April - 2015 Odisha Review
The Creation of
a Separate Province of Odisha
Rabindra Kumar Behuria
The movement for the amalgamation of the which became the worst form of gagging yet
scattered Odia speaking tracts began in the last unknown even in the worst despotic form of
quarter of the 19th century. In 1875 Raja Government. The decision naturally wounded the
Baikuntha Nath Dey of Balasore and sentiment of the Oriya speaking people very much
Bichitrananda Pattnaik of Cuttack submitted a and efforts in all directions were made to reverse
lengthy memorial for the unification of the scattered the Government decision.
Oriya - speaking tracts under single It is interesting to mention that in July
administration. In November 1888, Sir S C
1895, H.G. Cook, the Commissioner of Orissa
Bayley, the Lieutenant Governor of Bengal,
supported the movement for amalgamation of
visited Orissa and at that time he was presented
Oriya speaking tracts. It was the first official
with a memorial by the Utkal Sabha of Cuttack
support - Cook suggested that (1) Sambalpur
in this connection. But the Lieutenant Governor
District in the Chhatisgarh Division of the Central
rejected the idea outright. The memorial of the
Province; (2) Tributary states of Patna, Sonepur,
Oriya speaking people and their Leaders, the
Rairakhol, Bamara and Kalahandi, and (3) The
agitation in the Oriya press and the suggestions
whole part of Ganjam district in the states of Kimid
of the high English officias failed to get any result
and Ghumsur be amalgamated with the Orissa
in this regard. The crisis came to a speaking point
Division. The suggestion was completely based
when the Chief Commissioner of the Central
on ethnological and philological considerations
Provinces decided to substitute Hindi Language
but unfortunately this was ignored by the
in place of Oriya for official use in the district of
Government.
Sambalpur in 1895 as per the resolution No. 237
of 15th January 1895. Such decision against the The agitation for the restoration of Oriya
interest of the majority of Oriya population in the language in the courts continued undisturbed in
district created spontaneous and unprecedented Sambalpur. In July 1901 some leading men of
storm not only in Sambalpur but also throughout Sambalpur like Madan Mohan Mishra,
Orissa. On 20th June 1895 the Utkal Sabha sent Brajmohan Pattnaik, Balabhadra Supakar, Bihari
a memorial to Lord Elgin, the Governor General Das and Sripati Mishra met the Governor General
protesting against the arbitrary measure. Such at Simla to appraise him of the problems. The
protest went unnoticed and by the end of 1895 Government restored Odia to its rightful place in
Oriya was abolished in the courts of Sambalpur Sambalpur but did not consider the transfer of
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Odisha Review April - 2015
Sambalpur to either Orissa Division or to create resolution of the Governemnt of India (No. 2491,
of Chief Commissionership for Orissa. dated 19 July, 1905) abandoned the transfer of
Ganjam and Vizagpatanam agency to Orissa, but
During the later half of 1902, the Oriyas
approved the transfer of Sambalpur area to the
of Ganjam sent a mamooth memorial to Lord
latter. Besides Sambalpur, the five Oriya speaking
Curzon in which they spoke of themselves as
states of Patna, Kalahandi, Sonepur, Bamara and
dissociated from their Oriya brethren and of
Rairakhol were transferred from Central
Orissa as a limb sepaated from the body and
Provinces and the states of Gangpur and Banai
prayed the Governor General to bring the
from the Chhotnagpur Division in October 1905.
scattered divisions inhabited by Oriya speaking Thus apart from the districts of Balasore, Cuttack,
people i.e. Ganjam in Madras, Sambalpur on the Puri, Angul and Sambalpur there were 24 Garjat
Central province and Orissa in Bengal, under the States known as Feudatory states of Orissa.
Government of Bengal or any one Government Thereafter inspite of all agitations, the boundary
and one University. Finally, the representatives of of Orissa remained unchanged till 1st April, 1936.
