Govt&politics Since Independence in Odisha

Indian Political Science Association
GOVERNMENT AND POLITICS IN ORISSA SINCE INDEPENDENCE—AN OVERVIEW

Author(s): B. C. Das
Source: The Indian Journal of Political Science, Vol. 39, No. 3 (July-Sept. 1978), pp. 438-457
Published by: Indian Political Science Association
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GOVERNMENT AND POLITICS IN ORISSA SINCE
INDEPENDENCE- AN OVERVIEW
B. C. Das'"
Orissa is both old and new, ancient and modern at the same time. As aa
old and ancient land Orissa is a confluence of Indian culture and histo-
rical evidences as revealed from her language, culture, art and architecture. The
tribes known as Odras and Utkalas, as mentioned in the Mahabharata, Manu
Samhita, Brihat Samhita and Kapila Samhita were inhabiting the plains and
uplands near the coast. The Odras and Utkalas were probably pre-Aryan or
Austrie peoples deriving their name from two kings who were brothers known
as Gaya and Utkal. The kingdom of Ralinga extended from the Ganga to the
Godavari and its civilization spread as far as Tamil Nadu from which was
derived the Tamil name for cloth, Kalingam.1 Maritime contacts of the Oriyas
enabled them to settle down in far off lands like Java, Sumatra, Borneo with the
result that the Indian residents there are called klings. Orissa has also been the
victim of several invasions and conquests by the Muslims, Mughals, Marathas,
Afghans and finally by the British. The British were the last group of
Europeans to reach Orissa after the Portuguese and the Dutch. Vicissitudes of
history left Orissa only with three districts of Balasore.Cuttack and Puri in the
beginning of the 20th century. Military conquests and administrative conveni-
ences ended in the factionalisation of historical Orissa. Foreign rule in Orissa
was responsible for the dismemberment of natural Orissa and scattering of
* Department of Political Science Utkal Universit/, Bhubaneswar-4

1. Dash, S. C., States of our Union: Orissa, Publications Division, New Delhi. 1970,
pp. 9-10, 8-22
Orissa had no political identity of her own. The Oriya-speaking areas were scattered.
Orissa v as a division of Bengal till 1912 when Lt. Governor's sub-province of Binar and Orissa
was created. Orissa came under the British rule in 1803 and the Utkal Sammilani was
organized by M. S. Das in 1903. When the Indian National Congress under the leadership
of Mahatma Gandhi started the Non-Co-operation Movement in 1920, M. S. Das stood
aloof from militant politics and handed over leadership to Pandit Gopabandhu Da.s
Gopabandhu subordinated the Sammilani to the Congress and he was its leader and Firsi
President in Oiissa with the groop from the Satyabadi School.
Government and Politics in Crissa since Independence [ 439
Oriya-speaking population among the neighbouring areas, ..and tracts. Ôrissa

therefore has been, practically, a geographical expression. The Utkala
Sammilani or the Utkal Union Conference put up concerted efforts for the amal-
gamation and integration of the Oriya-speaking units lying scattered in different
neighbouring provinces. The Sammilani secured the detachment of Sambalpur
from the Central Province as the fourth district of Orissa in 1905. In 1911 the
district of Angui was created on the occasion of the Delhi Durbar of Emperor
George V. New and modern Orissa started with the creation of the State on
the 1st April, 1936. Poverty, illiteracy, backwardness, famine, drought,
pestilence and mal-administration had been the permanent friends of
Orissa. Despite Nature's bounties Orissa has been the "epitome of India's
poverty", as was pointed out by Mahatma Gandhi in the early 40s of the
present century. Abundant natural resources of Orissa" are surprising; but
more surprising is her persistent poverty in the midst of plenty. Orissa, in fact,
is a land of several paradoxes. From the days of the East India Company
till independence whatever economic activity was undertaken in the
country, Orissa had an extremely meagre or no share at all. The decline
in the fortunes of Orissa had set in motion ever since the days of Marahattas
whom the Britishers conquered and replaced. Modern Orissa derived inspiration
and rejuvenation through the freedom struggle, Prajamandala movement and

the nationalist agitation. Orissa took a fair share in the civil disobedience
movement of 1940 and the Quit India Movement of 1942 and this led to
Orissa's political modernization and socialization to a considerable extent«
Politically, the separate province of Orissa consisted of six distritos, yat

Balasore, Cuttack, Puri, Sambalpur, Ganjam and Koraput in 1947 when India
became ifldependéflt. Oa the 1st öf January, 1948, 25 native states merged with
the province of Orissa. The territorial map of Orissa was redrawn with 13
districts in place of the Six old districts efi the 26th January 1940. Mayurbhanj
was the last princely State to merge with Orissa on January Í, 1949. A
2. H. K. Mahtab in "The History of Orissa" saya^ MThe history of Orissa is

remarkable for its political greatness, economic prosperity, religious movements, social
apliftment, artistic merits through al! ils ages9'« This is a brilliant testimony to
Orissa's past history.
440 ) The: Indian Journal of Political Science
Congress Ministry headed by Harekrishna Mahtab was m power in Orissa

when the country became free on the 15th August 1947. The Ministry continued
till May 1J, 1 950 when Nabakrushna Choudhury, a Leftist Leader became
the Chief Minister and remained in Office till October 18, 1956.3 Dr. Mahtab
remained the Union Minister for Industry and Commerce till 1952 and
the Governor of Bombay till 1956. After the merger of the native
States Pabitra Mohan Pradhan, Kapileswar Prasad Nanda and Kailash^
Chandra Mohanty remained as Executive Councillors for the Native States.
With the inauguration of the Constitution the Prime Ministers of the States
came to be designated as Chief Ministers.
The first Choudhury Ministry consisted of N# K. Choudhury as Chief

