The reorganization of the states based on language, a major aspect of national consolidation and integration, came to the fore almost immediately after independence. The boundaries of provinces in pre-1947 India had been drawn in a haphazard manner as the British conquest of India had proceeded for nearly a hundred years. No heed was paid to linguistic or cultural cohesion so that most of the provinces were multi-lingual and multi-cultural. The interspersed princely states had added a further element of heterogeneity.
The case for linguistic states as administrative units was very strong. Language is closely related to culture and therefore to the customs of people. Besides, the massive spread of education and growth of mass literacy can only occur through the medium of the mother tongue. Nehru appointed in August 1953 the States Reorganization Commission (SRC), with Justice Fazi Ali, K.M. Panikkar and Hridaynath Kunzru as members, to examine ‘objectively and dispassionately’ the entire question of the reorganization of the states of the union. Throughout the two years of its work, the Commission was faced with meetings, demonstrations, agitations, and hunger strikes.
Different linguistic groups clashed with each other, verbally as well as sometimes physically. The SRC submitted its report in October 1955. While laying down that due consideration should be given to administrative and economic factors, it recognized for the most part the linguistic principle and recommended redrawing of state boundaries on that basis. The Commission, however, opposed the splitting of Bombay and Punjab. Despite strong reaction to the report in many parts of the country, the SRC's recommendations were accepted, though with certain modifications, and were quickly implemented.
The States Reorganization Act was passed by parliament in November 1956. It provided for fourteen states and six centrally administered territories. The Telengana area of Hyderabad state was transferred to Andhra; merging the Malabar district of the old Madras Presidency with Travancore-Cochin created Kerala. Certain Kannada-speaking areas of the states of Bombay, Madras, Hyderabad and Coorg were added to the Mysore state. Merging the states of Kutch and Saurashtra and the Marathi-speaking areas of Hyderabad with it enlarged Bombay state.
The strongest reaction against the SRC's report and the States Reorganization Act came from Maharashtra where widespread rioting broke out and eighty people were killed in Bombay city in police firings in January 1956. The opposition parties supported by a wide spectrum of public opinion—students, farmers, workers, artists, and businesspersons—organized a powerful protest movement. Under pressure, the government decided in June 1956 to divide the Bombay state into two linguistic states of Maharashtra and Gujarat with Bombay city forming a separate, centrally administered state. This move too was strongly opposed by the Maharashtrians.
Nehru now vacillated and, unhappy at having hurt the feelings of the people of Maharashtra, reverted in July to the formation of bilingual, greater Bombay. This move was, however, opposed by the people both of Maharashtra and Gujarat. The broad-based Samyukta Maharashtra Samiti and Maha Gujarat Janata Parishad led the movements in the two parts of the state. In Maharashtra, even a large section of Congressmen joined the demand for a unilingual Maharashtra with Bombay as its capital; and C.D. Deshmukh, the Finance Minister in the Central Cabinet, resigned from his office on this question. The Gujaratis felt that they would be a minority in the new state. They too would not agree to give up Bombay city to Maharashtra. Violence and arson now spread to Ahmedabad and other parts of Gujarat. Sixteen persons were killed and 200 injured in police firings.
In view of the disagreement over Bombay city, the government stuck to its decision and passed the States Reorganization Act in November 1956.
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