Whither Koshal?

Author: Unknown
This manuscript was published
published some time around 1946

This document was obtained from

Dilip Kumar Padhi,
Padhi, Hotel Sujata, Sambalpur - KOSHAL, 768 001 INDIA
E-mail: vu2dpi@gmail.com URL: http://www.qsl.net/vu2dpi

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 INTRODUCTION
HISTORICAL BACKGROUND
Situation and Area: Dakshina Koshal, better known in ancient, medieval and modern history
as Koshal, is the tract of land situated in the upper and central valleys of the Mahanadi and its
tributaries the Tel, Jonk, Aung, Ib and Brahamani rivers. The area of this tract is over 40,000
square miles and present population of about 5,000,000 people. The States of Bastar,
Kalahandi, Patna, Raigarh, Sakti, Sarangarh, Athmattik, Baudh, Bamra, Rairakhol, Sonepur,
Bonai and Gangpur which are over 31,000 square miles having a population of over 3,500,000,
at present in the Eastern States Agency, together with Sambalpur including Borasambar and
Khariar and the Khondmals, at present in Orissa, and Phuljhar, Deori and Bindra Nawagarh,
which are at present in the Central Provinces, make up the Koshal country.

Cultural Homogeneity: The history of Koshal like that of all other countries shows the
interplay of centrifugal and centripetal forces and tendencies leading to centralisation under
strong Kings and subsequent disruption into smaller units, from the Vedic down to the modern
period. But down through all the ages, whether during the Vedic, Puranic and Hindu periods,
during the glorious Suryavanshis, the Imperial Airas and Koshal Guptas, or during the Mughal
and Mahratta periods when the Chowhans were most powerful, the cultural homogeneity of the
people of Koshal has been maintained intact even till this day.

Language: The language of this tract has been influenced by Chotanagpuri Hindi from the
north, the Chhattisgarhr Hindi or Lariya from the west and by Telegu from the Andhra country
in the south. Thus, though the language of this tract is Oriya, it has got a distinctiveness of
its own. The language of Koshal is nowadays better known as the Sambalpuri dialect of Oriya,
which distinguishes it from that of the four other main sub-cultural Oriya groups.
Namely, Kalinga (Ganjam). Utkala, Singhbhum and Bhanjbhum, which together make up
the Oriya cultural group. The people of Koshal tract have also got common yet distinct
culture, traditions, manners, customs, mode of living and a peculiarity of outlook which
binds its people and gives this tract a distinctiveness, individuality and a personality of its own.

Leadership Amongst Oriya Cultural Groups: By virtue of its extensive area and population,
which makes Koshal the largest and most predominant Oriya cultural group, and also because
of its geographical position and historical importance, Koshal had always been the traditional
leader of the Oriyas till the advent of the British. Excepting for brief periods during the Airas
and Koshal Guptas, Orissa has never been united. Even during the hey-days of the Kalinga
Empire and the Ganga and Suryavanshi Kings of Orissa, parts of Singhbhum, Bhanjbhum,
Kalinga or Koshal have at different times remained outside the different Oriya Empires. But it
was through Koshal that Aryan culture has gone down to the coastal plains of Orissa.

Evolutionary Forces Artificially Checked: The natural evolutionary tendencies of

India have received a rude shock from the impact of a foreign civilisation and culture. The
centrifugal and centripetal tendencies have been artificially checked by the force of a superior
power. But while this has brought about an apparent unity of India, by checking the natural
tendencies of different regions and dividing cultural homogeneous groups and sub-groups, for
administrative convenience and Imperial policy rather than for scientific reasons, it has sown
the seeds of discord and sufferings. The tendencies of regional particularism and exclusiveness
on the part of groups and sub-groups of the different tracts on the one hand, and the forces of
unification arising out of the need for growth on the other, have had no scope for free play. The
result is that instead of finding their own levels, the various regions have grown up artificially
with disastrous results.

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Disadvantages of Unnatural Growth: Anything that is unnatural and artificial can neither be
lasting nor beneficial. Left to themselves the antagonistic forces, which were struggling for
supremacy in India on the disintegration of the Mughal Empire, would have spent themselves
and out of chaos would have appeared independent and well-defined homogeneous cultural
units. The centrifugal tendencies would no doubt have for a time kept these units exclusive.
But this would at the same time have preserved the autonomy, regional particularism, cultural
homogeneity and local patriotism of each area. Needs of growth and complexities of modern life
would in the natural course have provided the incentive for co-operation and the centripetal
forces would again have brought about the unity of India, preserving at the same time the
greatest possible local autonomy to satisfy the need of regional particularism. This process
would have been a growth from below, and, therefore, not only natural but lasting as well. It
would, at the same time, have preserved the cultural homogeneity of the different tracts. At
present, how-ever, the growth has been most unnatural and unfair in many cases. Cultural
homogeneous areas have been artificially disrupted, natural tendencies forcibly checked, and
people of a common stock, language, manners, customs, history and traditions have been
cruelly separated from their kith and kin. Koshal has been one of the worst sufferers in this
respect.

Objects of this Pamphlet: The injustice and cruelty of keeping culturally homogeneous groups
and sub-groups divided, and the disadvantages of such artificial separation is very widely
recognised at present. In connection with the constitutional settlement of India, the question of
revision of boundaries of the different regions would undoubtedly be considered. The removal
of anomalies would not, however, be an easy task. The formation of new units would have to
take account of past tendencies as well as present trends. With goodwill, determination and
broad vision, however, the problem can and should be satisfactorily solved. The object of this
pamphlet is to examine the possibilities of reunion of Koshal. An attempt has been made in the
following pages to approach the problem from the angle of natural growth which is the path of
Truth. Correct solution of problems have to be based on the Natural Laws in order to be true
and lasting. It is, therefore, essential that certain basic and fundamental causes governing
evolution and growth should not be lost sight of in examining this question. The first chapter
attempts at finding the basic governing factors and tendencies from an analytical historical
angle, and the problems of Koshal are examined in the light of these findings in this and
subsequent chapters. Illustrations from history in support of the conclusions have not been
incorporated to avoid making the pamphlet unduly lengthy For the people of Koshal and
students of history of Koshal, however, there should be no difficulty in following the process of
reasoning and recalling to mind the historical background which has led to these conclusions.
Maps and Plans have been incorporated in this pamphlet for facility of clearer understanding of
the facts, suggestions and conclusions. The suggestions offered and conclusions arrived at are
of particular interest to the people of the Sambalpur tract, which is the heart of Koshal. But it is
hoped that the suggestions will also be of interest and value to the Eastern States and other
Oriya cultural groups in general.