Ministerand Nityanda Kanungo, Lingaraj Misra, Lala Ranjit Singh Bariha,
Rajkrushna Bose, Sadasivo.Tripathy and Pabitranlohan Pradhan as Ministers.4
Even after th? attainment of Independence vast areas of Ocissa lying

within the provinces of Madras, Madhya Pradesh, West Bengal and Bihar had
not been successful in protecting their language, literature and culture due to
unsympathetic attitude of the neighbouring Governments. The same problem
continues as usual till today. Like the rulers of the other provinces the Native
State rulers of Orissa thought themselves to be free and independent and tried
to perpetuate themselves in power by granting nominal self-Government to
their subjects.The Native States being separated from the province of Orissa had
3. Elections were held for all the State Assemblies in 19 $6 under the Government of
India Act, 1935. With four nominated members, Orissra Legislative Assembly had a
strength of 60 members of which Congress had 45 (37 uncontested). In 1948 cons-
equent upon the merger of the Princely States the strength of the Assembly was incre-
ased from 60 to 91 to accommodate the 31 nominated membess from the Princely
states. In 1952 its strength became 140 and 147 in 1974. On April 33, 1946, Dr
Mahatab's ministry consisted of Servashri Nabakrashna Choudhury ,Nityanada Kami
ngo, lingaraj Mitra, Radhakrushna Biswasray as ministers. A ministry was formed
by Dr. Mahatab due to the resignation of Shri N. K, Chaudhury and Shri R. K.
Biswasray from the Cabinet. The new ministry consisted of Dr. Mahatab as Chief
Minister and Sarvashri N. Kanungo, L. Misra, Lala Ranjit Singh Bariha, Rajkrushna
Bose and Sadasive Tripathy as ministers.
4. Mohanty, p., Ama Nirbachana (In Oriya), Cuttack 1971, pp. i 54- 1 ^7.
Government and Politics in Orissa since Independence [ 441
hindered the economic, political and cultural development of the State. T e

areas designated as Native State were feudal territories under the control of
Zamindars since the days of Mughal rule in India. The subjects of the Native
States had been tolerating . oppression in silence for long. The rulers
wanted time and resorted to th<; policy of procrastination. They had no military
power to suppress rebellion and insurrection. Internal indiscipline and admini-
strative chaos become the go of the day due to the mal-administration of the
Native State rulers. Nilgiri was the first example for such indiscipline. Conflict
between the tribais and the non-tribals conld not be settled by the ruler of
Nilgiri in any way. The Government of Orissa on behalf of the Government
of India took over the administration of the State of Nilgiri in November, 1947.
Subsequently, Nilgiri continued as a small sub-division of the district of Bala-
sore. The Government of India realised gradually that the Native States will
not be able to continue independently. This conclusion was derived from the
instance of Nilgiri.
The Native States had to be merged with the neighbouring province by

some way or the other. The inauguration of these merger of the Native States
was made in Orissa for the first time. Sardar Vallavbhai Patel, the then Union
Minister of States himself came to Cuttack and started negotiations with the
Native State Rulers. Twenty five Native State rulers with the solitary excep-
tion of Mayurbhanj signed the instrument of accession in order to join the
Indian federation and thus there was administrative integration of the Native
States with Orissa. Greater Orissa which was themuch-coveted desire
was fulfilled without shedding a single drop of blood. The people of the
Native State were practically one with the people of Orissa in respect of educa-
tion, culture and business but administratively they were separate. Under the
provisions of the Indian Independence Act, 1947, Native States were to merge
with the neighbouring States on the basis of historical affinity and' geographical
contiguity. The rulers of the Native States were authorized to sign the instru-
ment of accession for the purpose. T he merger of the Native States of Orissa
on the 14th December, 1947 augmented the sources of State revenue and income
from forests and other natural resources. Saraikala and Kharsuan wh:ch bad
merged with Orissa on the first of January 1948, were transferred to Bihar in
May, 1 948, supposedly as a temporary measure in order to subdue Mayurbhanj.
Mayurbhanj was subdued and joined the province of Orissa on the 1st of
January, 1949. Consequently, 24 Native States remained with Orissa. Despite
442 ] The Indian Journal of Political Science
stiff opposition by the people of Orissa including those of Sataikala and Khar
suan the Government of India transferred the two Oriya-speaking native state
from Orissa and merged them with that of Singhbumof Bihar on the grounds
administrative convenience. Repeated attempts and agitations by Orissa befor
the State Reorganization Commission to get back these territories have
been ignored contemptuously though Orissa has a substantial case. The
people and the rulers of these states were Oriya-speaking and there is provisio
even now for them to get jobs in Orissa. But unfortunately the two princely
states have been with Bihar where ihey had remained ever since.
By the end of 1948 a separate Legislative Assembly was created with 31

nominated members from the Native States. Dr. Harekrishna Mahtab as the
Chief Minister was the President of this Assembly.6 Pabitra Mohan
Pradhan, Kapileswara Prasad Nandan and Kailash Chandra Mohanty
were appointed Executive Councillers. The Governor of Orissa subsequently
nominated 31 persons as< members of Orissa Legislative Assembly. Pabitramohan
Pradhan and Kapileswar Prasad Nanda joined the Orissa Cabinet as Ministers
from among these members.
Dr. H. K. Mahtab joined the Union Cabinet as Minister of Industries

and Commerce in May, 1950. N. K. Choudhury formed the Cabinet on
May 12, 1950 and remained in Office till October, 18, 1956. The 6rst General
Election was held in May, 1952 and the Congress Party secured 68 seats out of
140 in the Assembly. As six independent members joined the Congress,
N. K. Choudhury formed ; the Congress Ministjy as Chief Minister.
Radhanath Rath, Sadasiv Tripathy, Dinabandhu Sahu, Kishore Chandra
Bhanja Dìo, and Sonaram Soren became Ministers and Bhairab Chandra
Mohanty, Nilamani Routray, Krupanidhi Nayak, Tirthabasi Pradhan
and Anup Chandra Singh Deo, were Deputy Ministers. Satyapriya
Mohanty joined the Cabinet subssbuently. In the first General Election,
1952 Congress was able to muster 68 seats in House of 140. It
depended on individual defection of Jharkhand members to form the Govern-
ment which was steadily depleted following the handling of 1955 floods and
the State's reorganization move ment next year. On October 18, 1956,
Choudhury resigned from the offici of the Chief Minister in order to propagate
the philosophy of Sarvodaya on a full-time basis and Dr. Mahtab formed the
5. Mohanty, B. Orissa Parichaya, (in Oriya) Bhubaneswar. 1976, pp. 92-93.
Government and Politics in Orissa since Iddependence 443
Government on October 19, 1956 which continued till May 22, 1969. The
period from 1946 to 1956 may be described as the decade of Development in
Orissa. The Congress Party was in power during this period for the adminis-
tration of this State, from 1945 till 1956, first under the leadership of Dr.
Mahtab, till 1950, and then upto 1956 under the leadership of Shri N. K.
Choudhury.
The integration of princely States was accomplished under the leadership

