22 | Travancore and Cochin States Union

Travancore and Cochin, located in the southernmost part of the Indian peninsula, were recognized for their natural beauty, distinct culture, high literacy rate and progressive administration. Both states had a long history, with Travancore tracing its ruling family from ancient Chera kings, and Cochin from Cheraman Perumal. Travancore's state was formally dedicated to Sri Padmanabha, the tutelary deity of its ruling family, with Maharajahs ruling as 'Dasas' or servants of the deity (Menon, 1956).

Both states had a long history of alliances with the British, with Cochin entering into an alliance with the English East India Company in 1791 and becoming a tributary. By 1805, Travancore had contracted closer relations with the Paramount Power (Memoranda on the Indian States, 1935). Cochin was the first Indian state to separate judiciary from the executive. Cochin was also notable for having a Legislative Council with an elected majority by 1925 and sending elected representatives to the Constituent Assembly in 1946. Travancore also had a legislature, though with limited powers. Both states dedicated a significant portion of their revenues to education and literacy and actively pursued industrialization (Menon, 1956).

Following the announcement of India’s Partition, the Diwan of Travancore, C. P. Ramaswami Aiyar, declared the State's intention to assert independence, raising concerns for Balkanization of India (Menon, 1956).

It was partially influenced by Travancore’s considerable revenue from customs, and the influence of Nawab of Hyderabad’s similar stance. The Congress, however, affirmed that the lapse of paramountcy did not grant states the right to declare independence. Lord Mountbatten, as Crown Representative, was entrusted with negotiating with the rulers on accession. V.P. Menon, then Secretary of the States Department, also played a crucial role (Menon, 1956).

There were several issues arising out of old animosities and provincialism that hindered the integration of the two states:

• Several areas of Cochin State, including its capital Ernakulam, formed islands within Travancore territory, which led to practical difficulties in coordinated administration.

• Ernakulam, Cochin's capital, received its water supply from Travancore and many rivers flowed through both states but because of the old rivalries, satisfactory agreements were not reached.

• The diversity of jurisdiction between the two states hampered coordinated measures for dealing with anti-social elements.

• The administration of Devoswam properties and the allocation of funds for temple maintenance were contentious.

• The relations between the two rulers had been "anything but cordial" for decades, with them not even being on visiting terms. The Maharajah of Travancore initially preferred to maintain the status quo, fearing that integration would adversely affect his position relative to the Cochin ruler.

• The Travancore Tamilnad Congress expressed hostility to the integration with Cochin, fearing further weakening their position as a minority. They desired the merger of Tamil-majority talukas in Travancore with Madras Province.

  
  

V. P. Menon navigated all these concerns. He clarified to C. P. Ramaswami Aiyar that the accession plan was based on the Government of India Act of 1935, requiring accession only on three subjects: defence, external affairs, and communications, without imposing financial or other commitments. Menon stressed the dangers of political isolation and the need for an integrated economic and political system to counter threats like the rising communist influence (Basu, 2020; Menon, 1956).

Sir C. P. Ramaswami Aiyar preferred a mere ‘agreement’ over ‘accession’ while also firmly declaring Travancore’s intention to remain independent. In July 1947 though, he was attacked and stabbed by a member of a political extremist group at a musical concert in the state. This assassination attempt created a serious political and psychological turning point (Menon, 1956).

Following the attack, and amid mounting internal and external pressure, the Travancore government changed its attitude. Shortly after his recovery C.P. Ramaswami Aiyar communicated Travancore’s willingness to accede. Lord Mountbatten emphasized the inevitability and strategic benefits of accession. The Maharajah of Travancore telegraphed his acceptance of the Instrument of Accession and Standstill Agreement, a decision that positively influenced other wavering rulers. This Instrument of Accession, signed in August 1947, provided for accession on these three subjects, defining their content as per List 1 of Schedule VII to the Government of India Act, 1935 (Menon, 1956)

• As for the other disputes:The integration of the two states into a single Union inherently resolved this geographical fragmentation. The new Union formed a contiguous entity.

