# White Paper on Indian States (1950)/Part 5/Formation of Unions/The United State of Rajasthan

The United State of Rajasthan.
134. The integration of Rajputana States was completed in three stages. The Rajasthan Union was originally formed by the smaller Raj-Putana States in the south-east, namely Banswara (including Kushalgarh), Bundi, Dungarpur, Jhalawar, Kishengarh, Kotah, Partabgarh, Shahpura and Tonk. These States formed a contiguous area with ethnic, linguistic and cultural affinities. The integration of these States in the contemplated United State of Madhya Bharat was also considered, but it was found that the natural affinity of these States was more with Rajputana than with Madhya Bharat. The territories of these nine States were accordingly united together to form the United State of Rajasthan with an area of 16,807 square miles, a population of 2,334,220 and an average annual revenue of over Rs. 19 millions. The United State of Rajasthan so constituted was inaugurated on 25th March, 1948.
135. Subsequently the Ruler of Mewar expressed willingness to join the Rajasthan Union. Having regard to the facts that the State of Mewar was in a position to stand by itself and that the resources of the State would greatly add to the strength of the Union, it was decided to modify the Covenant in the following respects:—
(b) The Maharso of Kotah was to be the senior Up-Rajpramukh.
​(c) The privy purse of the Maharana of Mewar was to be Rs. 1 million. He was in addition to receive a consolidated allowance of Rs. 500,000 per year as Rajpramukh. A further sum of Rs. 500,000 per annum was to be paid to him out of the revenues of the United State for charitable and religious purposes.
All the Rulers concerned signed the Covenant and the second Rajasthan Union was inaugurated by the Hon'ble Pandit Jawaharlal Nehru on 18th April, 1948.
136. The second Rajasthan Union comprised only part of the geographical and cultural entity known as Rajasthan. Although some of the States which had not joined the Union had been recognised as viable units, they were inhabited by the same stock of people as inhabit the States integrated in Rajasthan and their administration had to deal with common social, economic and other problems. Negotiations were, therefore, initiated for the formation of a greater Rajasthan Union, which would both satisfy the sentimental aspirations of the people in certain areas, and facilitate the solution of economic and other problems common to all these States. As a result of these negotiations, a fresh Covenant (Appendix XL) was signed providing for the integration of the three major States of Rajputana, viz., Jaipur, Jodhpur and Bikaner and the State of Jaisalmer with the former Rajasthan Union to form the United State of Rajasthan. A special feature of this Union is the appiontment for his life-time of the present Ruler of Mewar as Maharajpramukh of the Union. This arrangement has been made to ensure for the Ruler of this important State an honourable place in the new set-up. The present Ruler of Jaipur is the first Raipramukh of the Union and will hold office during his life-time. The new Union which comprises an area of 120,888 square miles with a population of 11.2 millions, was inaugurated on March 30, 1949.
137. Soon after the decision about the formation of the new Rajasthan State was taken the question of the integration with it of the four States comprising the Matsya Union had to be considered. The Matsya Union, which was inaugurated on 18th March 1948, consisted of the States of Alwar, Bharatpur, Dholpur and Karauli. The Union covered a territory of 7,536 square miles with a population of over 1.8 millions and a revenue of about Rs. 20 millions. Consultations were held on the subject with the Rulers and representatives of the four States as well as with the Ministry of the Matsya Union. It was found that there was no difference of opinion as regards the integration of Alwar and Karauli with the United State of Rajasthan; opinion in these States was unanimous that they ​should be integrated with Rajasthan but in Bharatpur and Dholpur it was found that there was considerable difference of opinion as to whether they should be merged with the United Provinces or integrated with Rajasthan. In order to ascertain public opinion in these two States the following Committee was appointed:—
* Shri Shankar Rao Deo—Chairman
* Shri R. K. Sidhwa—Member
* Shri Prabhu Dyal Himatsingka—Member
138. After ascertaining the views of the people both by means of questionnaires and at public meetings the Committee came to the conclusion that majority opinion in both Bharatpur and Dholpur was for integration with Rajasthan rather than for merger in the United Provinces. The Committee was not sure if the opinion elicited by it would remain stabilised. The Committee therefore suggested that after some time, opportunity should be given to the people through a regular plebiscite, or some other appropriate procedure, to decide finally whether they would continue in Rajasthan or opt out of it. The Government of India accepted the recommendations of the Committee and took steps to integrate the entire Matsya Union with Rajasthan. The Agreement (Appendix XLI) between the United State of Rajasthan and the Rulers of Alwar, Bharatpur, Dholpur and Karauli giving effect to this decision was concluded on 10th May, 1949, and provided for the taking over by the Rajasthan Government of the administration of the Matsya States with effect from May 15, 1949. Article V of the agreement entered into in this behalf provides that when the Government of India are satisfied that conditions favourable to the expression of a considered opinion by the general public have been established in Bharatpur and Dholpur, suitable steps will be taken to ascertain whether public opinion is in favour of continuing with Rajasthan or of merger with the United Provinces. The Rajasthan Union as at present constituted has an area of approximately 128,424 square miles and a population of about 19.1 millions.