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 CHAPTER I
PAST TRENDS AND PRESENT TENDENCIES
Evolution of Society and State: The evolution of society began with the individual.
Primitive man was a complete, free, independent and sovereign entity. With the
need for growth, however, arose the need for adjustment of the individual to his environment.
Man could not exist as a theoretical ego apart from his environment. His first adjustment
to his environment was one of pure selfishness and undiluted and absolute autocracy. He
regarded the whole world as his dominion to do with it as he pleased. With the needs of
growth and for the individual’s increased happiness came the institution of family life
and with it began the process of self-restraint and subordination of individual rights and
freedom for the common interest of a group. Thus, stage by stage evolved bigger and bigger
groups culminating in the present-day complex society, States and countries. The process
has now gone on to the international field, where the need for interdependence and
co-operation for the common good is demanding similar self-restraint and subordination of
national rights; and pooling of resources in the interests of the whole world.

Individual Autonomy vs. Restraint and Pooling of Resources: At each stage of evolution,
how-ever, there are two, opposite tendencies at work. On the one side is the individual’s desire
for freedom and preservation of his personality and autonomy, and on the other hand, the need
for restraint, subordination, and pooling of his sovereignty and his resources for his own and
for the common good. What is true of the individual is also true of the higher groups. The
family, the group, the village, and the higher units come to acquire the attributes of individual
entities and as such are at all times jealous to preserve their local autonomy and freedom of
action. This tendency gives rise to desire for exclusiveness. But the law of growth sets in the
opposite forces leading to interdependence and co-operation. Both these tendencies are
necessary for the protection as well as growth of the individual and other entities. One
encourages individual incentive and the other leads to co-operative effort—both necessary for
the benefit of individuals and society. These are the tendencies which set in motion the
centrifugal and centripetal forces, the interplay of which is Nature’s way of evolution and
growth.

Regional Particularism vs. Centralisation: The degree of success and happiness of an

individual depends on the degree of his ability to adjust himself to his environment. The same
is true of groups. The environment in each case consists of the other higher groups of which
the individual entity is a part. No individual can however, be happy nor can he grow if he
completely loses his identity and his distinctive personality. There is thus a need both for
restraint and pooling of resources as well as for preservation of personal freedom and initiative,
without which neither an individual nor society can prosper. Regional particularism and local
initiative and patriotism in the different groups are as necessary to progress as the need for
centralisation and co-ordination of common interests amongst higher units.

Centrifugal vs. Centripetal Tendencies: Throughout the history of evolution, it is noticed that
growth and progress are achieved through the interplay of these opposite tendencies. When
adjustment to environment and to the needs of growth are not achieved, due to any one of
these tendencies becoming predominant, either from natural or artificial causes, the units
concerned have to pass through a period of suffering until they learn to adjust themselves and
resume the natural process of growth. For the good of the country as a whole, therefore,
tendencies for over-centralisation need to be as much avoided and prevented as tendencies
towards exclusiveness.
Homogeneous Cultural Units: Certain common factors govern the formation of families and
higher units of society and the State. Geography, history, common culture, language,
traditions, manners, social customs, and mode of living determine the form of the different

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units in all the stages of growth and also determine the sizes of the homogeneous cultural
groups and sub-groups. By the process of delegation of powers and pooling of sovereignty from
the individual upwards, as opposed to the unnatural method of delegation of powers from the
centre to the component units, the administrative units formed keep pace with the needs of the
various homogeneous cultural sub-groups and groups.

Sovereignty and Powers of Different Units: Sovereignty and powers retained by each
unit, from the individual upwards, is in proportion to its needs and capacity. Powers as well as
resources that are beyond the capacity of any unit is pooled for utilisation for the common good
at the next higher unit. When due either to narrowness of outlook, predominance or local
particularism any unit tries to hold on to more than its needs or capacity, conflict may arise
amongst the component units inter se as well as with the higher units. Even when there is no
such conflict, the process of growth is retarded by such unreasonable holding on to useless
powers or resources by component units.

Disturbance due to External Causes: Besides the internal causes for disturbance of the
natural evolutionary processes, at times external causes also operate in checking or disturbing
the smooth process of growth. These causes are noticed when expansionist ambitions of one
unit leads to invasion or war against another unit. The duration and nature of the disturbance
is in proportion to the nature of the aggression. In cases where expansion of a unit takes place
at the cost of other units of the same cultural group, the result is centralisation and unification
for the time being. But if it is foreign, the disturbance is much worse. Again, if the invasion is
for depredations and loot only, the suffering, though differing in degrees of intensity, is of a
temporary nature. But, if it is for purposes of occupation, the check on the process of growth
may be of a longer duration.

Brief Review of Evolutionary Trends of Koshal: The emergence of Koshal as a homogeneous

cultural group shows the interplay of all the above mentioned factors in the history of its
evolutionary process, through the ages. Koshal is known to have emerged as a cultural
homogeneous unit during the Puranic period. Villages; as autonomous units of the cultural
groups, appear to have been formed from the very beginning and, from the unbroken
continuance of the Panchayat system in this tract, it is clear that very little or no disturbance
in the process of growth was felt at the village level, except perhaps during the Mahratta raids
and depredations, and the villages, as the primary administrative and cultural units were
generally unaffected by the changes at higher levels. Higher groups which were known by
different names at different times, e.g., Khonda, Mandala, Bishaya, Umrai, Illaqua.
Garh, etc., however, do not appear to have remained entirely unaffected, and
changes in these higher units have taken place either for administrative convenience or
from external pressure from time to time. Formation of States as cultural sub-groups and
autonomous administrative units is known to have taken place at different times, many
centuries back. Unity under Kings and Emperors, are known to have taken place at
various periods of history, during the Puranic, Hindu as well as Mughal periods. But the urge
for such unity does not appear to have come from below, and was, therefore, not a necessary
requisite of growth in that period of evolution. In each of the above instances the initiative for
centralisation came from the ambition of individual Kings, and, therefore, the unity in
administration: was not permanent. Though cultural homogeneity of Koshal appears to have
been achieved fairly; early, the evolution of stable administrative units appears to have
taken place up to the level of the States unite only, and no real urge for centralisation or for
forming of bigger units appears to have been felt till the. Muhammadan and Mughal periods.
Needs of the different groups in the early periods were simple and few and the small cultural
and administrative unit were able to meet them from their own resources. They were more or
less self-sufficient for practically all their needs. At latter times, however, we notice that needs
had grown beyond the capacity of the States units, at least in the matter of defence from
external aggression. But the natural tendency for exclusiveness and holding on to local
autonomy-prevented the units from immediately adjusting them-selves to changed