  
  

• Unification under a single administration eliminated these inter-state rivalries, allowing for coordinated development and resource management. A railway link between Ernakulam and Quilon (in Travancore) was proposed.

  
  

• The covenant included a specific arrangement for Devaswoms. Devaswom boards were set up in each state where the Maharajah retained control over the rituals and temple administration.

  
  

• The Maharajah of Travancore was made the permanent head of the new Union, serving as Rajpramukh for life, giving him a significant concession. The demand for the separate title of Perumal was rejected to maintain uniformity in the new Indian Constitution. Trivandrum (Travancore's capital) was chosen as the capital, while Ernakulam (Cochin's capital) hosted the High Court and Law College, as a compromise to address the inconvenience to Cochin's population. The ruler of Cochin accepted these arrangements without any demands.

  
  

• V.P. Menon informed that the question of linguistic provinces was under consideration and advised the Travancore Tamil Nad Congress against pressing the linguistic argument. He assured that their position could be safeguarded by weightage within the new Union and deemed merger with Madras province as ‘impracticable’.

  
  

V.P. Menon visited Trivandrum in March 1949 to discuss the future of the states. He presented three alternatives: forming an 'Aikya Kerala' (a larger linguistic province including Malabar), a union of Travancore and Cochin, or maintaining the status quo. While Aikya Kerala was a popular aspiration, it was deemed premature due to ongoing discussions on linguistic provinces. The Premiers and ministers of both states, after consulting their respective Congress parties, unanimously accepted the proposal to amalgamate into a Union, opposing a merger with Madras Province (Basu, 2020; Menon, 1956).

The key points and features of the negotiations in the merger agreement were:

• The Maharajah of Travancore was given the office of the Rajpramukh for life and ensured loyalty to the new Constitution.

  
  

• A peculiar and complex issue was the administration of temple properties. In Travancore, the Sri Padmanabha temple's vast properties had become intermixed with state funds after the ruler took over management. The agreement stipulated an annual payment of Rs 51 lakh from the Union's general revenues to the Devaswom fund, with Rs 6 lakh for the Sri Padmanabha temple, to be administered by a board with representation from Hindu members. In Cochin, the arrangements allowed Harijans a measure of control and access to positions previously denied to them, which was seen as a far-reaching social reform.

• The Maharajah of Travancore's Privy Purse was fixed at Rs 18 lakh annually, from an original drawing of Rs 27 lakh, with Rs 15 lakh being actual Privy Purse. The Cochin Maharajah's Privy Purse was fixed at Rs 2,35,000. For successors, it was stipulated that the amount would be as per the Government of India’s decision.

  
  

• The Maharajah of Travancore voluntarily surrendered the extensive personal Kandukrushi lands (approx. 60,000 acres yielding Rs 5 lakh annual revenue) to the State, signing a proclamation simultaneously with the covenant.

  
  

• Unlike earlier Unions that only acceded on defense, external affairs, and communications, the Travancore-Cochin covenant introduced a permissive provision for the Rajpramukh to accede on taxation entries from the federal list.

The covenant, finalized and signed in May 1949 (with a revised Instrument of Accession signed on July 14, 1949), brought the United State of Travancore and Cochin into being on July 1, 1949. The new Union covered an area of 9,155 square miles, with a population of 7.5 million and an annual revenue of approximately Rs 134 million. The states agreed to unite their territories into a single state with a common executive, legislature, and judiciary. Assets and liabilities of the covenanting states became those of the United State. The Rajpramukh and the Council of Ministers were made subject to the control of the Government of India, and the Government of India could take over administration in an emergency. The successful formation of this Union was a testament to the efforts of Indian leaders contributing significantly to the political consolidation of independent India (White Paper, 1950).

References:

• Menon, V. P. (1956). The Story of Integration of the Indian states. Orient Blackswan.

  
  

• Ministry of States. (1950). White Paper on Indian States. Government of India.

Annexure

Travancore and Cochin Union Covenant