Ganjam, Sambalpur, Medinapur etc. met in a Orissa and Bihar became separate province in
conference at Cuttack on 30-31 December, 1912 when the partition of Bengal was annulled
1903. It was the historic gathering of ‘Utkal by Lord Hardinge of course two states, Sareikala
Sammilani’ or ‘Oriya Movement’ till the formation and Kharasuan were added to the Feudatory
of a separate province in 1936. The first states of Orissa in 1916, thus raising their number
conference was presided over by Sriram Chandra to 26.
Bhanjadeo, Maharaja of Mayurbhanj, Rajendra
Narayan Bhanjadev of Kanika was the Agitation for the creation of a separate
Chairman, rRception Committee and province incorparating all the Oriya speaking
Madhusudan Das was the Secretary and, in fact, tracts continued unabated. The Utkal Sammilani
the moving spirit behind such an organisation. The organised meetings at different places to mobilise
primary purpose of the conference was to build the people for the cause and reiterated the demand
up an organisation to fight for a separate province with a vigour and enthusiasm. The matter was
brought to the notice of the Royal Commission in
of Orissa.
1907 and the creation of a Chief
In the meantime, Lord Curzon's Commissionership for the whole of Oriya
Government was preparing a new scheme of Speaking territories was suggested there.
territorial adjustment of Bengal and Central Madhusudan Das also tried to impress upon the
Provinces. The scheme was outlined in the famous Secretary of State for India about the problem
Risley Circular sent to the Government of Bengal during his visit to London in 1908. A deputation
on 3rd December, 1903. It fully discussed the of Oriya Samaj of Ganjam met the Governor of
problems of Oriya speaking tracts and how they Madras and urged upon him the necessity of
affected the administration of local governments. separating the Oriya speaking tracts of Ganjam
Taking all factors in to consideration, the and Vizagpatanam from the Telugu dominated
Government of India decided to unite the whole areas of Madras and joining them with Orissa.
Oriya speaking people both hill and plain under While creating a separate state of Bihar and Orissa
one administration of Bengal. But unfortunately, in 1912, Lord Crewe, the Secretary of State,
in the absence of Lord Curzon, Lord Ampthill, appreciated the demand of the Oriya Speaking
Officiating Viceroy took a different decision. The people for Chief Commissionership and promised
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April - 2015 Odisha Review
that equal attention should be paid to the needs projected relevant portions from the Risley
of Orissa as to Bihar. Circular. Presenting this memorial, the delegation
demanded for the amalgamation of the Oriya
The sentiments of the people of Orissa
speaking tracts into one administration and
voiced in strong words at the 8th annual session
provision of equal status for Oriyas with Biharees
of the Utkal Sammilani, (Utkal Union Conference)
in regard to the representation in the council of
on 6-7 April 1912 at Berhampur. Madhusudan
local Bodies and the Univesity Education etc. The
Das expressed in the meeting his deep
Montford report while conceding the soundness
dissatisfaction. Some members of the British
and desirabilitry of linguistic distribution of areas,
Parliament supported the feelings of Madhusudan
emphasised the Oriya problems by suggesting as
Das. Lord Curzon also vehemently criticised the
an exceptional measure the establishment of a
decision of the Government in the house of Lords sub-province at an early date.
for neglecting the interest of the Oriya speaking
people. Thus, the political support to the move The Indian Statutory Commission was
roused the political consciousness in the minds of constituted by seven British members including
the people of Orissa to carry on their struggle till Sir John Simon, the Chairman. The Bihar-Orissa
the fulfilment of their demands in 1936. Legislative Council elected seven members to Co-
operate with the Simon Commission. The Primary
In the 12th Annual meeting of the Utkal purpose of such a commission was to evaluate
Union Conference held in December 1916 at the working of the Government of India Act, 1919
Balasore a Committee consisting of Madhusudan with a view to determining the future course of
Das, Rajendra Narayan Bhanjdeo, the Raja of constitutional development. Two legislators from
Kanika, Harihar Panda of Aska, Brajasundar Orissa, Rajendra Narayan Bhanja Deo and
Das, Gopabandhu Das, the Raja of Seragada Laxmidhar Mohanty were included in that team
(Ganjam) and Sudam Charan Naik was formed. of legislators and they helped the Commission to
The Montford (Montague-Chelmsford) reform understand the boundary problem of Orissa. They
scheme which proposed constitutional arranged a delegation of Oriya Gentleman who
amendments and provincial autonomy stimulated met the Commission in Pantna and pleaded for
great public interest in Oriya speaking tracts. The the formation of a separate province. In fact, those
committee prepared an address with a leaders of Orissa explored all avenues to convince
memorandum of arguments and a statement and the British Government that the creation of a
a map of the Oriya - tracts. They availd of the separate province was an imperative necessity.