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circumstances. Thus, these units and their component sub-groups had to pass through
periods of suffering due to their inability to adjust themselves to their’ environment and for
refusal to assimilate new ideas for their necessary growth. The dangers from outside and the
demands of the times-necessitated pooling of sovereignty and resources at a higher level for
purposes of common defence, and until this was achieved the natural process of evolution
underwent disturbances from foreign aggression and depredations. In the administrative
sphere, the real urge for centralisation appears to have come naturally from below some time
during the Muhammadan period, and this urge for the first time came from necessity, as
distinguished from previous attempts at centralisation which had come from the ambition of
individual Kings of the Suryavanshi, Aira, Gupta and the early Chowhans. This urge led
ultimately to the formation of Atharagarh Confederacy for common defence and this was based
on the willing co-operation and voluntary pooling of sovereignty of the States concerned.

Formation of States: Ancient Patna, as distinguished from modern Patna, is the heart of
Koshal and it extended from the Tel to beyond the Mahanadi and comprised the territories of
modern Patna, Sonepur (west of Tel), Sambalpur, Borasambar, Khariar, Phuljhar, Deori and
Bindra Nawagarh. It was in this tract that Kusha and his Suryavanshi successors had their
capital. It was in this tract that the Koshal Guptas rose to power and extended their territories,
as well as issued their copper plate grants, from the victorious camps of Yayatinagar, Binitapur
and Suvarnapur, all situated within old Patna. After the fall of the Koshal Guptas and their
successors, the Gangavanshi Kings who ruled “here for some time, Patna had reverted to its old
division of eight garhs each ruled by a Mullick. Towards the end of the 12th Century, the need
for unity and the urge for centralisation appears to have been again felt amongst the eight
garhs of Patna. “This led to the attempt at some sort of unity by a peculiar expedient of a union
of the eight garhs, ruled over in rotation by the Mullicks of the different garhs, with a golden
lemon as the symbol of sovereignty and union. This experiment was, however, not a success,
and in the beginning of the 12th Century A.D. when Ramai Deo, the founder of the present line
of Chowhan Rulers of Patna, assumed ruler-ship of the eight garhs and united them under one
rule by forming the State of Patna, he was gladly accepted by the people of the eight garhs, as
he was able to fulfil the need of the times. Though the attempt at formation of unions of garhs
by the Mullicks, as in Patna, is not known to have been tried elsewhere, other States of Koshal
appear to have been united under single rulers at different periods during the past centuries by
the combination of smaller units according to the local needs of the different areas.

Atharagarh Confederacy: Just as the previous attempts at unification had come from ancient
Patna, the heart of Koshal, during the Suryavanshi, Aira and Koshal Gupta Kings, the new
attempt of the Chowhan Rulers also originated from Patna and in the course of twelve
generations not only Koshal was united but other areas were brought within the Empire which
comprised 72 States and equalled the previous Empires in its extent. But the urge for this
like its predecessors was unnatural and was more due to the ambition of its individual Kings
than to the need of the units. Hence, like the previous Empires, this one also dwindled down in
size. But before its complete disintegration, came dangers of foreign invasion and the need
for unity and pooling of resources of the States units, for common defence, was felt from below.
This natural urge resulted in the formation of the Atharagarh Confederacy with Patna; as
the leader and centre. Subsequently, Patna, which had been split up into two kingdoms by a
grant to a younger brother, shared this leadership with its younger branch of Sambalpur. This
Confederacy lasted till 1818 and comprised the whole of Koshal excepting Bastar and
Kalahandi, the south-eastern States.

Regional Particularism vs. Centralisation: Throughout the history of Koshal it is

seen that regional particularism of the various units and groups was fairly well developed and
the units were jealous for the preservation of their local autonomy. In most matters villages
retained their autonomy and were to a great extent self-sufficient. The needs of those days
were few and that is why this was possible. Higher administrative units had very simple duties
and therefore did not need very much power. The need for common defence made the formation

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of States units necessary. But in all cases local autonomy of the lower units was very little
disturbed. Even when Empires were formed, the autonomy of the component units was not
affected in the least and the centre was satisfied with a ‘small tribute and military contingents
for defensive or offensive wars. In the Atharagarh ‘Confederacy also, the payment of tribute to
the centre and supply of troops for common defence was the only -surrender or pooling of
sovereignty demanded from the units. In all other matters the autonomy of the member-States
and their lower groups was left intact. In spite of this large local autonomy, however, the
cultural homogeneity of the people of the whole tract remained unaffected. It is also clearly
seen that the need for centralisation grew up gradually and slowly and in the most natural
way, from the bottom, culminating in the Atharagarh Confederacy for common defence.

