Since the inauguration of the non-co-operation movement the Government
of India actuated by a desire to avoid anything in the nature of the
repression of political activity, even though it was of an extreme
character, have restricted their action in relation thereto to such
measures as were necessary for the maintenance of law and order and the
preservation of public tranquility. Up to November no steps, save in
Delhi last year, were taken against the volunteer associations. In
November, however, the Government were confronted with a new and
dangerous situation. In the course of the past year, there had been
systematic attempts to tamper with the loyalty of the soldiers and the
police, and there had occurred numerous outbreaks of serious disorders,
directly attributable to the propaganda of the non-co-operation party
amongst the ignorant and excitable masses. These outbreaks had resulted
in grave loss of life, the growth of a dangerous spirit of lawlessness,
and increasing disregard for lawful authority. In November they
culminated in the grave riots in Bombay, in which 53 persons lost their
lives and approximately 400 were wounded. On the same date dangerous
manifestations of lawlessness occurred in many other places, and at this
period it became clear that many of the volunteer associations had
embarked on a systematic campaign of violence, intimidation and
obstruction, to combat which proceedings under the Penal Code and the
Code of Criminal procedure had proved ineffective.