New Delhi, 03
April 2003
Continuing
his arguments for better leadership to govern India, Mohan
Guruswamy now turns his attention to the size and composition of the
States in India and comes to the conclusion that in the matter of
good and manageable states "small is beautiful". In his
opinion our states and state governments are too large and unwieldy
to be governed properly.
Small
States and Better Government
By
Mohan Guruswamy
India
today accounts for one sixth of the world’s population of 6.133
billion. If some of its larger states were independent countries
they would be quite high up the list of the larger states in the
world, and needless to say way down in the list of the poor and
backward.
Uttar
Pradesh (less Uttaranchal) with a population of 167 million is still
bigger than Pakistan or Germany and France put together or Russia
for that matter. If UP were to be a separate country only China, the
USA, Brazil and Indonesia would be bigger than it. Despite this
size, it gives India little more than Prime Ministers, who
experience tells us, too come at a great cost.
Tamil
Nadu (62.2 million) is slightly bigger than Britain and Italy,
whereas Andhra Pradesh (76.4 million) is in the Germany and Vietnam
league. Bihar is bigger than Mexico and Maharashtra with 92.1
million has ten million more than Germany. Bengal is bigger than the
Philippines, which has 77 million, while Bihar minus Jharkhand (82.9
million) and Madhya Pradesh (81.2 million) are each bigger than all
the countries in southern Africa put together.
We
have some small states too. Arunachal Pradesh (1.1m), Goa (1.6m),
Manipur (2.6m), Nagaland (1.7m), and Meghalaya (2.5m) are some of
the smaller ones. In the mid range we have Punjab (22.2m), Haryana
(20.1m), J&K (10.1m), Assam (26.5m), Kerala (32.5m) and Orissa
(36.2m). The new states Chattisgarh (20.8m), Jharkhand (26.9m), and
Uttaranchal (8.5m) can also be categorized as mid sized. Then we
have some really tiny Union Territories like Pondicherry (0.9m),
Chandigarh (0.9m), Andaman & Nicobar Islands (0.3m), Dadra &
Nagar Haveli (0.3m), and Daman & Diu (0.2m). Delhi is the only
exception between UT’s with 12.9 million people.
There
does not seem to be any one criterion for dividing India in such an
unequal way. If language was the criterion then UP, Bihar, MP and
Rajasthan should have been one state. If agro-climatic conditions
was the criterion than many of the larger states like UP, AP, MP,
Bihar and even Karnataka and Tamil Nadu have more than one state in
each of them.
If
history were to hold reasons for the states being what they are,
there are few to be found. Tamil Nadu was never known to be one
kingdom just as Karnataka and Andhra were never single nations or
political units in the past.
The
truth is that our states were formed on no real and common basis.
There are different reasons applicable for different states. The
northeastern states were formed to suit certain tribal aspirations.
Goa had its own historical antecedents. Punjab was formed to
accommodate the religious sentiments of the Sikhs with the Punjabi
language serving as a convenient fig leaf for it. UP and MP were
formed for another reason, which seeing the way they turned out to
be could hardly be sensible. The four southern states were formed
for linguistic reasons, just as Maharashtra, Gujarat, Orissa and
Bengal were.
Our
political divisions are new. At the time of independence India
consisted of 601 princely states under a common imperial authority
residing in London and four Presidencies, which were directly
administered by the British and farmed for taxation. The way our
states first emerged seemed more shaped by the divisions in the
Congress Party. It seems that wherever there was a dominant leader
there was a Pradesh Congress unit, soon after independence there was
a state. Since power in the Congress party gravitated to the Pradesh
Congress units with the largest representation in the AICC, UP
became the biggest state and so on. Fifty years down the line, with
the Congress Party in UP now a political dwarf, it still tends to
call the shots in the AICC due to its numbers. Next in importance is
the Bihar PCC now a mere rump seen more in attendance of the durbar
of the Yadav couple whose writ runs there.
It’s
not important now to wonder why and how our states were formed. What
is important is how large the budgetary outlays have become and how
unmanageable the administrations have become. The AP government in
2001–02 had a Revenue Budget, which had Rs.22,406 crores by way of
revenue; and Rs.26.293 by way of expenditure. In addition it had a
Capital Budget, which had Rs. 10,395 crores by way of receipts; and
Rs.6,531 crores by way of disbursements. Thus, it collected, begged,
borrowed, spent squandered and stole no less than Rs.66,000 crores
in just one year. UP played around with over Rs.82,000 crores. This
year Kumari Mayawati has about ten percent more and she will not be
denied her chance to make hay and she makes few bones about it. The
Yadav couple by comparison has to make do with much less, a mere
Rs.31,000 crores, but then in Bihar by tradition the ruler collects
more!