APPENDIX XL THE COVENANT
entered into by the Rulers of Banswara, Bikaner, Bundi, Dungarpur, Jaipur, Jaisalmer, Jhalawar, Jodhpur, Kishengarh, Kotah, Mewar, Partabgarh, Shahpura and Tonk for the reconstitution of
THE UNITED STATE OF RAJASTHAN
Whereas by a Covenant entered into by the Rulers of Banswara, Bundi, Dungarpur, Jhalawar, Kishengarh, Kotah, Mewar, Partabgarh, Shahpura and Tonk it has been agreed that the territories of the said ten States should be integrated into one State by the name of the United State of Rajasthan;
And whereas it has been agreed between the Rulers of the said ten States and the Rulers of Bikaner, Jaipur, Jaisalmer and Jodhpur that the said United State of Rajasthan should be reconstituted by the integration of the territories of all the fourteen States;
The Rulers aforesaid do hereby, in supersession of the said Covenant and with the concurrence and guarantee of the Government of India, enter into this Covenant:—
Article I
In this Covenant:—
Article II
(1) The Covenanting States agree:—
(2) The terns of any such agreement of integration as is referred to in clause (b) of paragraph (1) of this Article shall be binding on the United State and shall be deemed to be part of this Covenant.
Article III
(1) There shall be a Council of Rulers consisting of the Rulers of all the Covenanting States:
Provider that no Ruler who is less than 21 years of age shall be a member of the Council.
(2) The Council of Rulers shall elect at a meeting one member of the Council to be the President, another two to be Senior Vice-Presidents and two others to be Junior Vice-Presidents of the Council.
(3) For the purposes of the elections referred to in the preceding paragraph, every member shall have such number of votes as is equal to the number of lakhs in the population of his State as ascertained at the last preceding census (any fraction more than half a lakh being reckoned as one lakh and any other fraction being ignored), provided that every member shall have at least one vote.
(4) A Ruler elected as the President or as a Vice-President of the Council sha!l be entitled to hold office as such President or Vice-President, as the case may be, for a term of five years from the date on which be enters upon the duties of that office.
(5) Notwithstanding anything contained in the preceding paragraphs of this Article, the present Rulers of Jaipur, Jodhpur, Kotah, Bundi and Dungarpur shall respectively be the first President, Senior Vice-Presidents and Junior Vice-Presidents of the Council of Rulers, and shall enter upon the duties of their respective offices on the thirtieth day of March 1949. The said President shall be entitled to hold office during his lifetime, and the said Vice-Presidents for a term of five years from the said date.
​(6) Notwithstanding anything contained in the preceding paragraphs of this Article, when in pursuance of any such agreement of integration, as is referred to in clause (b) of paragraph (1) of Article II, any other State is integrated with the United State, the Raj Pramukh may, in consultation with the Government of India, appoint the Rules of such State as the third Junior Vice-President of the Council of Rulers who shall hold office for a term of five years.
(7) Whenever a vacancy occurs or is about to occur in any of the offices referred to in paragraph (2) the Council of Rulers shall elect at a meeting a member to fill that vacancy, and any member so elected shall hold office for a term of five years from the date on which he enters upon the duties thereof.
(8) The President of the Council of Rulers shall be the Raj Pramukh of the United State.
