MacDonnell Commission

The MacDonnell Commission, officially known as the Famine Commission of 1900, was established by the British Government in India under the chairmanship of Sir Anthony Patrick MacDonnell. The Commission was constituted to examine the causes, administration, and prevention of famines in colonial India, following a series of devastating famines that had occurred during the late 19th century. The Commission’s findings and recommendations had a lasting impact on British famine policy and the development of relief administration in India.

Historical Background

India experienced several catastrophic famines under British rule, many of which resulted in large-scale mortality and economic distress. The Great Famine of 1876–78, affecting Madras, Bombay, and Mysore, claimed millions of lives. This disaster led to the formation of the first Famine Commission in 1880, headed by Sir Richard Strachey, which formulated the Famine Code of 1883 — a set of guidelines for famine relief operations.
However, despite the existence of this code, subsequent famines continued to devastate the country. The Indian Famine of 1896–97, which affected large parts of Central India, Punjab, and the Deccan, once again exposed the inadequacies of the colonial administration’s famine relief policies. In response, the Government of India appointed another commission in 1900, under Sir Anthony MacDonnell, to review and improve existing famine policies.

Composition and Purpose

The MacDonnell Famine Commission was appointed by Lord Curzon, the then Viceroy of India. Sir Anthony MacDonnell, who had served as the Lieutenant-Governor of Bengal and was known for his administrative expertise, chaired the Commission. The other members included senior British officials and experts in agriculture, finance, and administration.
The Commission was tasked with:

• Reviewing the effectiveness of existing famine relief measures.
• Examining the economic and administrative causes of recurrent famines.
• Recommending improvements to the Famine Code of 1883.
• Suggesting measures for prevention, prediction, and management of food scarcity.

The Commission undertook extensive field visits, collected data from provinces, interviewed officials and local inhabitants, and analysed the impact of government policies on food distribution and rural distress.

Causes of Famines Identified

The MacDonnell Commission identified a combination of natural, economic, and administrative factors responsible for recurring famines in India.

• Failure of Monsoons: Irregular rainfall was the immediate natural cause leading to crop failure and scarcity of food grains.
• Poverty and Agrarian Distress: High land revenue demands, indebtedness, and lack of irrigation facilities made peasants vulnerable to even minor climatic shocks.
• Defective Transport and Communication: Poor infrastructure hindered the movement of food grains from surplus to deficit regions.
• Administrative Delays: Inefficiencies in implementing relief measures often aggravated the suffering of affected populations.
• Market and Price Mechanisms: The absence of effective regulation of grain prices led to speculative hoarding and artificial scarcity during droughts.

Key Recommendations

The MacDonnell Commission presented a comprehensive set of recommendations designed to strengthen famine prevention and relief mechanisms. These recommendations became the foundation of famine policy in India for the early 20th century.

1. Permanent Famine Relief Organisation: Each province should establish a permanent department responsible for famine relief and monitoring food security.
2. Revision of the Famine Code: The Famine Code of 1883 was to be revised to include clear and uniform guidelines for identifying famine conditions, declaring famine, and executing relief measures.
3. Gratuitous Relief and Employment: The Commission advocated providing relief works (employment for able-bodied persons) and free rations (for those unable to work) to affected populations.
4. Irrigation Development: Emphasis was placed on expanding irrigation infrastructure to reduce dependence on rainfall and mitigate the effects of drought.
5. Improvement of Agriculture: The Commission urged the introduction of improved agricultural techniques, better seeds, and diversification of crops to enhance resilience.
6. Food Reserves and Transport: Provincial governments were advised to maintain grain reserves and ensure adequate transportation facilities for rapid movement of food supplies during scarcity.
7. Early Warning and Forecasting: It recommended the establishment of a system for early detection of crop failure through meteorological and agricultural data collection.
8. Public Health and Migration Control: The Commission called for medical aid and measures to prevent the spread of disease during famine migrations.

Implementation and Impact

Following the report, the Government of India revised the Famine Code in 1901, incorporating most of the Commission’s recommendations. The revised code introduced:

• Defined criteria for declaring a famine or scarcity.
• Clear administrative responsibilities for relief distribution.
• Guidelines for wage rates, food rations, and work conditions on relief projects.
• Greater coordination between provincial governments and the central administration.

The establishment of permanent famine relief departments and improvement of irrigation networks, especially in provinces like Punjab and the United Provinces, significantly improved the government’s ability to respond to future famines.
Although famines did not disappear entirely after 1900, the severity and mortality rates of subsequent ones were markedly reduced. The improved transport infrastructure, growth of railways, and better communication systems also enhanced relief operations.

Criticism and Limitations

Despite its progressive nature for the period, the MacDonnell Commission faced several criticisms:

• It did not adequately address structural poverty and land revenue policies that perpetuated agrarian distress.
• Its approach remained relief-oriented rather than focusing on the long-term economic development of rural communities.
• The Commission’s recommendations were administrative rather than empowering, maintaining the top-down colonial control over famine management.
• Some scholars argue that while the Commission improved bureaucratic efficiency, it failed to acknowledge the exploitative nature of colonial economic policies that contributed to recurrent famines.

Legacy and Significance

The MacDonnell Commission of 1900 marked a turning point in the history of famine policy in colonial India. It institutionalised famine relief measures, leading to a more systematic and predictable approach to managing food crises.
Its legacy includes:

• The codification of famine policy through the revised Famine Codes.
• The establishment of permanent relief machinery at the provincial level.
• Strengthened administrative preparedness for droughts and food shortages.
• The gradual recognition of irrigation and agricultural improvement as tools of famine prevention.