of Dr. Mahtab by the end of 1949 and the dream of organization of greater
Orissa was fulfilled. The former Native States were in a backward condition
and their abundant natural resources could not be exploited for the purpose of
development of the State. The foundations of one of the greatest multipurpose
projects, Hirakud and the new capital at Bhubaneswar were laid. The? first era
of construction in Orissa started from 1950 and continued till 1957. It was
during this time that the construction work of multi-purpose Hirakud Project,
Muchkund Electricity Project and Rourkela Steel Plant were inaugurated. The
Zamindari Abolition Act was adopted and steps were taken for abolition of
the system of intermediaries in [Orissa. Before resorting to land reforms, share-
croppers having more than 33 acres of landed property could not be dislodged
from possession. The Orissa Gram Panchayat Act was adopted during the
period and Panchayat elections were held for the first time. The Anchal Sasan
Act was adopted with a view to streamlining revenue administration of the
State. This was a revolutionary measure for the transfer of power to the hands
of the common man.Transport was nationalised for the purpose of better mana-
gement and administration. Planning started in the country from 1952. Orissa
also introduced development planning, though in a small measure Coumunity
^Development Projects started operating from October 2, 1952. Steps were taken
for the rapid industriliasation of the State by generating electricity from
Duduma and Hirakud.
After the resignation of Shri N. K. Choudhury, Dr. H. K. Mahtab formed

the Ministry which continued till the second General Elections 1957. The
Congress Party could not secure majority, though it was the single largest party
in the Assembly. Six independent members joined the Congress and 5 Jhar-
khand members supported the Congress Ministry which was formed in April,
1957. Subsequently, some members of Ganatantra Parishad joined the Congress
3-15
444 The Indian Journal of Political Science
and thus Congress secured absolute majority in the Assembly.« In addition

the Chief Minister Dr. Mahatab, Shri Lingaraj Panigrahi, Shri Radhan
Rath, Shri Satyapriya Mohanty, Shri Sailendra Narayan Bhanja Deo, S
Basantamanjari Devi, Shri Pabitra Mohan, Shri Nilamani Routray and S
Rama Chandra Mardaraj were Ministers and Shri Santanu Kumar Das, S
Bira Bikramaditya Singh Bariha, Shri Kumuda Chandra Singh Dço, and
Himamsu Sekhar Padhi were Deputy Ministers. The Ministry continued
function till May 22, 1959. The Ganatantra Parishad joined the Governm
and Congress-Ganatantra Parishad Coaliation ministry was formed with
Mahatab as Chief Minister and Shri Rajendra Narayan Singh Deo, Leade
the Ganatantra Parishad as the Deputy Chief Minister. The Ministry contin
till February 24,1961 and then President's Rule was imposed in Orissa
breakdown of Constitutional Machinery for the first time since the inaugura
of the Constitution, The period of President's Rule continued from Februa
25, 1961 to June 22, 1961. The Coalition had consisted of Dr. Mahtab as Chi
Minister, Sri Radhanath Rath, Sri Satyapriya Mohanty, Sri Nilamani Routr
and Sri Sailendra Narayan Bhanja Deo from the Congress, and Sri R. N. Sing
Deo, Rajaballab Misra, Dr. Ramaprasad Misra, Lakshmi Prasad Misra an
Udit Pratap Deo from the Ganatantra Parishad. The Coalition Mini
continued somehow for one year and nine months only.
During the operation of President's Rule the first mid-term election w

held for the Orissa Legislative Assembly. The Congress under the dyna
leadership of Biju Patnaik secured 82 seats in the Assembly and the Congre
Ministry of ßiju Patnaik was sworn in on January 23, 1961 with Patnai
Chief Minister and Biren Mitra as Deputy Chief Minister. Sadasiv Tript
Pabitra Mohan Pradhan, Nilamani Routray, Dr. Jagannatha Rao and Hari
Singh Maradraj became Ministers and Brundaban Nayak, T. Sanganna, S
Saraswati Pradhan, Prahallad Mallik, Bira Bikramaditya Singh Bariha, Santos
Kumar Sahu and Chandra Mohan Singh became Deputy Ministers. Due to
implementation of Kamaraj Plan Biju Pattnaik was one of the six Chief Min
ters to resign his office at the instance of the Congress High Command
organizational work of the Party on a full-time basis. Biren Mitra formed
next Congress Ministry on October 2, 1963. The former Chief Minister
6. The Orissa Panchayat Samiti and Zilla Farishad Act, 1959 (Orissa Act 7 of I960
established Zilla Parishads and Panchayat Samitis in the State of Orissa in the lig
of the recommendation* of the Study Team headed by Shri Balwantrai Mehta.
Government &úd Pólitics in Orissa since' Independence [ 445
Patnaik was appointed Chairman of the State Planing Board to look after
Planning and Development of the State, the post which he held till January 29,
1965. The 98th session of the Indian National Congress was held at
Bhubaneswar in Gopabandhu Nagar during January 8-10, 1964. K. Kamaraj
was the President of the Bhubaneswar session and Biju Pattnaik was the Chair-
man of the Reception Committee appointed for the purpose. The famous
historic resolution of Democratic Socialism introduced at the Avadi Session of
the Indian National Congress was adopted finally in this session at Bhubane-
swar. That is why, the concept of "Democratic Socialism" is at times referred
to as "Bhubaneswar Socialism". Pandit Jawaharlal Nehru had a very busy
schedule of engagements probably because of which he fell ill and died in May,
1964 due to prolonged illness.
R. N. Singh Deo, leader of Opposition in the Orissa Legislative Assembly