Article IV
(1) In order that he may be enable to discharge conveniently and with dignity the duties of his office, the Raj Pramukh shall be paid from the revenues of the United State such consolidated annual allowance as the Government of India may prescribe.
(2) There shall be paid from time to time to the Vice-Presidents such allowances as the Raj Pramukh may consider appropriate to cover expenses in travelling in the discharge of such official duties as may be assigned to them.
(3) If the Raj Pramukh is, by reason of absence of illness or for any other reason unable to perform the duties of his office, those duties shall until he has resumed them, be performed by one of the Senior Vice-Presidents of the Council of Rulers who may be nominated by the Government of India in consultation with the Raj Pramukh. During such period the Senior Vice-President so nominated shall be entitled to the same consolidated allowance as the Raj Pramukh.
Article V
(1) There shall be a Council of Ministers to aid and advise Raj Pramukh in the exercise of his functions except those under paragraphs (2) and (3) of Article VII.
(2) The Ministers shall be chosen by, and shall hold office during the pleasure of, the Raj Pramukh.
Article VI
(1) The Raj Pramukh of the former Rajasthan State shall make over the administration of that State on the seventh day of April 1949, to the Raj Pramukh of the United State under this Covenant.
(2) The Ruler of each new Covenanting State shall not later than the seventh duy of April 1949, make over the administration of his State to the Raj Pramukh; and thereupon:—
(3) When in pursuance of any such agreement of integration as is referred to in clause (b) of paragraph (1) of Article II, the administration of any other State is handed over to the Raj Pramukh, the provisions of clauses (a), (b) and (c) of paragraph (2) of this Article shall apply in relation to such State as they apply in relation to a Covenanting State.
Article VII
(1) The military forces, if any, of the former Rajasthan State and of each new Covenanting State shall, es from the date on which the administration of such State is made over to the Raj Pramukh, become the military forces of the United State.
(2) Subject to any directions of instructions that may from time to time be given by the Government of India in this behalf the authority to raise, maintain and administer the military forces of the United State shall vest exclusively in the Raj Pramukh.
(3) Unless other provision is made by an Act of the Legislature of the United State, the right to resume Jagirs or to recognise succession, according to law and custom, to the rights and titles of the Jagirdars shall vest exclusively in the Raj Pramukh.
​(4) Nothing in the preceding paragraph of this Article shall be deemed to prevent the Raj Pramukh from consulting the Council of Ministers in regard to any of the matters mentioned therein.
Article VIII
The Raj Pramukh shall, as soon as practicable, and in any event not later than the fifteenth day of April 1949, execute on behalf of the United State an Instrument of Accession in accordance with the provisions of section 6 of the Government of India Act, 1935, and in place of the Instrument of Accession of the former Rajasthan State and the Instrument of Accession of the new Covenanting States; and he shall by such Instrument accept as matters with respect to which the Dominion Legislature may make laws for the United State all the matters specified in the Instrument of Accession of the former Rajasthan State.
Article IX
Subject to the provisions of this Covenant and of the Constitution to be framed thereunder, the executive authority of the United State shall be exercised by the Raj Pramukh either directly or through officers subordinate to him; but nothing in this Article shall prevent any competent legislature of the United State from conferring functions upon subordinate authorities or be deemed to transfer to the Raj Pramukh any functions conferred by any existing law on any court, judge, officer or local authority in the former Rajasthan State or in a new Covenanting State.
Article X
(1) There shall be formed, as soon as practicable, a Constituent Assembly in such manner as the Raj Pramukh may, in consultation with the Government of India in the States Ministry prescribe.
(2) It shall be the duty of the said Assembly to frame a Constitution for the United State within the framework of this Covenant and the Constitution of India, and providing for a Government responsible to the legislature.
(3) Until a Constitution so framed comes into operation after receiving the assent of the Raj Pramukh, the legislative authority of the United State shall vest in the Raj Pramukh, who may make and promulgate Ordinances for the peace and good Government of the State or any part thereof, and any Ordinance so made shall have the like force of law as an Act passed by the legislature of the United State.
Article XI
(1) The Ruler of each Covenanting State shall be entitled to receive annually from the revenues of the United State for his privy purse the amounts specified against Covenanting State in Schedule I.