Structure of Units of Koshal: The administrative system of the different units of Koshal was a
natural growth from below, and was patriarchal in form. Because of its tribal origin, it was also
democratic in form. When the Hindus and Rajput Rulers formed the different groups into
States, they adapted the existing system which resulted in “feudalism superimposed on an
earlier tribal organisation” (C. U. Wills’ “ Territorial System of the Rajput Kingdoms of Medieval
Chhattisgarh”). “Being thus founded on a natural indigenous basis, the system ‘was at first in
practice and in theory always very simple and at the same time very comprehensive” (Ibid.).
Another important modification of the Hindu monarchical ideal and feudal system, which
recognises the absolute sovereignty of the King and, delegation of authority downwards from
him, that we find in the Koshal country, is the happy blending of the Hindu and tribal systems,
resulting in the combination of autocracy and democracy. “Thus though the feudal authority
was there, it was always held in check by democratic tendencies of the tribal life.” The
authority of the feudal chiefs from Gaontia, Dao, Gartia. and Dewan to the Raja, was
“trammelled at every turn by custom and by the system of Panchayats Now much of this
democratic element seems in Chhattisgarh to have coloured the whole fabric of government
throughout the period of Rajput rule. As has already been pointed out the very fact that each
authority from the Raja downwards was content with a very limited sphere of direct control
shows what regard they felt themselves compelled to show to every grade of society below them.
Clearly there was some adjustment of political forces, some balance of political power, which
limited all personal authority, a limitation of which the only explanation is to be found in the
strength of tribal feeling” (Ibid.). The association of the people in the administration of local,
affairs was very real and the Panchayat limited the arbitrary powers of the hierarchy of chiefs
at every stage. There were Panchayats for taluqs and higher units as well. Prahlad Dubey’s
poem “Jayachandrika “even suggests the calling of a Panchayat and the Zamindars to settle the
rival claims of the usurper and exile Maharaja of Sambalpur. In Bastar “the elders of the five
great assemblies and the agricultural class in meeting assembled” denounced the exactions of
the King’s officers on the occasion of his coronation and directed that such extraordinary levies
shall only be collected from well-established residents of villages. Another peculiar and
important feature of the evolution of the Koshal States shows that the idea of the divine right of
Kingship, absolute sovereignty and idea of the State being the private property of the Ruler did
not vitiate the system of society and administration. The identity of interests “between Ruler
and ruled as well as the association of the people with the administration through Panchayats
was very real indeed. In the words of C. U. Wills, “But the very fact that the Royal demesne was
limited to ‘no more lands than were necessary to the comfort and dignity of the Royal House
‘seems naturally to suggest that even the King was not an autocrat but was rather ‘primus inter
pares—the administrative, social and religious head but nevertheless bound: to regard the
customs of his people whose welfare and the maintenance of whose customary rights were of
even more importance than the maintenance and extension of the personal authority of the
Kingship.” This was the system that came down for the past many centuries and existed in- the
Koshal States until very recent times, when artificial causes disturbed and modified it to some
extent. But even now the traces of this system are visible in the structure society of Koshal

Artificial Check to Natural Growth: In 1803 the Atharagarh States entered into relation with
the British, but these States were sacrificed to Imperial policy in 1806, when they were

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returned to the Bhonsla, in spite of previous promises to the contrary. On. their reversion in
1818 the British broke up the Atharagarh Confederacy. The natural urge for centralisation,
which had found expression in the formation of this Confederacy, thus met an unnatural death
and artificial causes checked the evolutionary growth of Khosal unity.

Logical Conclusion of Evolutionary Trends: It can be safely assumed that the

Atharagarh Confederacy would have endured, because it was a and spontaneous growth, if it
had not been forcibly disrupted. On the contrary, it would have grown a real confederation and
gradually centralised more subjects of- common concern, as needs would grown with changing
times. It is also probable that this Confederacy would have drawn other neighbouring States
into its ambit and solved the needs of smaller units in the most natural way.

Grievous Damage to Koshal: The most grievous damage to Koshal, however, was perpetrated
firstly in A.D. 1826 when the heart of Koshal was cut into two and the five Zamindaries of, 1)
Bindra Nawagarh, 2) Khariar, 3) Borasambar, 4) Phuljhar and 5) Deori were separated from the
State of Patna; secondly, in 1849 when Sambalpur State was annexed to British India under
the policy of escheat or lapse instead of reverting to the parent State of Patna; thirdly, in 1867
when the above-mentioned five Zamindaries were annexed to British India and lastly between
1818 and 1905 when parts of Koshal were divided and kept under different provinces. In spite
of this cruel treatment by which the people of the same stock, with common culture, traditions,
manners, social customs, mode of living and language, were separated from their kith and kin,
the cultural homogeneity of Koshal has come down intact till this day.

Modern Problems Facing Koshal: Since 1818 the growth of Koshal has been unnatural. Its
different units have been living in an artificial atmosphere and while nearly a century and a
quarter have passed bringing new problems and new ideas, there has been no uniform growth
in its different component units, and in the higher stages, the evolutionary processes seem to
have come to a standstill. The result is that Koshal appears to be suffering from the malady of
arrested growth. With growing needs of modern times, changes have taken place in the system
of administration up to the States’ level through the different sub-units of administration, but
the centralisation has properly reached up to the States’ level only. Whereas with the
Atharagarh Confederacy of Koshal as the nucleus a much greater degree of centralisation
would have taken place long ago, and many of the serious problems that are facing us to-day
would have been easily solved, and prosperity and plenty would have been the result for all
concerned, the forcible checking of natural evolutionary processes has created new problems to
add to the difficulties of Koshal. The closest identity of interests and association that existed
between the Rulers and the ruled has been loosened by the atmosphere created by artificial
conditions. Without freedom and scope for growth and adjustment to changing conditions,
assimilation of new ideas and modification of administrative system have not kept pace with
the requirements of changing times and growing needs of the old democratic institutions have
lost much of their indigenous spontaneity.

Need for Picking Up Threads from the Past: The only satisfactory way of solving the
problems of Koshal would be to pick up the threads of the past and resume the evolutionary
processes from the time they were artificially checked. There is, however, no way of going
backwards in history. What is therefore necessary is to attempt to reconstruct the structure as
it would have emerged in the natural course, assimilating new ideas that have come in the
intervening period and solving the new needs that have grown in the meantime. As Federation
was the trend of Kosha’s revolutionary processes, Federation must be the solution of her
present problems.

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 CHAPTER II
THE PROBLEM OF THE EASTERN STATES
Situation and Composition: The Eastern States excluding the Bengal States proper, but
including Mayurbhanj, form a compact block of States. They extend from Bihar and Central
India in the north to the Godavari in the south, and from the Nagpur Division in the west to
Mayurbhanj and Ranpur in the east. They have an approximate area of 60,000 square miles
and a population of over 8,000,000. They are made up of 40 States out of which 30 are Oriya
States. The Oriya area of Eastern States is over 44,000 square miles which is nearly 11/15th
and the Oriya population of over 6.300,000, which is about four-fifths of the total for the
Eastern States. Out of the 30 Oriya States, the Koshal States are 13 or nearly half in number,
with an area of over 31,000 square miles and a population of nearly 3,550,000. Thus, the
Koshal States occupy more than half the- area of the Eastern States, and nearly three-fourths
the area of the Oriya States, and in population they are 7/10th of the total of the Eastern
States and about 9/16th of the total for the Oriya States.

