The changes at the provincial level were very significant, as the provincial legislative councils contained a considerable majority of elected members. In a system called "dyarchy," the nation-building departments of government were placed under ministers who were individually responsible to the legislature. The departments that made up the "steel frame" of British rule were retained by executive councilors who were nominated by the Governor. They were often, but not always, British and who were responsible to the governor. The Act of 1919 introduced Diarchy in the provinces. Accordingly, the Rights of the Central and Provincial Governments were divided in clear-cut terms. The central list included rights over defence, foreign affairs, telegraphs, railways, postal, foreign trade etc. The provincial list dealt with the affairs like health, sanitation, education, public work, irrigation, jail, police, justice etc. The powers which were not included in the state list vested in the hands of the Centre. In case of any conflict between the 'reserved' and 'unreserved' powers of the State (the former included finance, police, revenue, publication of books, etc. and the latter included health, sanitation, local-self government etc.), the Governor had its final say. In 1921, the "Diarchy" was installed in Bengal, Madras, Bombay, the United Provinces, the Central Provinces, the Punjab, Bihar and Orissa, and Assam; in 1932 it was extended to the North-West Frontier Province.