opportunity of Montague’s visit to India in 1917 The people of Orissa showed two-fold reaction
and met the Secretary of State for India to the Simon Commission. The Congress
Chelmsford, the Governor General at Calcutta members from Orissa shared the reaction of the
on the 11th December 1917. They presented a Indian National Congress. But many leading men
memorial containing four Appendices. Appendic- outside the national mainstream took it an
A was map of Orissa showing the distribution of oppurtunity to focus the long standing demand of
Oriya speaking areas as the survey report of the people of Orissa for the formation of separate
Grierson. Appendix B contained arguments for province by amalgamation of the Oriya speaking
the creation of an Oriya province. Appendix C tracts. The two streams of public opinion in Orissa
was the list of Oriya speaking tracts proposed to moved in two different channels and created an
be united in to one Province. Appendix D interesting scene. Both groups focused their views
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Odisha Review April - 2015
in the press and platform and also clashed in the He circulated among the delegates of the first
council chamber. session of the Round Table Conference a
pamphlet titled, “The Oriya, Their need and reason
The Simon Commission was convinced
for a separate province.” The Congress Leaders
that it was ‘an urgent case for consideration and
treatment, while surveying the problem, it of Orissa took keen interest in the problem after
the Gandhi-Irwin pact. They brought the matter
observed as follows :
to the notice of Gandhiji in the Karachi Congress
“The province of Bihar and Orissa, which held at the end of March 1931 and be assured to
was constituted in 1912, is the most artificial unit place the matter before the Second Round Table
of all the Indian provinces. It was formed by Conference. On 18th December 1931, a
bringing under a single administration three areas resolution issued from the Reforms office of the
which differ markedly, not only in physical Government of India, announced the Constitution
features, but in many social, linguistic and cultural of the Orissa Boundary Committee “to examine
characterstics”. [Report of the Indian Statutory and report of the administrative, financial and other
Commission, Vol. 1, Calcutta, 1930. P. 58] consequences of setting up a separate
A Sub-Committee was appointed with administration of the Oriya speaking people and
major Attlee as the Chairman to investigate the to make recommendations regarding its
matter in details. It rightly felt that the grievances boundaries in the event of separation.”
were all founded, the demand substantially Taking favourable attitude to the long
supported by the people and the case observed outstanding problems of the Oriyas, the
sympathy. Therefore, they recommeded the Government appointed Sir Samuel, O’Donnel as
amalgamation of the Oriya speaking tracts of the the Chairman of the Commission to demarcate
Central Provinces and Madras with the Orissa the boundaries of the proposed Orissa Province.