Fate of Koshal States intimately connected with Eastern States: The fate of the Koshal
States which form the major portion of the area and population of the Eastern States is
intimately connected with that of the other Eastern States. Similarities in history, traditions,
customs, manners, social contacts and outlook, bind all the Eastern States together. Moreover,
the similarity of administrative systems binds the Eastern States more closely together than
any other single consideration.

Historical Background of Eastern States: The historical background of the other

Eastern States is similar to that of the Koshal States. Barring a few States which emerged in
their present form in the last century, the great majority of them emerged as States at different
periods during the last 1,400 years. All these States have, however, acquired distinctive
personalities of their own, and the feeling of local particularism and patriotism is very well
developed in each State. Though the States differ in size and resources, they exemplify a
common evolutionary stage of growth. In spite of some of these States having been feudatories
or tributaries to bigger States, Kingdoms or Empires in the past, the internal autonomy of the
States has remained intact through the ages.

Problems of the Eastern States: The difficulties which face the Eastern States arise from the
handicaps which we have seen in the case of the Koshal States. Like the latter, all these States
have not grown naturally during the last century and have not had the scope and freedom to
adapt themselves to changing times. This is due mainly to the unnatural and artificial
atmosphere in which they have existed, rather than to want of the stimulus from within. The
Rulers have been as much victims of this artificiality as the ruled. With increasing needs of
modern life and consequent increased demands on the administrative System, it has not been
possible for individual States to meet these adequately. Though very rich in natural resources,
individual States have not been able to develop and utilise the same to the fullest extent due to
limitation of individual resources. Thus, the necessary and possible economic development
has-not been achieved and consequently the standard of living of the people, as well as
expenditure on social and administrative services, leaves much room for improvement. In the
administrative sphere, there have been some changes in the internal structure and some
amount of centralisation has been effected. But the active association of the people in the old
systems has been sacrificed to the needs of administrative efficiency and centralisation. The
growth not having been natural, corresponding changes have not taken place in the political
and constitutional spheres to keep pace with changing ideas and times, and there has been
very little evolution of new institutions to replace the old ones for re-establishing that close
association of the people, which had existed before.

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Solution Lies in Federation: As already seen in the case of the Koshal States the solution of
the Eastern States problem lies in Federation. The urge for this has been felt for many years
past and the question has been actively considered more than once in the past twenty years. A
move in the direction of pooling of sovereignty and resources, and of centralisation of subjects
of common concern, which are beyond the capacity of individual States to provide, has,
however, already been made in the last few years. A common High Court, common Forest and
Agriculture Advisory staffs, Forest and Agricultural Schools are being jointly run. This trend is
in accordance with past evolutionary processes. There is also the precedent of the Atharagarh
Confederacy to guide future development. Federation is not only feasible and practicable, but it
is desirable and inevitable as well. This appears to have been realised by the Rulers also. It is
known that the Rulers have decided on forming a Federation of the Eastern States.
Association of the People and Democratisation of Administration: The indigenous growth
of the administration of these States was based on the close association of the people in the
local administration. But when modern ideas of administration were adapted, corresponding
modification and growth of representative associations did not take place side by side. There
was thus a lacuna left in the system. The impact of modern democratic ideas has, however,
been felt in all the States and with the growth of political consciousness amongst the people,
representative institutions have been set up practically in all the States. The demand for
greater association of the people along with the growth of political consciousness is, however,
growing and the Rulers have realised the necessity of moving with the times, as is evidenced
from the recent declaration of the Chamber of Princes. It is a foregone conclusion that in the
constitutional changes of the future, the States administrations will be thoroughly
democratised and the people will be fully associated with the administration of the States.

States’ Autonomy vs. Federation: Like individuals, State entities are ordinarily jealous of
their autonomy. There has, therefore, been hesitation and delay on the part of States to pool
their resources together. Force of circumstances and needs for adaptation to changes have now
removed all hesitancy and reason has prevailed over sentiment. The needs of regional
particularism will have to be adjusted with those of centralisation. This would not be a difficult
task as a move has already been made in this direction. The States have developed a sense of
oneness, attachment and local patriotism amongst their inhabitants and these qualities must
have full scope for exercise in the local sphere and local affairs.

Advantages of Federation: The Federation of the Eastern States will have the advantage of
being a compact block of 60,000 square miles with a population of 8,000,000 people, having
similar traditions, outlook and administrative system, who will be brought together for matters
of common interest. This will also preserve the identity and distinctive personality of each State
and leave scope to its people for initiative and decision in their local affairs. It will bring unity
without destroying individuality and will be enduring because it is in accordance with past
evolutionary trends. The advantage to the people of the States would be the preservation of
their social structure and unity as well as benefits from combination in a bigger group and the
least disturbance in their mode of living, manners, customs and traditions, while bringing
together a cultural homogeneous people and democracy both in local affairs as well as at the
Federal Centre.

Economic and Financial Stability: It is well known that the Eastern States are probably
the richest in India in the matter of natural resources. All the important basic minerals are
found in the Eastern States. The largest and best iron ores in Asia are in the Eastern States.
Bauxite, Chrome, Manganese, Graphite, Coal, Mica, Vanadium, Asbestos, Kyanite, Copper,
Limestone, Kaolin and a host of other minerals are found in the Eastern States. The quality of
these mineral ores are of very high grade and the quantities are vast. With central planning
and regional development many basic and heavy industries will be established, once the
Federation comes into existence. There are possibilities of at least 2 Steel Factories, 1
Aluminium Industry. 1 Copper Factory and many Cement Factories and other mineral
industries. From the vast forest resources, there are possibilities of Paper Mills, Plywood