Just
to give you an idea as to how Government has grown over the years
after independence, in 1950 the entire budget of the Central
Government was less than Rs.300 crores. The second five-year plan
(1956–61) which was the first of the big plans had an outlay of a
mere Rs.7,772 crores. The ninth five-year plan (1997–2002) had an
outlay of Rs.859,200 crores. Not only have the outlays grown, the
sheer size of government in terms of employees has grown.
The State in all its myriad forms now employs over 25 million
persons.
Since
the private industry paradigm seems to make more sense to the
present crop of political leaders, especially people like
Chandrababu Naidu, who likes to see himself as a CEO rather than a
Chief Minister, or so he says, it is an old management practice to
periodically re-organize businesses to make them more manageable.
They call it restructuring. Mr. Naidu who seems to have more faith
in foreign management consultancies than in his well-trained and
chosen by merit bureaucracy, would be told by them that this is
indeed what they recommend for hefty fees to their corporate
clients.
Given
the size of the states, smaller states meaning smaller governments,
smaller bureaucracies, and smaller budgets would be the most
sensible thing to do. It however seems that when it comes to
governments, our leaders, and Naidu is no exception; think that they
rule kingdoms for their pleasure and not administrations to serve
the people?
Quite
clearly we need smaller governments, which means smaller states,
fewer departments and more decentralization. Now comes the question
of how to carve out smaller states. The late Prof. Rasheeduddin Khan
made out a case for them way back in April 1973 in the Seminar,
at that time edited by the late Romesh Thapar. He had India divided
according to its 56 socio-cultural sub-regions and a map showing
these was the centerpiece of the article. That picture still remains
embedded in my mind, and whenever I think of better public
administration that map would always appears.
Since
the subject of small states has begun to emerge as a major issue
again, with the recent by-poll results in Telangana writing its
message very clearly on the wall, and with Ramadoss raising the
banner in Tamil Nadu and a vociferous cry for a Bundelkhand out of
UP, it is a matter of time before small states will become a major
political issue nationwide. The Congress Party already has a new
States Re-Organization Commission on its agenda. Others too will
soon see the writing on the wall.
The
Seminar map is a veritable blueprint for the structuring of
India. Out of UP and Bihar eight distinct sub-regions are
identified. These are Uttaranchal, Rohilkhand, Braj, Oudh, Bhojpur,
Mithila, Magadh and Jharkhand. The first and last of these have now
become constitutional and administrative realities. But each one of
the other unhappily wedded regions is very clearly a distinct region
with its own predominant dialect and history. For instance Maithili
spoken in the area around Darbhanga in northern Bihar is very
different from Bhojpuri spoken in the adjacent Bhojpur area.
Similarly Brajbhasha in western UP is quite different from Avadhi
spoken in central UP. India’s largest state in terms of area, MP,
is broken into five distinct regions, Rajasthan, Gujarat and
Maharashtra into four each, AP, West Bengal and Karnataka into three
each, Tamil Nadu, Kerala and Orissa into two each, and so on.
As
can well be imagined carving out small states and leaving the rest
of the administrative arrangements, as they are will hardly improve
matters. In some of the smaller states more than half the MLA’s
are ministers and many of the ministries are little more than a
couple of rooms to accommodate a small staff, and a car with a blue
light and the national flag held in a plastic sleeve. If the CEO of
AP cares to find out from his foreign advisors, he will be told that
the government really needs no more than a dozen ministries. There
is no need to have a ministry each for higher education, vocational
education, and elementary and primary schools; just as there is no
need to have a ministry each for major and minor irrigation.
And
do we really need a system that has a half a dozen Chief Secretaries
and a like number of DG’s of Police? Small states without small
governments make little sense. The Congress Party is now demanding,
even if it is in a rather muted manner, that a new States
Re-organization Committee look into the matter. Rather than needing
a States Re-organization Commission, what India now needs is a
Restructuring of Government Commission to make our governments
smaller as well as effective and efficient.
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