Provided that the sum specified in the Schedule in respect of the Rulers of Jaipur, Bikaner and Jodhpur States shall be payable only to the present Rulers of the said States and not to their successors each of whom shall be entitled to receive annually a sum of Rs. ten lakhs as his privy purse.
(2) The said amount is intended to cover all the expenses of the Ruler and his family including expenses on residences, marriages and other ceremonies, and shall neither be increased nor reduced for any reason whatsoever.
(3) The Raj Pramukh shall cause the said amount to be paid to the Ruler in four equal instalments at the beginning of each quarter in advance.
(4) The said amount shall be free of all taxes, whether imposed by the Government of the United State or by the Government of India.
Article XII
(1) The Ruler of each Covenanting State 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 his making over the administration of that State to the Raj Pramukh of the former Rajasthan State or as the case may be, to the Raj Pramukh of the United State under this Covenant.
(2) If any dispute arises as to whether any item of property is the private property of the Ruler of a Covenanting State other than a new Covenanting State or is State property, it shall be referred to such person as the Government of India may nominate in consultation with the Raj Pramukh, and the decision of that person shall be final and binding on all parties concerned:
Provided that no such dispute shall be so referable after the first day of May 1949.
(3) The private properties of the Ruler of each new Covenanting States shall be as agreed to between the Government of India in the States Ministry and the Ruler concerned, and the settlement of properties thus made shall be final.
Article XIII
The Ruler of each Covenanting State, as also the members of his family, 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 August, 1947.
Article XIV
(1) The succession according to law and customs, to the gaddi of each Covenanting State, and to the personal rights, privileges dignities and titles of the Ruler thereof, is hereby guaranteed.
(2) Every question of disputed succession in regard to a Covenanting State shall be decided by the Council of Rulers after referring it to the High Court of the United State and in accordance with the opinion given by that High Court.
Article XV
No enquiry shall be made nor any action taken by or under the authority of the United State or the Government of India, and no proceedings shall lie in any court, against the Ruler of any Covenanting State, 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 Covenanting State.
Article XVI
(1) The United State hereby guarantees either the continuance in service of the permanent members of the public services of the former Rajasthan State and of each of the new Covenanting States on conditions which will not be less advantageous than those on which they were serving on the 1st November 1948 or the payment of reasonable compensation or retirement on proportionate pension.
(2) The United State further guarantees the continuance of pensions, and leave salaries sanctioned by competent authorities in any of the new Covenanting States to members of the public services of that State who have retired, or proceeded on leave preparatory to retirement, and the compassionate allowances granted to dependents of deceased members of those services before the date on which the administration of the State is made over to the Raj Pramukh.
(3) The United State hereby reaffirms the guarantees given by the former Rajasthan State in paragraphs (1) and (2) of Article XVI of the Covenant establishing that State.
Article XVII
Except with the previous sanction of the Raj Pramukh, 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 duty as a servant of any Covenanting State before the date on which the administration thereof is made over to the Raj Pramukh.
Article XVIII
Nothing in this Covenant shall be deemed to prevent the Government of the United State from taking over the administration of the whole or any part of any area included within a province of India, such terms and conditions as may be agreed upon by the Government of the United State and the Government of India.
Article XIX
Notwithstanding anything contained in this Covenant, until a constitution framed by the Constituent Assembly comes into operation after receiving the assent of the Raj Pramukh, the Raj Pramukh and the Council of Ministers chosen by him under Article V of this Covenant, shall in the exercise of their functions under the provisions of this Covenant be under the general control of and comply with such particular directions if any, as may from time to time be given by, the Government of India.
Article XX
(1) Notwithstanding anything contained in this Covenant there shall also be during the life-time of the present Ruler of Mewar, a Maharaj Pramukh of the United State who shall preside over such meetings of the Council convened by the Raj Pramukh as he may attend. The present Ruler of Mewar shall be the Maharaj Pramukh during his life-time.
(2) In order that he may be able to discharge conveniently and with dignity the duties of his office, the Maharaj Pramukh shall be paid from the revenues of the United State such consolidated annual allowance as the Government of India may prescribe.