and 62 others submitted a memorandum to the President of India making
allegations of corruption and abuse of power against ^Patnaik, Mitra and other
Ministers of Orissa on July 28,196 *. i he memorandum was followed by two sup-
plementary memoranda - one in September and the other in October, 1964. The
matter was then referred by the Union Home Minister to the Central Bereau
-of Investigation for a preliminary enquiry and report. The report of the Direc-
tor, C. B. I. dated November 15, 1964 reads as follows :
"On the basis of the scrutiny of

records it is not possible to say that all the
allegations are unfounded, unsubtantiated or
untrue« There are quite a few, and some of them
are serious, which require further inquiry to
come to definite and clear conclusion. On a
number of points doubts remain..."
A sub-committee of the Union Cabinet consisting of Guljarilal Nanda,
Home Minister, Y. B. Chavan, Defence Minister, T.T. Krishramachari, Finance
Minister, Swaran Singh, External Affairs Minister, A.K. Sen, .Law Minister and
M. C. Chagla, Education Minister examined the report of the C. B. I. The Sub-
committee also discussed the matter personally with Patnaik, and found
administrative impropriety. Though the Sub-Committee could not find any
transaction of personal pecuniary benefit, Patnaik resigned from the office of
the Chairman, Stati Planning Board on January 29, 1964, while Biren Mitra
446. ] The Indian Journal of Political Science
tendered his resignation on February 20, 1965 from the office of the Chief
Minister. Sadasiv Tripathy was elected as the new leader of the Congress
Party and was sworn in as Chief Minister of Orissa on February 21, 1965.
His Ministry continued in office till March 8, 1967,' and after the 4th General
Election the Swatantra - Jana Congress Coalition Ministry headed by R. N.
Singh Deo assumed office. The Swatantra Party was headed by R. N. Singh
Deo, and the Jana Congress by Dr. H. K. Mahtab who had before that severed
his connections with the Congress party.
The Fourth General Elections were held in February, 1967. Shingh Deo
became the Chief Minister while PabitraMohan Pradhan of Jana Congress be-
came the Deputy Chief Minister in the new Ministry8. Surendranath Patnaik,
Banamali Patnaik, Rajballab Misra, Harihar Patel, Nityananda Mohapatra,
N. Ramasesayya, Haraprasad Mohapatra, Santanu Kun ar Das, < Murari Prasad
Misra and Dayanidhi Nayak became Ministers whereasjHimamsu Sekhar Padhi,
Manmohan Tudu.Anantanarayan Singh Deo, Kartik Chandra Majhi, Brundban
Tripathy, Gangadhar Pradhan and Gobinda Munda became Deputy Ministers.
The Swatantra-Jana Congress Coalition remained in office till January,

1971. The coalition had announced to implement a 21-point programme in the
State. Accordingly, there was postponement of Land Revenue collection, and
abolition of Revenue from Devottar from the month of April, 1967. Besides, the
compulsory irrigation rate was abolished and optional irrigation tax was fixed
for paddy and other products. A commitëe was appointed to evaluate the wor-
king of public Sector Undertaking^. Panchayati tax was abolished and primary
education was taken out of thè control of Panchayat Saroities. The institution
7. In 1966, two more Universities were created for Orissa, one at Sambalpur and another at
Berhampur. A legislation was passed in lhe Orissa Legislative Assembly on the 17th.
October, 1966 and was assented to by the Governor on the !0th December, 1966. The
two new Universities came to function with effect from the 1st January, 1967.
8. Das, B. O., "Swatantra-Jana Gongresi Coalition in Orissa, 1967-71," 33rd Indian

Political Science Conference, Calcutta Dec. 1972, Synopses of papers, Calcutta,
pp. 36-37.
Govenmeot aad Politics in Orissa since Independence [ 447
of Zilla Parishaď was abolished as an economy measure •' though this was a
major deprature from the accepted All-India pattern and Balvantrai Mehta
Commitee recommendations.10 Steps were taken to separate Judiciary from
Executive in the four remaining districts of Orissa in order to give effect to
Article 50 of the Directive Principles of State Policy. Prohibition which was
operative in the four coastal districts of Orissa was abolished by the Coalition
Government and open licences were issued for opening distillaries from the
month of April, 1968. The coalition government appointed a Commission of
Enquiry under the commission of Enquiry Act, 1952, contisting of H.R. Khanna
of Delhi, Court to enquire into , the allegations against Biren Mitra High Biju
Patnaik and others. The commission in its report found charges of administra-
tive impropriety againnst Patnaik and Mitra and declared others innocent of
the čharges.>made against them. The Government filed two cases against them
in Courts of Low but the cases were withdrawn due to the non-submission of
charge sheets and non-availablity of evidences against them.
The fourth General Elections, 1967 had provided the occasson in Orissa
for birth of the first Swatantra-led Government in India which controlled the
reigns of power from 1967 till 1971. It was a United Front with a 21-point
common programme of electoral alliance to dislodge the Congress from power,
and it could secure 75 seats. The Coalition Government was formed under the
leadership of the Swatantra as the major partner of the coalition. Several
stresses and strains were evident from its working and natural calamities like
flood and cyclone stood in its way. Due to the increasing unpopularity of the
Jana Congress many of its members expecting its extinction withdrew their
support from the coalition and joined congress (R) resulting in the resignation
of the ministry.
9. The Swatantra-Jana Congress Coalition Government brought about the abolition of

