The reforms of 1909–12 were clearly unlikely to satisfy the extremists' demands for self-government, and in fact went but a small way to conciliate the moderates. At any rate Mr. Montagu, who was deputed with a small committee to consult the Indian government and politicians, had no doubts on the score. The Act of 19191 therefore authorized the governor-general in council to declare any territory to be a backward tract, and with the sanction of the Home Government to direct that the Government of India Act should apply to the territory subject to such exceptions and modifications as he might prescribe. The many matters dealt with by rules under the Act were to be effected by rules made by the governor-general in council with the sanction of the secretary of state in council, and such rules were not alterable by any legislature.