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Factories and many other minor industries. Similarly, there are great possibilities of Textile
Mills, Jute Mills. Sugar Factories, vegetable oil and other agricultural industries. These
possibilities will become certainties, once central planning and development of heavy industries
is taken up by the Federation of Eastern States. Unfortunately, though all the iron ore comes
from the Eastern States, the Tata Steel Factory is situated outside the States. But with the
determination of the States for industrial development and with the formation of the Federation
these States will become richest industrially. Even now the total income of the Eastern States
is between 4 and 5 crores of rupees which is more than that of Orissa. But that with
development of industries, the direct and indirect income of the States would rise four or five
times or even more within a few years is a certainty. If the heavy industries are nationalised
and State owned as the States are planning to do, the financial position of these States would
be much better still. Thai the standard of living of the people of all the member-States, who will
benefit from these, will rise very high goes without saying. That the Eastern States will be able
to spend on social services much more pet capita than Orissa or many other provinces is also a
certainty. With their natural resources, the Eastern States are likely to become one of the
richest units of the Indian Union. From the economic and financial point of view as well as
from the constitutional and political point of view also, the people of the Eastern States would
be greatly benefited from the Federation of Eastern States. The geographical position as well as
history also support the formation of a Federation for the Eastern States which will be a unit of
the Federal Union of India. By this Federation a solid block of 30 Oriya States, having an area
of 44,000 square miles and a population of over 6,300,000, will be brought together. For the
people of the States there can be no better plan and no greater advantages.

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 CHAPTER III
DILEMMA OF SAMBALPUR TRACT
Natural Divisions of Orissa: Nature divided Orissa into the highlands and the coastal plains.
History followed nature and the people of the two natural divisions developed their distinctive
cultures and modes of life. The coastal plains which includes the districts of Ganjam. Puri,
Cuttack and Balasore correspond to the old Kalinga Empire. The Sambalpur tract, which
consists of Sambalpur, Borasambar, Khariar, Bindra Nawagarh, Phuljhar and Deori, is part of
the original Patna, the heart of Koshal in the highlands. Singhbhum, Bhanjbhum and Koraput,
Angul and Khondmals with their distinctive cultures are situated in the highland parts of
Orissa.

Situation, Area and Population of Sambalpur Tract: The area of the Sambalpur tract outside
the Eastern States is approximately 8,000 square miles with a population of about 1,500,000.
Sambalpur District, which includes at present the Zamindaries of Khariar and Borasambar, is
at present in Orissa Province. Bindra Nawagarh, Phuljhar and Deori, the three other
Zamindaries of this tract, are at present in the Raipur District of the Chhattisgarh Division of
the Central Provinces.

Unnatural Administrative Arrangement: The Sambalpur tract is predominantly Oriya of

the Koshal cultural group. Its natural, historical and cultural affinities are with the Koshal
area of the Eastern States. Geographically, it forms one compact block with the Eastern States,
with which its physical features correspond. Traditionally, the ties of the Sambalpur tract are
with the Eastern States, as Sambalpur itself was a State less than a century back and the five
Zamindaries were also part of Patna State till 1826 and separate Garhjat States till A.D. 1867.
The Sambalpur tract has no similarity with the coastal districts of Orissa and is separated from
the rest of Orissa by many miles of States territories. How unnatural the combination; of
Sambalpur with Orissa Province is, would be parent from the fact that one has to travel
through a round- about way, either through Bengal or through Madras and Central Provinces
by rail to get there from Cuttack, the capital of Orissa. Similarly, the Koshal tract of Bindra
Nawagarh, Phuljhar and Deori, which are Oriya in area, has no affinity with the Raipur District.
The present administrative arrangements for the Sambalpur tract are, therefore, unnatural and
unsound.

Historical Background: The Sambalpur tract is part of Koshal and was also part of the
Atharagarh Confederacy till 1818. Sambalpur itself was a State till 1849 and as the younger
branch of Patna shared with the latter the joint leadership of the Atharagarh Confederacy. The
five other Zamindaries of this tract were also parts of Patna and the Atharagarh Confederacy
and were treated as Garhjat States till 1867. History and tradition, customs and manners,
social structure and culture, physical features and mode of living of the people of this tract are
similar to that of the States of Koshal and Chhattisgarh. How strong the feeling of local
particularism developed by the people was and how strong the traditions of the State were,
would be apparent from the fact that in spite of its lapse to the British* in 1849, attempts were
made to reform it into a State in 1857 and the rebellion of this place lasted for years even after
the Mutiny had been put down in the rest of India, and even after the final suppression, the
people of Sambalpur agitated and waited in deputation on the Commissioner of Chhattisgarh,
when the latter visited Sambalpur in 1864, demanding the restoration of the State.

Inconveniences and Sufferings: How hard it is for the Sambalpur people- to have been
forcibly separated from their kith and kin and divided from the rest of Koshal can be better
imagined than described. By the change of administration the people of the Sambalpur tract
have not had much benefit, as in their transfer from province to province; they always
remained at the extreme corners of any province. Their fate has been like that of a football,

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kicked about from province to province, and in every case the treatment meted out to them has
been that of an unwanted and neglected child. Even now they continue to be treated as
partially excluded areas and they have not got any effective voice in the affairs of the province.

Dilemma of Sambalpur: Natural and cultural affinities, history and tradition, geographical
proximity and administrative convenience naturally draw the Sambalpur tract towards the
Federation of the Eastern States. The economic strength and financial stability of the proposed
Eastern States Federation and the alluring prospects of rising standards of Jiving and
“financial gains which will accrue by joining that Federation, are considerations that cannot be
lightly brushed aside. The restoration of local autonomy, the freedom to decide their own fate
and to run their own house in accordance with their desires and their traditions are
considerations that require the maturest deliberation. Above all the prospect and opportunity
of reunion with their kith and kin, to be rejoined with the major portion of Koshal which is in
the Eastern States, to form a compact Oriya block in the Eastern States Federation, to reunite
some of the Oriya tracts lying in different administrations and to reenforce the cultural
homogeneity of Koshal by closer administrative union of all the Koshal areas, are matters
which make the decision facing Sambalpur the greatest and most momentous in its history.
The dilemma in which Sambalpur now finds itself is to choose between the Eastern States
Federation and Orissa. On one side are prosperity, affinity, administrative convenience, and
reunion with kith and kin, and on the other unnatural combination. On the one side are
prospect of equality and welcome of brothers, and on the other subordination and indifference.
Will the call of blood be thicker than that of water? It is for Sambalpur to decide.