the Zi lia Parishads as an economy measure in order to galvanize the institution of
Panchayati Raj. The Orissa Panchayat Samiti and Zilla Paiishad (Second Amendment
Act, 196?) waa assented to by the Governor on January 4, 1968 for the purpose. The
abolition was effected on and from Agust 31, 19o8 leaving 314 Panchayat Sajnitif and
3,829 Gram Panchayats in the State. The Having so srsulted was estimated at about
Rs. 1 1 lakhs as disclosed by the Deputy Minister for Community Development and
Panchayati Raj in the Orissa 1 egisl ative Assembly on February 11, ¡968. (Vide OLA
Debates, Vol. IV No. 2, p. 6, Feb. 11, 1968)
10» Das, B. C.. Zilla Parishads in Orissa and a New Alternative" in .Quarterly Journal of
Local Self- Government, Bombay vol. xii, No, J, Juy-September, 1970.
Oris sa for the second time experienced President's Rule- from January to
March, 1971, due to the withdrawal of Jana Congress members from the Coali-
tion Ministry on account of grant of 20% rebate to the Kendel Leaf traders and
dealers and by the Ministers belonging to the Swatantra Party. The proposal of
Jana Congress to face the electorate was not accepted by the Swatantra Party
because of which President's Rule was imposed on the State. Mid-term elections
were held in March, 1971 in which no political party could secure majority of
seats is the Orissa Legislative Assembly. A Unided Front Government consisting
of Utkal Congress and Jharkhand was formed under the leadership of an
independent non-member, Biswaoath Das in April, 1971. The Coalition pursued
a 17-point programme and wass in office till June, 1972. Coastal districts of
Orissa faced an unprecendented cyclone during October, 1971. Several people
faced death; there was saline inundation, flood, cyclone and drought. The
State Government had to spend nearly Rs. 25 crores in relief work in the
interest of the people. The Oaissa Land Reforms Act was implemented by this
Government. Graduated Agricaltural Tax was proposed to be introduced by
this Government. The Government appointed a commission of enquiry on the
Report of Mr. Justice J. C. Mudholkar, Special Jugde for inquries into the
allegations of corruption headed by Mr. Jastice Serjoo Prasad. Retd; Judge of
the Supreme Court against Dr. H. K. Mahtab. The commission recommended
action on the basis of four principal allegations about which some evidence was
available. Before the Ministry could take action regarding these allegations, it
■went out of office.
Political defection has been the cancer of Orissa Politics. In June 1972
ten members of the Swatantra Party led by Shri Gangadhar Pr^dhan resigned
from their party and withdrew their support from the Coalition. Subsequently, -
-all the 32. members of Utkal Congress decidfed to join. the Congress Party. ■ The
Coalition faced death and a Congress Ministry under the ledership of Mrs.
¡Nandini Satpatby came to power on June 14, 1972.( Mrs. Satpathy resigned
her office of Minister of State in the Union Ministry óf Information5 and" Broad-
casting and was formally elected leader of Congress Party. Shri Nil a ma ni
Rantray (who became Deputy Chief Minister later), Shri Binayak Acharya, Shri
Lakhman Mallick, Sri Banka Blhari Das and Shri Gangadhar Pradhan became
Cabinet Ministers. Dr. Krupasindhu Bhoi, Sri Bhagirathi Gomango, Shri
Dombaru Majhi.Sri Achutananda Mahananda.Sri Gobinda Sethi ¿and Sri Soma-
nath Rath became Ministers of State and Shri Rabi Singh Majhi, Shri Rama
Chandra Praharaj and Shri Saharai Oram joined the Council of Ministers. The
Congress Party refused to admit seven M. L. As. of Utkal Congress for no
apparent reasons in their rank, because of which all the Utkal Congressmen
deserted the Congress organization in disappointment. In the first week of
January, 1973, the Congress Organization took a decision to suspend Dr.
Mahtab and Shri Muralidhar Kuanr for anti-party activities during the Cuttack
by-election. The Congress Government also did not drop the question of taking
follow-up action against Dr. Mahtab on the findings of the Sarjoo Prasad
Commission which were accepted by the previous Government. Mrs. Satpathy
had to quit office on March 1, 1973 and the State came under the spell of
President's Rule on the 3rd March, 1973 for the third time which continued in
operation till the 6th March, 1974. The mid-term election held in February,
1 974 was thus imposed upon Orissa by the Congress Party. The Congress Party
which was in opposition before June, 1972 had only 51 seats in the Orissa
Legislative Assembly which had increased to 95 because of the merger of Utkal
Congress and Swatantra members. The Utkal Congressmen experessed
their desire lo quit the Congress because of the faulty policy adopted
by the Congress regarding their admission to Congress. The enlarged
Congress Party with its 59 strength could not elect its leader from
among themselves. The Prime Minister Mrs. Gandhi sent her own nominee to
lead the Government. The Utkal Congressmen treated this as an undemocratic
action. The congress closed its door to the top leaders of the Utkal Congress
including its President and those who were admitted were treated as second
class members and were not taken into confidence by the leadership. The earlier
assurance was for unconditional merger of all the Ayarams, but subsequently^
conditions and restrictions were imposed regarding the admission of Utkal
Congressmen. A United Opposition Front known as the Orissa Pragati Party
consiting of Swatantra, Utkal Congress and Swadhin Congress Party of Dr«
Mahtab was formed on January 28, 1973 by Patnaik, Singh Deo and Dr*
Mahtab with Patnaik as its leader. On the 1st of March when Mrs. Satpathy
resigned, the Orissa Legislative Assembly was in the midst of its budget session
and was scheduled to meet at 8. A. M. on the same day to pass the Appro-
priation Bill. The Congress was reduced to minority on the floor of the House.
The Governor Mr. Jatti did not call upon the leader of the Opposition, if at all
he was prepared to form an alternative Government. Instead, he prorogued the
Assembly on the advice of the out-going Ministry which had lost majority on
the floor of the Legislative Assembly and whose resignation he had accepted«
Mr. Biju Patnaik, as the leader of the Pragati Party and as leader of opposition
450 3 The Indian Journal of -Political Science
intimated the Governor1 1 that his party commmanded absolute majority in the
Assembly and he demonstrated before the Governor the support of absolute
majority by presenting the members before him. The Governor recommended
issue of a proclamation of Article 356 which was issued on the 3rd March 1972.
Patnaik and 73 other M. L. As. of the dissolved Assembly filed a writ petition
before the Orissa High Court challenging the Governor's conduct on the issue
oi proclamation.
The High Court1* while dismissing the writ petition on the ground that
issue of proclamation is outside judicial purview, held that the Pragati Party
commanded a strength of 70 in a house of 139 excluding the speaker, that is
absolute majority and further held that the Governor "did not honour" well-
established constitutional conventions in not calling upon the Pragati Party to
form the Government. The Governor could have recommended for President s
Rule had the Pragati Party failed to establish its majority in the House which
was in session, and if an alternative Ministry was not possible. The Governor in
his report to the President accepted the position that the Pragati Party comma-
nded .absolute majority. He recommended issue of Proclamation solely on the
ground that the Government formed by the Pragati Party would not be stable.
The High Court held that the Governor's decision and report are not justicia-
ble and no writ can squash them, and the proclamation is not justiciable. The
President and the Government of India acted on the report of the Governor and
accepted his assessment. The High Court held that consideration of stabi-
lity or otherwise of the Ministry to be formed was wholly irrelevant in the con-
text of constitutional conventions govering appointment of Chief Minister. The
11, The Governor,Mr. Jatti in hii Report to the President dated March 1> 1973
quotes Dr. Mahtab and reveals the nature of defection politics in the State as
follows t
''During the discussion. Dr. Mahtab urged immediate permission to his party to
from a Govt, and stated as follows : The greater the delay greater is the chance of
losing the present majority. If there is delay in taking a decision, same members
who have come to us may go back, Aya Ram and Gaya Ram may take place.
(Para 13 of Annexure-10 of the plaint- O. O. C. No. 334 of 1973)
12. O. O. C. 33 1 of 1973. Shri Bijayananda Patnaik and 73 others Vs. the President
of India and others.
Government and Pòli tics in Orissa since Independence [4SI
judgement is of far reaching significance since independence as a High Court

