# White Paper on Indian States (1950)/Part 5/Provincially-merged States/Orissa and Chhattisgarh States

​95. Merger of Orissa and Chhattisgarh States.—The problem of integration was first faced in Orissa where the States formed scattered bits of territory with no geographical contiguity. The political future of these ​States had been considered by a Sub-committee appointed by the Simon Commission. This Sub-committee, which was presided over by Mr. C. R. Attlee, had expressed the view that the Orissa feudatory States should be brought into relationship with any administrative set-up for Orissa. Subsequent committees of inquiry relating to the setting up of Orissa as a separate Province were all of the opinion that the problem of Orissa States could not be divorced from that of the rest of the Province. Nothing, however, was done to implement the recommendations for integrating the Orissa States with the Orissa Province. The problem of the Chhattisgarh States, which were geographically and linguistically linked with the Central Provinces, was similar to that of the Orissa States.
96. It was against this background that in the second week of December, 1947, the Hon'ble Sardar Vallabhbhai Patel visited Cuttack and Nagpur. The interests of the people no less than those of the Rulers of these States as also the wider interests of the country, demanded a direct recourse to the obvious solution of the problem, which had been delayed so long under the old regime. Sardar Patel had long discussions with the Rulers of these States and it was eventually decided to integrate these small States with the adjoining provinces. This important decision, the implementation of which was facilitated by the helpful attitude of the Rulers, securely laid the foundation of the policy of the integration of the small States.
On 16th December, 1947, the Hon'ble Minister for States issued a statement (Appendix X) explaining the background of the Agreement reached with the Rulers of the Orissa and Chhattisgarh States, in the course of which he stressed the following important points:—
97. The Orissa and Chhatisgarh States numbering 39 covered an area of about 50,000 square miles with a revenue of rupees 20 millions and a ​population of 7 millions. The agreements (Appendix XI) signed by the Rulers of these States on 14th December, 1947, and subsequent dates, provide for cession by them to the Dominion Government of full and exclusive authority, jurisdiction and powers for, and in relation to, the governance of their States.
98. The administration of these States was made over to the Governments of Orissa and the Central Provinces on 1st January, 1948. The Ruler of the Central India State of Makrai also later signed a similar agreement and the administration of the State was integrated with that of the Central Provinces with effect from 1st February, 1948. The 25 States which merged with Orissa under these arrangements included Seraikella and Kharsawan. On further consideration, however, it was realised that on account of the situation of these two States as island territories in Singhbhum district it was impossible for any Government other than that responsible for the administration of that District to administer them effectively. The Government of India accordingly took over from the Government of Orissa the administration of these States and made it over to the Government of Bihar on 18th May, 1948.
99. The only Eastern State which was not affected by the merger negotiations in December 1947 was Mayurbhanj which had an area of 4,084 square miles and a population of a little under one million. On 17th October, 1948 the Ruler of this State also signed an Instrument of merger (Appendix XII); the State was taken over by the Government of India on 9th November, 1948 and a Chief Commissioner appointed to administer it. On 1st January, 1949, the State was merged with the Province of Orissa.
APPENDIX X
Sardar Patel's Statement of 16th December, 1947
The public has already received through the Press and over the radio a fairly clear and detailed picture of the settlement which I have reached, during the course of my visit to Orissa and C.P. and Berar, with the Rulers of Orissa and Chattisgrah States on the problem of integration of those States with their neighbouring Provinces. I feel, however, that for a correct appreciation of this important event it is necessary for me to explain the background and the policy underlying that settlement. Democratisation of the administration which has long been the keynote of Congress policy towards the States, has become a pressing problem since August 15th. The Princes themselves have in many cases begun to realise the spirit of the times and have been gradually introducing measures in accord with that spirit. The progress has been in some States slow, in others it has been swift, but everywhere it has been sure.
It should be obvious to everyone, however, that even democracy and democratic institutions can function efficiently only where the unit to which these are applied can subsist in a fairly autonomous existence. Where, on account of smallness of its size, isolation of its situation, the inseparable link with a neighbouring autonomous territory, be it a Province or a bigger State, in practically all economic matters of every-day life, the inadequacy of resources to open up its economic potentialities, the backwardness of its people and the sheer incapacity to shoulder a self-contained administration, a State is unable to afford a modern system of government both democratisation and integration are clearly and unmistakably indicated.
In the world of today, where distances are fast shrinking and masses are being gradually brought into touch with latest administrative amenities it is impossible to postpone for a day longer than necessary the introduction of measures which would make the people realise that their progress is also proceeding at least on the lines of their neighbouring areas. Delays inevitably lead to discontent. which in its turn results in lawlessness; the use of force may for a time check the popular urge for reform, but it can never succeed in eradicating it altogether. Indeed, in many of the States with which I had to hold discussions during the last two days large-scale unrest had already gripped the people; in others the rumblings of the storm were being heard. In such circumstances, after careful and anxious thought, I came to the conclusion that for smaller States of this type, placed in circumstances which I have described above, there was no alternative to integration and democratisation.