Capital City or Mofussil Town: With the formation of the Federation of the Eastern States, the
question of finding a suitable capital for the Federation will arise. The capital will have to be a
fairly big city, to accommodate Council and Assembly Houses, Presidential Palace, States
Houses, Houses for Ministers, Advisers, Executive Officers, High Court Judges and various
other officers. Space will also be required for Secretariat and Office Buildings,
High Court and other Court Buildings, Museums, Libraries, Reading Rooms, Clubs,
Cinemas, Town Hall, University Buildings, Law College, Medical College, Engineering
College, Science and Arts Colleges, Fine Arts and Music Colleges, Technological and Technical
Institutes, Training Colleges, Hostels, Schools, Research Institutes, Central Agricultural Farm
and Institutes, Central Livestock Farm and Institutes, Laboratories, Broadcasting Station,
Hotels, Recreation Centres, Parks, Playgrounds, Industrial, Commercial and
Residential areas, etc., etc. The historical importance and geographical situation, which
makes Sambalpur the heart of Koshal and the centre of the Eastern States, naturally attracts
attention as the ideal place for the capital city of the Eastern States Federation. Some
historians have identified Sambalpur, which is situated on the banks of the Mahanadi,
with Yayatinagar of the Imperial Guptas of Koshal. What better place could history or nature
have made than Sambalpur or old Yayatinagar to be the capital of the Eastern States
Federation which would include a reunited Koshal? Sambalpur, however, cannot be
chosen as the capital of the Eastern States, if it chooses to remain with the Orissa Province and
does not join the Eastern States Federation. Whether Sambalpur becomes the capital city of
Eastern States Federation and becomes “Greater Sambalpur” and the centre of the unit, or
remains as a third-rate mofussil town of an outlying district of another unit as an island in the
Eastern Federation, depends on the choice of the people of Sambalpur.

Ways Open to Sambalpur Tract: The people of the five Zamindaries which formed part of
Patna State till 1826 may decide to rejoin Patna, on the ground of their long traditional
and historical connection, similarity of customs, manners, language, outlook and social
contacts and cultural affinity of the people, and thus share in the local autonomy as well as
become parts of the Eastern States Federation. Sambalpur may similarly claim to revert to
Patna on historical, moral, constitutional and legal grounds. If, however, these areas wish to
remain separate, they may in the alternative claim to remain centrally administered
areas directly under the Federal Government of the Eastern States. There should be no legal

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difficulties to give effect to the decision of the people of these areas. On historical,
geographical, legal and moral, as well as on grounds of cultural affinity and administrative
convenience, the wishes of the people of these areas, who have been unjustly treated so long,
are bound to be accepted by the Constituent Assembly, if it is organised and
unanimously put forward. The people of the Eastern States would surely welcome back
these areas as the return of lost brothers. The people of Koshal will be delighted to be
reunited with their kith and kin after decades of separation. The wishes of the people of
these areas would surely receive the sympathetic and powerful support of the whole of the
Eastern States and also of all Indians who are lovers of justice.

Opportunity Knocks only once at the Door: Opportunity knocks but only once at each one’s
door and it is only the wise who take her by the forelock. Napoleon is said to have uttered
words% to this effect and its truth is self-evident. Boundaries of provinces and districts which
have been haphazardly drawn, accidentally or for administrative convenience of the times, will
have to be redrawn and revised in the near future. An opportunity like this is never likely to
occur again in the history of Sambalpur. If Sambalpur misses this opportunity, it may have to
repent for all times to come. It is for the intelligentsia and leaders of Sambalpur to rise to the
occasion, to organise and to make the demand of the people of Sambalpur known to the world
in unequivocal
terms.
Area and Population of Eastern States Federation if Sambalpur Tract Joins: If the
Sambalpur tract decides to join the Eastern States Federation, the Federation will become a
compact area of about 68,000 square miles with a population of about 9,500,000 people. The
Oriya area in the Federation will then be an area of 52,000 square miles, and a population of
7,900,000. Thus, a ‘large tract of Oriya country and a large block of Oriya people having
similarities and affinities will be brought together and united.

The Khondmals: The Khondmals which are 800 square miles in area, and are inhabited by
Khonds were parts of Baudh State less than 100 years back. The inhabitants of this area have
close association with the Khonds of the neighbouring States and attachment for the State of
Baudh. The present position of this area is very anomalous as it has neither been ceded to the
British nor has it been annexed. On constitutional grounds, as well as for administrative
convenience, it may be desirable to return this area to Baudh to which legally it still belongs. If
this is done, the area and population of the Eastern States Federation will be increased
correspondingly. The similar problem of Kolhan area in Singhbhum will also need consideration.

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 CHAPTER IV
CONCLUSION
Eastern States Federation Beneficial to States:
The Federation of the Eastern States will be beneficial to the member-States as it will be able to
overcome the handicaps of small units and develop the natural resources through central
planning and provide such services as are beyond the capacity of individual States.
Economically and financially the Eastern States Federation will be very stable and sound and
will, therefore, raise the standard of living of the people of the States higher than many other
units. The expenditure on social services will also be higher than many units. The Federation
will provide benefits of centralisation, without destroying the individuality of the States, which
will enable local patriotism to have scope for incentive and control over local affairs. There
being no predominantly big unit in the Federation, there will be scope for all units to play an
effective part and there will be no danger of exploitation, subordination of interests or of
encroachment on rights of one unit by another. The number of units of more or less similar
size will make it a well-balanced combination. The people of the States will have free scope to
mould their destiny by active association in their local affairs as well as in the Central affairs.
They will get all the benefits of a bigger unit and democracy and civil liberties as well.

Amalgamation with Provinces Dangerous:

The alternative suggestions for amalgamation of smaller States with provinces are dangerous to
the people of the States, as because of their backwardness, they will be liable to exploitation.
They cannot have any effective voice in the affairs of the province and their local patriotism will
have no scope for free play in a bigger sphere which will be predominated by much larger and
more politically conscious population. They will lose their individuality and their personality by
any scheme of merger. The traditions and outlook of the people of the States rules out any
scheme of amalgamation. The financial and economic position of the people will not be better
than in a Federation of their own. The province can offer the States people no better facilities
than a Federation of the States. The advantages of democracy, association of the people in the
administration and enjoyment of civil liberties, are no greater in a province than in a
Federation. The danger of being victims of party politics is much greater in the provinces. The
advantages being no better and the disadvantages being many and real, there is no reason for
the States to prefer a proving whose outlook and traditions are different and whose
evolutionary trends are different to their own Federation.