for the first time took judicial notice of the most important conventions of the
Indian Constitution and held that a Governor did not honour the Conventions
regarding appointment of Chief Minister and formation of Council of Minis-
ters.13
Kendu Leaf Trade was nationalised by this Government. Certain funda-
mental changes were brought about in the Orissa Land Reforms Act. An
Ordinance was promulgated fixing a ceiling on land of 10 standard acres.
Persons having more than 10 acres were prohibited to either sale or transfer theit
land. Rural ceiling, restrictions on transfer of land by tribais, protection
of the interests of the tenants, and payment of compensation regarding land
were some of the contemplated measures included in a Bill for adoption by the
Assembly. The Ministry went out af office before the Bill could be adopted by
the Assembly. The Ministry towards the last part of its life had ordered for
institution of criminal proceedings on the charges of corruption against Dr.
Mahtab on the basis of Sarjoo Prasad Commission recommendations. Another
commission of enquiry was appointed consisting of G. K. Mitter, Retired Judge
of the Supreme Court of India regarding grant of rebate by R. N. Singh Deo
and his collegues to the Kendu Leaf purchasers and dealers. President's Rule
continued in the State for more than a year. Governor B. D. Jatti continued
the administration of the state with the help of two advisors during the period
of President's Rule. Law and order situation in the State was normal during
the time. Land Reforms Bill proposed earlier by the Congress Ministry was
adopted by the Union Parliament. The consolidation of Holdings Act, 1911
was implemented and the Rengali Multi-purpose Project was sanctioned by the
Government of India. In October, 1973 the Lift Irrigation Corporation of the
State was established. Steps were taken for providing employment opportunities
to the educated unemployed and youths of the State.
In the mid-term election held in February, 1974 no party could secure
majority; it was an uncertain mandate14, but Congress emerged as the single
largest party with 69 seats. A Congress Ministry headed by Mrs. Satpathy
was sworn in on March 6, 1974, with the support of the Communists. Mrs.
13, Patnailc, B. M., Justiciability of Proclamati an .under Article 366 Cuttack, 1973,
PP» i -22,
1*. Da», B. C., "The Uncertain Mandate" in the Indian Political Science Review,
Delhi, Vol. IX, No. 2, July, 1975,
3-16
Satapathy's Ministry had started a programme for ameliorating the conditions-

of the weaker sections of the society specially ths Harijans and the Girjans. In
June, 1975 due to the proclamation of internal National Emergency in the
country the 20-point economic programme of Mrs. Indira Gandhi was announ-
ced for implementation. The Government of Orissa had, in the meanwhile,
initiated many of the programmes included in the 20-point economic programme.
The Government had provided land to the landless. Harijans and Girijans
were partronised to a considerable extent. Koraput, Kalahandi, Dhenkanal and
Mayurbhanj districts were primarily the centres of tribal development work. In
order to free the villagers from the clutches of money-lenders, the Orissa Money
Lender's Act was suitably modified in the interests of the common man. The
Government had fixed minimum wages for the daily labourers, wage-earners
and workers. Forced labour in the shape of Bethi and Gothi was abolished
by the Government. Several novel measures were adopted for the poor and
meritorious students acd the students belonging to weaker sections of the
society. . Book Banks were established as a matter of policy in many schools and
colleges, more scholarships and stipends were instituted for the poor and meri-
torious students many of whom also got the advantage of free supply of books,
note-books and papers. The Government, for the first time, announced to make
the primary school teachers, Government servants, and a revised pay scale was
introduced. Several legal and administrative measures were initiated against
social evils and uncivilised actions. Dowry Abolition Act was adopted as a
measure of social reform. Prostitution was declared as a legal offence and
abortions were legalised. Restrictions were imposed on production and sale of
narcotic drugs and pills in order to save the young men from their impact. A
system of pension was introduced for the old and helpless as a measure of social'
security familiar to the concept of Welfare State. The Government had increased
Bus fares and had reintroduced land revenue, though road cess was decreased.
A system of levy was introduced in 1974 on paddy which was not a successful
measure of policy. Though a target was fixed for procurement of paddy the
target could not be reached due to the failure of the system of levy and there
was the verdict of the Orissa High Court that Levy was not legal. Again in
1976, Government had promulgated an Ordinance for procurement of paddy
and rice by introduction of the system of Levy. Mrs. Sa tpathy had differences
with the Governor because of which Akbar Ali Khan was the first Governor
since independence to resign his office and to go away.
Mrs. Nandini Satpathy tendered resignation after 3 2-month s of rule on