​At the same time I felt that their rulers had acquired by heredity and history certain claims on the people which the latter must honour. Their dignities and privileges and their means of subsistence on a reasonable standard must be assured. I have always held to the belief that the future of the Princes lies in the service of their people and their country and not in the continued assertion of their autocracy. In conformity with these ideas, I felt that on release from an increasingly onerous and awkward responsibility, but at the same time with their personal position and that of the ruling family fully safeguarded, they would have opportunities of service which have hitherto been denied to them and which many of them are genuinely longing for and genuinely anxious to secure and they would cease to be the targets of continuous bitter attacks and ill-will.
The settlement which we have reached at Cuttack and Nagpur is actuated by these motives, prompted by these consideration and governed by these principles. I have no doubt that it is in the best interests of the Rulers, the people and the country at large. I am particularly grateful to the Rulers of the States who showed a commendable appreciation of the realities of the situation and a benevolent regard for public good. To all of them, undoubtedly the decisions they have taken have involved considerable sacrifice of powers and fortune. They have accepted this sacrifice cheerfuly and voluntarily in the interests of their people and the country at large. I am sure their people will react favourably to this generous response to public interests.
Throughout my discussions with the Rulers I was careful to emphasise that the solution which we suggested for the difficult problems with which we and they were equally faced was for them to accept or reject of their own free-will. There was no compulsion save that of events and of the circumstances and peculiar problems of their States. I also told them that in offering this solution we were actuated by nothing but the friendliest disposition towards them and had nothing but the ultimate good of the Princes and their people at heart. I also maintained that their voluntary surrender of most of the powers that they wielded so far would increase and not reduce the prestige that they have enjoyed and would create in the hearts of their people a place of lasting affection and regard which would redound to their glory. I am very glad that they all responded to these sentiments and would ask the people of these States to play their own part and to extend to each one of them unfailing cordiality and unstinted good-will.
In future, if the people of these States have any grievances, they can only be against the popular representatives and leaders who would be charged with their interests and welfare, and not against the Princes. ​These Princes have by their act of abnegation purchased in perpetuity their right to claim the devotion of their people. I am sure that very soon the Provincial Governments who would be acting for the Dominion Government in discharging administrative functions in these States will turn their thoughts and energies to ameliorating the conditions of the people and to devising ways and means of associating representatives of States with the fashioning of administrative measures. Let them all realise the stakes involved—some 56,000 square miles of territory with a population of about eight million, a gross revenue of about 2 crores and immense potentialities for the future. It is the undisputable right of the people in these territories to modern amenities of Government which should be the governing consideration in everything that we do for them. It will also be the duty of the people concerned to help and co-operate wholeheartedly with the respective Provincial administrations in this process of unification and amelioration, so that they may derive the full benefit of this great achievement.
APPENDIX XI
Form of Merger Agreement Signed by Rulers of Orissa and Chattisgarh States
Agreement made this fourteenth day of December 1947 between the Governor-General of India and the Raja of. . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Whereas in the immediate interests of the State and its people, the Raja of . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . is desirous that the administration of the State should be integrated as early as possible with that of the Province of Orissa/C.P. in such manner as the Government of the Dominion of India may think fit:
It is hereby agreed as follows:—
Article 1.
The Raja of . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . hereby cedes to the Dominion Government full and exclusive authority jurisdiction and powers for and in relation to the governance of the State and agrees to transfer the administration of the State to the Dominion Government on the 1st day of January 1948 (hereinafter referred to as "the said day").
As from the said day the Dominion Government will be competent to exercise the said powers, authority and jurisdiction in such manner and through such agency as it may think fit.
Article 2.
The Raja shall with effect from the said day be entitled to receive from the revenues of the State annually for his privy purse the sum of . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . rupees free of taxes. This amount is intended to cover all the expenses of the Ruler and his family, including expenses on account of his personal staff, maintenance of his residences, marriages and other ceremonies, etc., and will neither be increased nor reduced for any reasons whatsoever.
The said sum may be drawn by the Raja in four equal instalments in advance at the beginning of each quarter by presenting bills at the State Treasury or at such other Treasury as may be specified by the Dominion Government.
Article 3.
The Raja shall be entitled to the full ownership, use and enjoyment of all private properties (as distinct from State properties) belonging to him on the date of this agreement.
​The Raja will furnish to the Dominion Government before the 1st day of January 1948 an inventory of all the immovable property, securities and cash balances held by him as such private property.
If any dispute arises as to whether any item of property is the private property of the Raja of State property, it shall be referred to such officer with judicial experience as the Dominion Government may nominate and the decision of that officer shall be final and binding on both parties.
Article 4.