Common Culture: No Ground for Amalgamation:

The argument in favour of bringing people of one culture and language under one
administration is unsound. Though Arabia is one country with a common culture and
language, it does not rule out existence of several independent units, nor does it prevent co-
operation of the units in cultural matters. Though Canada and U. S. A. speak the English
language, there is no ground for their being brought under one administration. Similarly, there
are many provinces in India which are Hindi speaking, and yet it will be too unwieldy and
inconvenient a unit if all Hindi-speaking areas were formed into one province. The objection ‘to
keeping culturally homogeneous people as small minorities in different provinces may be valid,
but the existence ‘of cultural groups in compact blocks as part of different units is not
unsound.

Natural Division justifies Two Oriya Blocks:

The natural division of Orissa into the highlands and coastal plains has favoured the formation
of two Oriya blocks. The coastal plains corresponding to the old Kalinga Empire are one
compact block with different traditions and outlook as well as some difference in culture and
language. This makes it administratively convenient for grouping them into one unit. The
highlands with different traditions, outlook and cultural and linguistic differences as well are

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another compact block which should form another unit. The two divisions have had different
evolutionary trends and when nature and history have made them separate, it will be in the
interest of both to evolve as separate entities. In cultural and economic matters there would be
no bar to the two groups co-operating with each other as brothers, though each group will
manage its own internal affairs according to its own desires and interests.

Eastern States Federation will combine High-land Oriya Block:

The Eastern States Federations in the larger interest of the Oriya people as it will bring
together a large Oriya tract and population. It will also raise the economic, moral and cultural
conditions of a large block of Oriya people while preserving their traditions and local autonomy
and without danger of their being exploited or subordinated. As the Eastern States Federation
will not raise any constitutional issue and satisfy the Rulers as well as the ruled, it should be
welcomed by Orissa as being in the best interest of the Oriyas as a whole.

Interests of Sambalpur Tract with Eastern States Federation: On the grounds of history,
traditions, geographical proximity and social contacts, the interests of the Sambalpur tract lie
with those of the Eastern States Federation. It will be economic-ally advantageous to the people
as well as administratively convenient for Sambalpur and the outlying Oriya Zamindaries in
Central Provinces if they join the Eastern States Federation. If the people of the tract prefer to
do so there should be no objection from Orissa and no obstacles should be put in their way, as
they will be joining an Oriya block with which their interests are intimately bound and they will
be getting better economic advantages, which should be welcomed as being in the larger
interests of the Oriyas as a whole.

Prosperity of both Oriya Blocks:

If the highlands of Orissa join the Eastern States Federation it will be a natural and
harmonious combination in accordance with evolutionary trends and it will bring prosperity to
a large block of Oriya country. The combination of the coastal plains will also be natural and
harmonious and bring prosperity to the other Oriya block. That the poverty of Orissa is
due to her smallness is not a valid argument. The fact is that no serious attempt at planning
and development of its rich resources has been made so far. The prosperity of
the old Kalinga Empire is well known. The Post-War Plans for Orissa admit that Orissa is well
endowed in natural resources’ and that there is great scope for improvement. Koraput is
very rich in minerals. Orissa has got hydro-electric facilities. It has got a sea-board and
scope for development of ports and shipping and sea-trade as well as for estuarine and
marine fisheries. The coastal plains are very fertile and once the floods are controlled
through the Mahanadi valley scheme and water is diverted for irrigation instead of
destruction and waste, there would be no limit to the development of Orissa. If small States
like Kathiawar have incomes of 1 to 2 crores from sea-trade, there is no reason why Orissa
cannot have much more through developing its ports on its long coast-Line. There is also
vast scope for industrialisation which is bound to raise the income of the province
considerably and bring prosperity to its people. That these possibilities are real are
admitted in Orissa’s Post-War Plans. The plea of poverty is, therefore, not real. All that is
needed is wise planning and determined creative and constructive effort. There is no
doubt that the coastal plains of Orissa will be a sound and prosperous unit if it wants
to be. There is also the possibility of certain excluded Oriya areas in Madras and Bengal being
brought under Orissa. That in size and resources an Orissa Province consisting of the
coastal plains area, will be better and bigger than many other units of the Indian union will
be quite apparent from the fact that there will be some single State units smaller than Orissa. If
provinces are reformed and Maharastra, Karnatak, Kerala and Andhra become separate
provinces, Kalinga or Orissa will be in no way smaller or poorer than any of them, if it utilises
to the full the resources which nature has given her.

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Conclusion: The formation of the Eastern States Federation is in accordance with history and
evolutionary trends and is economically sound and also in the interests of the States people as
well as of Oriyas. The inclusion of Sambalpur tract in Eastern States Federation is desirable on
administrative and other grounds and is in the interests of the people of those areas. The
inclusion of Khondmals and Kolhan villages in the respective States to become parts of the
Eastern States Federation are matters requiring serious consideration on grounds of history
and administrative convenience. The province of Orissa comprising the coastal areas as a unit
is justified on historical and other grounds, and is economically sound and in the interests of
the people. There is no conflict of these proposals with the interests of the Oriya people as a
whole. These proposals if given effect to will allow the free development of two blocks of Oriyas
in accordance with their traditions and tendencies, as two brothers managing the internal
affairs of their houses according-to their desires and convenience and yet living as brothers
and co-operating with each other in social, cultural and economic matters for the common
benefit of both. These suggestions have the further merit of being based on natural
evolutionary processes and are, therefore, sure to lead to peaceful, harmonious and lasting
progress if given effect to. These suggestions will solve the vexed Oriya question in the most
natural and peaceful manner and enable the Oriya people to live in peace, harmony and co-
operation, without danger of exploitation of brother by brother. They require the serious
consideration of all patriotic Oriyas and particularly of the people of the States and of the
Sambalpur tract.

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