December 16,1976 and President's Rule was proclaimed in Orissa for the fourth
time. Internal dissensions within the party forced Mrs.jSatpathy to quit.
Binayak Acharya of the same party formed the Government shortly thereafter
but his was perhaps the shortest-lived ministry which had collapsed due to
defections even before the Janata Government at the Centre could dissolve the
Assembly on April 30, 1977 by imposing President's Rule in the State. Janata
Party's success in the 6th Lok Sabha Poll in March, ^1977 demoralised the
Congress ranks and its strength in Assembly was eroded to the extent of bring-
ing the Government to a minority on the eve of the dissolution of the Assembly.
In the mid-term elections, the Janata Party led by Mr. Biju Patnaik had secured
110 out of 147 seats in Orissa Legislative Assembly. The proclamation of Pre-
sident's Rule came to an end and Nilamani Rautray was sworn in as the
-Chief Minister of the State on June 26, 1977. According to the Janta Party
guide-lines, the size of the State Cabinet should not exceed 13 per cent of the
total membership of the State Assembly. Nilamani Rautray, the Chief Minis-
ter is a well-known figure in the public life of the country. Few persons in
Orissa could claim such versatility as Rautray has in his life. As a journalist,
a politician, an administrator, a social worker, a labour leader an M. L. A.,
Deputy Minister, Minister, Deputy Chief Minister, Party Chief, member of
Rajya Sabha and above all, as a gentleman he has established a reputation
which few could match in this generation. The people of Orissa by returning
the Janata Party in an unprecedented majority had bestowed great responsibility
on his shoulders.
Since independence, Nilamani Rautray's is the fifteenth Ministry in Orissa

during the last thirty years. It is the third non-Congress ministry and Rautray
is the tenth Chief Minister since Independence. None of the earlier fourteen
Ministries was able to last the usual, five-year term. This is the second minis-
try to have a comfortable majority of 1 10, the first being oř Patnaik in 1961
with 82 seats in a House of 143. No other ministry had originally possessed
clear majority of its on; but the majority strength was worked out through the
Ayarams. The game of defection has been so flippant that ministry after minis-
try had collapsed like a house of cards.15 No party obtained a clear majority
in five out of the seven Assembly polls held since 1952. Though Biju Patnaik
secured a clear majority for the first time in 1961, the period between 1961 and
1967 saw three Congress Ministries.
In the First General Elections Congress secured 68 seats in a house of 140»
It depended on individual defection and the Jharkhand members to continue in
power which was steadily depleted following the handling of 1 955 floods and
the state's reorganisation movement next year. In the Second General Election
Congress failed miserably by securing only 56 seats. Worst type of defection
politics continued. The nine-member C. P. I. group came to the aid of Dr.
Mahtab. Ayarams and Gayarams dominated the faction-ridden politics oí the
State so much so that almost every day the Ministry had to face the threat of
fall. The sordid drama of confining some tribal M. L. A.s almost under house
arrest conditions and bringing them to Assembly to participate in voting is still
fresh. The story of a Harijan M. L. A. going to the police station in a drunken
state to deposit whatever money he was given to change side had cast doubt on
the survival of the election politics itself. Exasperated, the then Chief Minister
Dr. Mahtab told reporters, I am tired of all these, Give me -farewell". Orissa
politicians it is said have been leaders of certified dynamism. 16
15. F. G, Bailey in his book, "Politics and Social Changes Orissa in 1959 (pp. 217-
218, California 1963) sayi as follows :
'•From 1947 to 1959 Congress came more and more to be held together by a very
delicate balancing of interests. Moral action tended to be replaced by expedient
action
The problem of politics in the years between 1947 to 1959 was that politics still went
on over the hands of the ordinary people except in one vital respect - politicians needed
votes.
"No party had an eťfective majority

the narrow interest that kept the ma
16. A.G. Noorani in his book, "M

un H er the caption, "Dynamic men
"Like the Punjab and Jammu Kash
of certified dynamism, Dr. H. K.
Khanna in his report on Biju Patn
his dynamism, Sarjoo Prasad's Re
in the state of Orissa."
Government and Politics inOfissa since Independence [ 455
The Congress-Ganatantra Parisbad coalition had a strength of more than

100 members bat it came to an end in 1961 due to the differences between Biju
Patnaik and Dr. Mahtab after a stint of 19 months only. Patnaik's spectacular
success in the mid-term election gave a new dimension to the politics of develop-
ment. Politics took a new turn with allegations of corruption and misuse of
office. Patnaik teft office under Kamraj Plan and there were as many as three
Governments between 1961 and 1967. The historic students agitation backed
by Congress dissidents and the PSP, and the CBI enquiry into the charges of
corruption upset completely Mitra's apple cart. Even Atulya Ghosh's interven-
tion for the cotinuance of Mitra Ministry was of no avail. Tripathy's tennure
was marked by ''mass resignation" of his cabinet colleagues though he was
backed by the Congress President K. Kamraj. Dr. Mahtab became the father-
founder of Jana Congress and the Swatantra-Jana Congress Ministry was the
first non-Congress Government in the State headed by Shinghdeo. Concessions
given to the kendu leaf contractors created embittered feeling among the coali-
tion partners and led to the fall of the Government. Patnaik and his followers
left the Congress and formed the Utkal Congress and it emerged as the single
largest party with 51 seats in 1971 elections.
Dr. Mahtab, the leader of t e Congress Legislature Party remarked in

