White Paper on Indian States (1950)/Part 10/Administrative and Political Background of Integrated States

by Ministry of States, Government of India

Administrative and Political Background of Integrated States

205. In the administrative field the States presented a wide variety. In some of the smaller States there was little departmentalisation and great concentration of authority in a few hands. In others, even the separation of judiciary and executive powers had been achieved to some extent. In almost all the States, owing to the smallness of the size and the compact nature of territory, the existence of autocratic government had made for easy co-ordination, and quick solution of such problems as attracted the Ruler's attention and interest. In normal Provincial set-up, the District is regarded as a convenient unit of administration and a focal point for co-ordination, but in a large number of States, an analogous District organisation did not exist or existed only in name and the position of the District officer as the person responsible for administrative co-ordination in his area was scarcely recognised. The new units of administration organised in the newly set up Unions have still to acquire the requisite cohesion, and the necessary local tradition is still to be built up.

206. In some of the larger States, the superstructure had been modernised to some extent and some of the senior officials could claim to possess in some measure the experience of the working of a Council and administering the various departments through a Secretariat. Even in these States, the Secretariat organisation was comparatively ill-developed and could hardly be compared with the machine that was available to popular Ministries when they assumed office in the Provinces. In most of the States essentially the traditional form of rule, with its peculiarities had survived in a strong form to the day of integration. In several States, the land is still held over large tracts under the Jagirdari system, with its variants, and, until recently, a host of administrative functions were performed by the Jagirdars. There is a bewildering multiplicity of systems of land tenure and even now the modern system of revenue administration, which includes a proper settlement, record of rights and a trained revenue staff, does not extend to large areas of land which still remain under feudal conditions.

207. The administrative personnel inherited by the Unions is not equal, in the immediate future, to the responsibilities that the new set-up imposes on the public services. The predominance in the public services of a number of States of certain classes, particularly in the army and the police, still persists. The principle of selection through competitive examinations by a Public Service Commission had been recognised only in a limited way and in a limited number of States. The rules relating to recruitment, promotions, confidential reports and training, where they existed, left much to be desired. There are undoubtedly quite a good few officers with considerable ability, but traditions of common service are still to be developed.

208. One more important feature of the administration of States as inherited by the Unions was the wide variety of systems of financial control. The powers of the Auditor-General, where one existed, and the functions of the Accountant-General varied from area to area. In some States, a system of pre-audit obtained; in others spending departments were entrusted with huge departmental advances, which were not satisfactorily accounted for or audited. Finance departments, where they existed, were weak and lacked traditions of effective control over public expenditure. An integrated system of financial control coupled with efficient audit is one of the essential adjuncts of democratic government. It will take a little time to build this up.

209. If administratively the conditions in the integrated States were not such as to make the immediate introduction of a system of administration on the Provincial level a practical proposition, the position in the field of political institutions was no better. Very few States had proper Legislatures functioning in them; the Legislatures where they existed were on a restricted franchise and included considerable number of nominated members. Even the number of local bodies such as panchayats, municipal committees and District Councils, was extremely limited. Political parties, which are relatively of recent origin, do not possess well-knit organisations capable of enforcing discipline on their members or assuming unaided the heavy responsibilities of administration. Sectarian considerations continue to weigh heavily and local loyalties are a great stumbling block in the way of political and administrative unification.

210. While the administrative organisation in the States is not adequate to the task of running a modern and developing administration and the political institutions have yet to be properly habilitated in the soil, the Governments of the States face the huge problem of reconstructing the entire administrative structure. Measures for agrarian and other reforms have to be thoughtfully planned and carefully executed. Adequate security arrangements have to be made in respect of the areas situated on the Indian border lying in some of the Unions. A strong and competent administration alone will be able to tackle these difficult problems of administrative consolidation, democratisation and over-due reforms.

Speaking of this aspect of the problem of States' in his Convocation Address delivered at the University of Allahabad on November 27, 1948, the Hon'ble Sardar Vallabhbhai Patel observed as follows:—

"Let us turn to the States. I have been the recipient of many congratulations, addresses and tributes on the successful manner in which it has been possible to bring about the whole process of integration and democratisation of the States. But as I have pointed out in my speech at Nagpur, all these are, even if deserved, quite premature. The real task has just begun and that task is to make up for the loss of centuries, to consolidate the gains that we have secured, and to build in them an administrative system, at once strong and efficient. We have to weave new fabrics into old materials; we have to make sure that simultaneously the old and the new are integrated into a pleasing whole—a design which would fit well into the pattern of all India. You will appreciate the immensity and complexity of the task if you bear in mind that in many States even the rudiments of administrative machinery did not and do not exist; in a large number even local self-governing institutions were either conspicuous by their absence or still in a stage of infancy; popular organisations did not have such far-flung roots as in the rest of the country. Almost over-night we have introduced in these States the superstructure of a modern system of government. The inspiration and stimulus has come from above rather than from below and unless the transplanted growth takes a healthy root in the soil, there would be a danger of collapse and chaos. I should like those over-enthusiasts who feel that the problem of the States has been solved or who are impatient of further advance calmly to reflect on this true picture that I have given here of the problem as it exists. It will be folly to ignore realities; facts take their revenge if they are not faced squarely and well."

211. The question of evolving suitable arrangements for the governance of the Unions which would ensure that new Unions make up quickly the leeway of ages and become within a short period full-fledged constituent units of the Indian Union has, therefore, been one to which the Government of India have given their most anxious consideration. Clearly, such administrative organisations and political institutions as are to be found in the Unions cannot be expected to shoulder these great responsibilities. The inspiration and urge for the expeditious completion of the processes of integration and democratisation come from the people of India as a whole, and the Central Government, as the instrument of the will of the people of India, cannot escape the obligation to ensure that these processes are completed with the utmost possible speed and efficiency. Indeed, the Central Government are responsible to the elected representatives of the people for the discharge of this vital obligation. The interests of the whole country are so intimately bound up with the consolidation of the territories integrated in the Unions that any other conception of responsibility may prove most prejudicial not only to the administrative integration of the Unions but also to the growth of healthy democratic institutions in them.