By the early 1920s, the British administration in India faced severe administrative strain. The introduction of the Montagu-Chelmsford Reforms (Government of India Act 1919) established a system of Diarchy in the provinces, transferring certain departments to Indian ministers. This political shift, coupled with the rising momentum of the Non-Cooperation Movement led by Mahatma Gandhi, created widespread resentment among British civil servants who feared a dilution of their authority and privileges. Concurrently, Indian nationalist leaders demanded a rapid “Indianization” of the superior civil services and simultaneous examinations. To resolve these compounding grievances and examine the structure, remuneration, and composition of the superior services, the British Government appointed the Royal Commission on the Superior Civil Services in India in 1923.
Appointment and Composition
The Commission was appointed in 1923 and submitted its comprehensive report in 1924.
- Chairman: Arthur Hamilton Lee, 1st Viscount Lee of Fareham.
- Composition: In a bid to balance interests, the Commission was composed of an equal number of British and Indian members (four British, four Indian, plus the Chairman).
Key Recommendations of the Commission
The Lee Commission’s recommendations targeted three main areas: the division of services, accelerated Indianization, and financial safeguards for European officers.
Classification and Reorganisation of Services
The Commission recommended a clear demarcation of the superior public services based on the nature of their administration under the Diarchy system:
- All-India Services (Reserved Branches): Services operating in fields retained under the direct control of the Governor-in-Council (such as the Indian Civil Service, Indian Police, Indian Irrigation Service, and parts of the Indian Forest Service) were to continue as All-India Services. Recruitment and control remained with the Secretary of State for India.
- Transferred Fields: In departments transferred to Indian Ministers under Diarchy (such as Education, Agriculture, Civil Medical, and Public Works), further recruitment for All-India Services was stopped. Future personnel for these branches were to be recruited and controlled exclusively by the local Provincial Governments, leading to the growth of provincial cadres.
Accelerated Indianization of the ICS
To address nationalist demands while retaining British control over core administrative positions, the Commission proposed a calculated timeline for Indianization:
- A 50:50 parity between Europeans and Indians in the Indian Civil Service (ICS) was to be achieved within 15 years (by 1939).
- The recruitment split for future annual vacancies in the ICS was fixed at 40% Europeans direct recruitment, 40% Indians direct recruitment, and 20% promotion from the Provincial Civil Services.
Indianization Targets across Superior Services
The Commission established varied recruitment ratios for other key branches to introduce more Indians into the administration:
| Public Service Branch | Direct European Recruitment | Direct Indian Recruitment | Promotion from Provincial Service |
| Indian Civil Service (ICS) | 40% | 40% | 20% |
| Indian Police (IP) | 50% | 30% | 20% |
| Indian Forest Service (IFS) | 25% | 75% | — |
| Indian Service of Engineers (ISE) | 40% | 60% | — |
Establishment of a Public Service Commission
The Commission strongly emphasized the immediate implementation of Section 96C of the Government of India Act 1919. It insisted on the statutory setup of an independent, non-political Public Service Commission to protect the services from political leverage and manage standardized recruitments. This directly resulted in the creation of the Central Public Service Commission in 1926.
Financial Concessions and Safeguards for European Officers
To stem the tide of early retirements and resignations among British officers, the Commission recommended substantial economic incentives, collectively known as the “Lee Concessions”:
- Lee Passages: European officers and their wives were granted free return passages to Britain during their service tenure.
- Enhanced Remuneration: Substantial increases in basic pay, overseas allowances, and sterling pensions.
- Medical Privileges: Guaranteed access to medical attendance by European military or civil medical officers for themselves and their families.
Historical Significance and Analysis
The Lee Commission report was a compromise document. For the British administration, it successfully stabilized the morale of European officers and secured British dominance over core executive departments (Revenue, Law and Order) through the 50:50 parity rule. For the Indian national movement, it marked a step forward by formalizing provincial control over developmental departments (Education, Health) and forcing the British to commit to a fixed timeline for Indianization. However, nationalist leaders criticized the “Lee Concessions” as a financial drain on the Indian exchequer and viewed the 15-year timeline for parity as too slow an evolution toward self-governance.
Last Modified: June 9, 2026