Division of Bihar and Orissa. There was also the This Commission is known as the Boundary
possibility of having minor adjustments of Commission. Other members who were included
boundary with Bengal. In the conclusion they said, in this Commission were H.M. Mehta, Member,
“After consideration of alternatives of transfer of Council of states from Assam. Three associate
the territory as a whole to a particular province members were the Raja of Paralakhemundi,
and the creation of a sub-committee was in favour Krushna Chandra Gajapati Narayan Deo,
of the creation of an Orissa province, although it Sachidananda Singh, and Narashima Raju. After
recognised that the decision involved the large considering all aspects of the problem, the
question of sub-division of existing province.” O’Donnel Committee proposed that the province
[Report of the Indian Statutory Commission, Vol. of Orissa should include “the Orissa Division,
II, London, 1930, P. 51]. Angul, the Khariar Zamidari of the Jaipur District
The report of the Attlee sub-commission and the greater part of the Ganjam District and
provided a lot of encouragement to the people of the Vizagpatanam Agency” tracts with an area of
Orissa to pursue the matter at the highest level. approximately 33,000 sq miles and population
Maharaja Krushna Chandra Gajapati Narayan of about 8,377,000. After the conclusion of the
Deo, the Raja of Paralakhemundi, who was a Third Round Table Conference, the Secretary of
delegate to the first round table conference, State for India Sir Samuel Hoare declared on 24
presented a memorandum to the British December 1932 that a separate province of Orissa
Authorities for the creation of a separate province. would be formed in the constitutional set-up for
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April - 2015 Odisha Review
India. A white paper published in March 1933 Parliamentary Committee, in their report in
mentioned Orissa as a Governor’s province November 1934, added to the new Province of
alongwith 10 provinces of British India. The white Orissa as defined in the white paper, the following
paper reduced the area from 33,000 sq miles to are as : (1) That portion of the Jeypore Estate
21,545 sq miles by excluding Vizagpatanam which the Orissa Boundary Committee of 1932
Agency against the recommendations of many recommended the transfer to Orissa (2)
committees earlier. Paralakhemidi and Jalantar maliahs, (3) A small
The white paper proposals were almost portion of the Paralakhemidi Estate including
Paralakhemidi Town. Thus the total area of the
condemned in Orissa. In the meanwhile, the
new Province of Orissa raised to 32,695 sq miles.
Government of India constituted a committee
headed by John Austin Hubback as the Orissa The Joint Parliamentary Committee gave the final
shape of the new province which came into being
Administrative Committee on 24th June 1933.
as the 11th state of the British India by the Act of
The Committee was asked to investigate the
administrative problems which would arise at the 1935. His majesty issued the Order on 3rd March
1936 which was entitled as the Government of
time of the formation of a new province. The
India Order, 1936 and a new province of Orissa
notification was issued from Simla on 24th June
1933. Besides the Chairman, there were nine was inaugurated on 1st April, 1936. The same
day, Sir Austin Hubback took oath as the first
members in the committee including Madhusudan
Governor of Orissa in a ceremonial function held
Das, the grand old man of Orissa. The Committee
circulated a general questionnaire to selected in the Ravenshaw College Hall. With it began a
officials, non-officials and public bodies, and a new phase in the history of Odisha.
special circular to the Heads of Departments and Bibliography :
other special officials in Bihar. In October, 1933, 1. Patra, K. M., Orissa Legislature and Freedom
the Committee toured Orissa and examined a Struggle.
number of witnesses. Its report, published on 20th
2. Mukherjee, P (ed). History of Freedom Movement
December, 1933, made important in Orissa. Vol-II
recommendations regarding administrative
3. Pattanaik, S. History of Freedom Movement in
problems of Orissa. But Paralakhemidi was
Orissa. Vol.III
excluded in this proposal. The Raja of
Paralakhemidi decided to divide his estate and to 4. Pattnaik, L. Resurrected Orissa.
bring a portion of it including the town of 5. Patra, K.M., Orissa State Legislative and Freedom
Paralekhemidi to the new province. His decision Struggle 1917-46.
was emphatically placed before the Secretary of 6. Patra, P.S.N., The Maharaja of Paralakhemidi.
State. In the Utkal Union Conference which met 7. Das, G (ed). History of Freedom Movement in
at Cuttack adopted a strong resolution on the Orissa. Vol IV
matter and resolved to “Consistently oppose by
8. Odisha Review, April, 2014.
all legitimate, peaceful and constitutional means”
the creation of a separate province as outlined in 9. Report of the joint committee on Indian
Constitutional Report, Vol. 1, London 1934, P.- 36.
the white paper proposals. The Raja of
Paralakhemidi once again proceeded to London
to place his views before the Secretary of State Rabindra Kumar Behuria, Retired Lecturer, Chandbali,
and finally crowned with sucess. The Joint Bhadrak - 756133.
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