SCHEDULE
Covenanting States and Privy Purse Amounts
In confirmation of the above Covenant we append our signatures, on behalf of ourselves, our heirs and successors.
Maharawal of Banswara.
Maharaja of Bikaner.
Maharao Raja of Bundi
Maharawal of Dungarpur.
Maharaja of Jaipur.
Maharawal of Jaisalmer.
Maharaj-Rana of Jhalawar.
Maharaja of Jodhpur.
Maharaja of Kishengarh.
Maharao of Kotah.
Maharana of Mewar.
Maharawat of Partabgarh.
Raja of Shahpura.
Nawab of Tonk.
The Government of India hereby concur in the above Covenant and guarantee all its provisions. In confirmation whereof Mr. Vapal Pangunni Menon, Adviser to the Government of India in the Ministry of States, appends his signature on behalf and with the authority of the Government of India.
(Sd.) V. P. MENON,
Adviser to the Government of India,
Ministry of States.
APPENDIX XLI
AGREEMENT made this tenth day of May, 1949, between the Raj Pramukh of the United State of Rajasthan and the Rulers of Alwar, Bharatpur, Dholpur and Karauli:
WHEREAS Article II of the Covenant entered into by the Rulers of Banswara, Bikaner, Bundi, Dungarpur, Jaipur, Jaisalmer, Jhalawar, Jodhpur, Kishengarh, Kotah, Mewar, Partabgarh, Shahpura and Tonk for the reconstitution of the United State of Rajasthan provides for the inclusion in the United State so established of any other State the Ruler of which enters into an agreement with the Raj Pramukh and with the approval of the Government of India for the integration of that State with the United State of Rajasthan;
The Raj Pramukh of the United State of Rajasthan, the Rulers of Alwar, Bharatpur and Karauli, and the Ruler of Dholpur acting in his capacity as such Ruler and in his capacity as the Raj Pramukh of the United State of Matsya, with the approval and concurrence of the Government of India, do hereby agree as follows:—
Article I
In this Agreement, unless there is anything repugnant in the context—
Article II
As from mid-day of the 15th day of May, 1949,—
Article III
On the said day the administration of Matsya as a whole and of each of the Matsya States shall be handed over by the Rajpramukh of Matsya to the Raj Pramukh of Rajasthan.
Article IV
With effect from mid-day of the 15th May, 1949, the following additions and alterations shall be deemed to have been made in the Covenant, namely:—
Article V
Notwithstanding anything contained in this Agreement or in the Covenant, the Government of India may, when they are satisfied that conditions favourable to the expression of a considered opinion by the general ​public have been established in the territorial units formerly known as the States of Bharatpur and Dholpur, cause to be taken such measures as they may deem necessary to ascertain whether public opinion in each of the said units is in favour of remaining within Rajasthan or is in favour of merging with the United Provinces, and if public opinion in either of the said units is in favour of the latter alternative, take such further measures as may be necessary for effecting the separation of that unit from Rajasthan and its merger in the United Provinces:
Provided that such merger shall not in any way effect the amount of privy purse and the other rights and privileges guaranteed to the Ruler concerned by the Covenant and this Agreement.
Article VI
For the avoidance of doubt it is hereby agreed and declared that with effect from mid-day of the 15th May, 1949, the Instrument of Accession executed by the Raj Pramukh of Rajasthan on the fifteenth day of April, 1949, will in all respects extend and apply to the territories of Matsya States to be incorporated in Rajasthan, and the Instrument of Accession executed by the Rajpramukh of Matsya on the seventh day of October, 1948, will be treated as cancelled.
In confirmation whereof we append our signatures on behalf of ourselves, our heirs and successors.
1. Maharaja of Alwar.
2. Maharaja of Bharatpur.
3. Maharaj-Rana of Dholpur and Rajpramukh of the United State of Matsya.
4. Maharaja of Karauli.
5. Rajpramukh of the United State of Rajasthan.
The Government of India hereby approve and concur in the above Agreement and guarantee all its provisions:
In confirmation whereof Mullath Kadingi Vellodi, Secretary to the Government of India in the Ministry of States appends his signature on behalf and with the authority of the Government of India.
M. K. VELLODI,
Secretary to the Government of India.