come when, in the judgment of my viceroy and governor-general and others of my counsellors, that principle may be prudently extended. Important classes among you, representing ideas that have been fostered and encouraged by British rule, claim equality of citizenship, and a greater share in legislation and government. The politic satisfaction of such a claim will strengthen, not impair, existing authority and power. Administration will be all the more efficient if the officers who conduct it have greater opportunities of regular contact with those whom it affects and with those who influence and reflect common opinion about it."
The policy here adumbrated was (at least partly) carried into effect by parliament in the Indian Councils Act 1909, which reconstituted all the legislative councils by the addition of members directly elected, and conferred upon these councils wider powers of discussion. It further authorized the addition of two members to the executive councils at Madras and Bombay, and the creation of an executive council in Bengal and also (subject to conditions) in other provinces under a lieutenant-governor. Regulations for bringing the act into operation were issued by the governor-general in council, with the approval of the secretary of state, in November 1909. They provided (_inter alia_) for a non-official majority in all of the provincial councils, but not in that of the governor-general; for an elaborate system of election of members by organized constituencies; for nomination where direct election is not appropriate; and for the separate representation of Mahommedans and other special interests. They also contain provisions authorizing the asking of supplementary questions, the moving and discussion of resolutions on any matter of public interest and the annual consideration of the contents of the budget. In brief, the legislative councils were not only enlarged, but transformed into debating bodies, with the power of criticizing the executive. The first elections took place during December 1909, with results that showed widespread interest and were generally accepted as satisfactory. The new council of the governor-general met in the following month.