despair : "Dhal Nai, Talwar Nai, Nidhi Ram Sardar." Ultimately, Swatantra,
Utkal Congress and Jharkhand parties formed the colition Government under
the leadership of Biswanath Das which fell after 14 ^months due to mass
defection. Barring Patnaik and six others, all other Utkal congressmen
switched over to Congress which formed Government under the leader-
ship of Mrs. Satpathy. Step-motherly attitude disillusioned the Utkal Congress*
men who deserted the ruling party en masse. The Government fell and in 1974
elections the Congress secured 69 seats and formed the Government with the
help of its ally, seven-member CPI group. Defection swelled the Congress stren-
gth.1' Swatantra and Pragati Party formed the BLD. After the proclamation
of emergency in June, 1975 there was a steady flow of oposition members to
the side of the Congress. Internal dissesnsions led to removal of Mrs. Satpathy
from power in 1966. Mr. Binayak Acharya's Government was the shortest-lived
Ministry. Mass defections cleared the ground for fall of the Government.
Assembly dissolution and fresh election before the Janata Government at the
17. The A. B. Patrika, 26-6-77, Calcutta.
Union could dissolve the Assembly in April, 19/7. The Janata Party led by
Biju Patnaik secured 110 seats out of 147. The number, of course, has never
been a stabilizing factor in Orissa politics. The fore-going observations will
indicate that Orissa has become the most convenient example for the Ayarams
and Gayarams, One from among every four M. L. As was a defector.18
Orissa had become the citadel of political instability and the stage for the
political drama mainly by the coalition actors.19 Groupism in the Congress
and in-fighting among the coalition partners have been the" principal causes of
downfall of all ministries. There has been no serious empirical study and
publication of comprehensive nature on Orissan society and politics. Another
reason may also be advanced in this connection. It may appear probable that
since all the former Chief Ministers of the state are alive, the intensity of the
battle for power is more acute. Aspirants for power and position are many
in Orissa. Further, the Centre's attention towards Orissa has not been very
lavourable. It would be evident from the quota of representation given to
Orissa in the Union Cabinet. Mr. Biju Patnaik is the second leader from Orissa
after Dr. Mahtab to get the post of a Cabinet Minister in the Union Cabinet.
Orissa has been neglected part of India. Since Independence the demands
of Orissa have not received adequate sympathetic consideration from the Union
Government despite unprecedented out-bursts and periodical protests both by
the elected representatives and the common men. In fact, this ignoring of the
voice of the State by successive Governments at Centre has been a well known
phenomenon. Orissa shall provide the raw materials for the Steel Plant at Salem
but Orissa herself cannot have a second Steel Plant despite her abundant iron-
ores and minerals.
There is need for independent studies on the politics of poverty and scar-
city in Orissa. Orissa's industrialization is far from satisfactory and her innu-
merable multitude live below the poverty line without being able to get the
basic necessities of life. It is to be examined whether Orissa still continues as
"the epitome of poverty" and as "the folklore of corruption4' and misuse of
i 8. The Samaj, 22.5.77, Calcutta.
19, Das, B.C., The Dynamici of Factional : Conflict A study of tlw Dimensions of
Electoral Conflict in Aisembly Constituency in Orissa, 35 ih Indian Political Science*
Conference, Tirupatì, Synopsis of papers, Vol. I, January, 1976.
Government and Politics, in Orissa since Independence [ 437
power. The ultimate test is a pragmatic one : whether the present institution
dn raise the standard of living and maintain national unity. Orissa presents the
picture of a successful compromise of deep-seated traditional cleavages in the
wider structure. It is in no sense the work of voters or the response to public
opinion."An Election is a test of skills and abilities of persons and the efficiency
of organizations, which have little to do with framing policy and
governing"." Orissa 's political culture indicates that Orissa has a very small
group of middle class elite.2 1 High caste politicians dominate the leadership
structure of all political parties and «'factions in Orissa. Instability of cabinets
may be attributed to the lack of strong attachment to political parties. Intra-
party factionalism and defection have contributed to trequent changes in the
cabinets. The civil servants, on the other hand, enjoy a permanent tenure and
maintain high visibilities in the State capital. In the absence of a stable majority
in the Assembly, most legislators are uncertain about their tenure and the
members of the public are also unsure about the status of their representatives
and this creates a negative image about party politics in the minds of young
pfople.
20. Bailey, F. G., "Politici and Society in Contemporary Orissa" in the book, «Politic»
and Society in India, edited by C.H. Philips, George Alien and Unwin London, 1963,
21. For representative literature on Society and Politics in Orissa see -
Richard Taub, Bureacrats under Stress, Berkeley, California, 1963.
Iqbal Narain (Bd.) Seminar in State 'Politics, Meerut, 1967.
Myron Weiner (Bd.) State Politics in India, 1968, Princeton.

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Indian Political Science Association

GOVERNMENT AND POLITICS IN ORISSA SINCE INDEPENDENCE—AN OVERVIEW

* Department of Political Science Utkal Universit/, Bhubaneswar-4

Oriya-speaking population among the neighbouring areas, ..and tracts. Ôrissa

and rejuvenation through the freedom struggle, Prajamandala movement and

Politically, the separate province of Orissa consisted of six distritos, yat

2. H. K. Mahtab in "The History of Orissa" saya^ MThe history of Orissa is

Congress Ministry headed by Harekrishna Mahtab was m power in Orissa

The first Choudhury Ministry consisted of N# K. Choudhury as Chief

Even after th? attainment of Independence vast areas of Ocissa lying

hindered the economic, political and cultural development of the State. T e

The Native States had to be merged with the neighbouring province by

By the end of 1948 a separate Legislative Assembly was created with 31

Dr. H. K. Mahtab joined the Union Cabinet as Minister of Industries

5. Mohanty, B. Orissa Parichaya, (in Oriya) Bhubaneswar. 1976, pp. 92-93.

The integration of princely States was accomplished under the leadership

After the resignation of Shri N. K. Choudhury, Dr. H. K. Mahtab formed

and thus Congress secured absolute majority in the Assembly.« In addition

During the operation of President's Rule the first mid-term election w

R. N. Singh Deo, leader of Opposition in the Orissa Legislative Assembly

"On the basis of the scrutiny of

The Swatantra-Jana Congress Coalition remained in office till January,

8. Das, B. O., "Swatantra-Jana Gongresi Coalition in Orissa, 1967-71," 33rd Indian

9. The Swatantra-Jana Congress Coalition Government brought about the abolition of

judgement is of far reaching significance since independence as a High Court

Satapathy's Ministry had started a programme for ameliorating the conditions-

Mrs. Nandini Satpathy tendered resignation after 3 2-month s of rule on

Since independence, Nilamani Rautray's is the fifteenth Ministry in Orissa

"No party had an eťfective majority

16. A.G. Noorani in his book, "M

The Congress-Ganatantra Parisbad coalition had a strength of more than

Dr. Mahtab, the leader of t e Congress Legislature Party remarked in

17. The A. B. Patrika, 26-6-77, Calcutta.

i 8. The Samaj, 22.5.77, Calcutta.

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