The Raja, the Rani, the Rajmata, the Yuvraja and the Yuvrani shall be entitled to all personal privileges enjoyed by them whether within or outside the territories of the State immediately before the 15th day of August 1947.
Article 5.
The Dominion Government guarantees the succession, according to law and custom, to the gadi of the State and to the Raja's personal rights, privileges, dignities and titles.
In confirmation whereof Mr. Vapal Pangunni Menon, Secretary to the Government of India in the Ministry of States, has appended his signature on behalf and with the authority of the Governor-General of India and . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Raja of . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . has appended his signature on behalf of himself, his heirs and successors.
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Raja of . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Secretary to the Government of India. Ministry of States.
Note.—Similar form was adoptęd in the case of the East Punjab States of Pataudi, Dujana and Loharu, and the Madras States of Pudukkottai and Banganapalle.
APPENDIX XII
Mayurbhanj Merger Agreement
Agreement made this 17th of October 1948 between the Governor-General of India and the Maharaja of Mayurbhanj.
Whereas in the best interests of the State of Mayurbhanj as well as of the Dominion of India it is desirble to provide for the administration of the said State by or under the authority of the Dominion Government;
And whereas the Maharaja has accepted the advice given to him by the Dominion Government in this behalf;
It is hereby agreed as follows:—
Article 1.
The Maharaja of Mayurbhanj hereby cedes to the Dominion Government full and exclusive authority, jurisdiction and powers for and in relation to the governance of the State and agrees to transfer the administration of the State to the Dominion Government on the 9th day of November 1948 (hereinafter referred to as "the said day").
As from the said day the Dominion Government will be competent to exercise the said powers, authority and jurisdiction in such manner and through such agency as it may think fit.
Article 2.
The Maharaja shall continue to enjoy the same personal rights, privileges, dignities and titles which he would have enjoyed had this agreement not been made.
Article 3.
The Maharaja shall with effect from the said day be entitled to receive from the revenues of the State annually for his privy purse the sum ofRs. 3,36,500/- free of all taxes. This amount is intended to cover all the expenses of the Ruler and his family, including expenses on account of his personal staff, maintenance of his residences, marriages and other ceremonies, etc., and will neither be increased nor reduced for any reason whatsoever.
The Government of India undertakes that the said sum of rupees 3,36,500/- shall be paid to the Maharaja in four equal instalments in advance at the beginning of each quarter from the State treasury or at such other treasury as may be specified by the Government of India.
Article 4.
The Maharaja shall be entitled to the full ownership, use and enjoyment of all private properties (as distinct from State properties) belonging to him on the date of this agreement.
The Maharaja will furnish to the Dominion Government before the 17th day of November 1948 an inventory of all the immovable property, securities and cash balance held by him as such private property.
If any dispute arises as to whether any item of property is the private property of the Maharaja or State property, it shall be referred to a judicial officer qualified to be appointed as a High Court Judge, and the decision of that officer shall be final and binding on both parties.
Article 5.
All the members of the Maharaja's family including the Maharani Saheba, Yuvaraja, Yuvarani and Dowager Maharanis shall be entitled to all the personal privileges, dignities and titles enjoyed by them whether within or outside the territories of the State, immediately before the 15th day of August 1947.
Article 6.
The Dominion Government guarantees the succession, according to law and customs, to the gaddi of the State and to Maharaja's personal rights, privileges, dignities and titles.
Article 7.
No enquiry shall be made by or under the authority of the Government of India, and no proceedings shall lie in any Court in Mayurbhanj, against the Maharaja, whether in a personal capacity or otherwise, in respect of anything done or omitted to be done by him or under his authority during the period of his administration of that State.
Article 8.
(1) The Government of India hereby guarantees either the continuance in service of the permanent members of the Public Services of Mayurbhanj on conditions which will be not less advantageous than those on which they were serving before the date on which the administration at Mayurbhanj is made over to the Government of India or the payment of reasonable compensation.
​(2) The Government of India further guarantees the continuance of pensions and leave salaries sanctioned by the Maharaja to members of the Public Services of the State who have retired or proceeded on leave preparatory to retirement, before the date on which the administration of Mayurbhanj is made over to the Government of India.
Article 9.
Except with the previous sanction of the Government of India, no proceedings, civil or criminal, shall be instituted against any person in respect of any act done or purporting to be done in the execution of his duties as a servant of the State before the day on which the administration is made over to the Government of India.
In confirmation whereof Mullath Kadingi Vellodi, Secretary to the Government of India in the Ministry of States, has appended his signature on behalf and with the authority of the Governor-General of India and Flight Lieutenant Maharaja Sir Pratap Chandra Bhanja Deo, Maharaja of Mayurbhanj has appended his signature on behalf of himself, his heirs, and successors.
Sd. PRATAP CHANDRA BHANJA DEO, Maharaja of Mayurbhanj
Sd. M. K. VELLODI, Secretary to the Government of India, Ministry of States.
Dated New Delhi, the 17th day of October 1948.