26 | Rajputana States

Historically, Rajputana (present-day Rajasthan) comprised 18 independent states, one chiefship, and one estate, grouped for political and administrative relations with the Government of India through the Agent to the Governor General. These states were ( Jodhpur, Jaipur, Bikaner, Jaisalmer, Alwar, Bharatpur, Dholpur, Karauli, Banswara, Bundi, Dungarpur, Jhalawar, Kishengarh, Kotah, Partabgarh, Shahpura, Tonk and Udaipur). These states varied significantly in size, population, socio-cultural diversity, land tenure systems, and economic development, making their integration into a single administrative unit a challenging task. While the Mughals and later the British had previously unified the area for administrative purposes, the final integration into the modern state of Rajasthan was achieved by nationalist leadership (Kumar, 2012; Menon, 1956).

By the end of the 18th century, Rajput states, ravaged by the Marathas, Pindaris, and Pathans, were in a state of helplessness. The British government, after defeating the Marathas in the Third Anglo-Maratha War, took these states under their protection, freeing them from Maratha suzerainty. This led to a system where the British provided protection but also imposed restrictions on internal and external integrity (Menon, 1956).

The integration of Rajputana states was done in five stages. 

1. The princely states of Alwar, Bharatpur, Dholpur, and Karauli were the first four to be incorporated into a union formation known as Matsya Union (March 1948). 

2. Another Union known as First Rajasthan Union, was composed of states of Banswara, Bundi, Dungarpur, Jhalawar, Kishengarh, Kotah, Partabgarh, Shahpura, and Tonk (April 1948). 

3. Udaipur state also subsequently joined the First Rajasthan Union. 

4. The remaining Rajput states of Jaipur, Jodhpur, Bikaner and Jaisalmer were included into the First Rajasthan Union, leading to the creation of Greater Rajasthan (March 1949).

5.  Lastly, the Matsya Union was later incorporated into the Greater Rajasthan unit (March 1949).

There were several complex issues involved that required extensive negotiations to resolve them:

Princes were initially reluctant to join the federation, prioritizing the safeguarding of their sovereignty and financial position. Sardar Patel and V.P. Menon engaged in multiple diplomatic negotiations, emphasizing the benefits of integration, such as guaranteed Privy Purses and private properties, and warning of potential public unrest if rulers resisted.

Jodhpur dilemma

The Maharajah of Jodhpur, Hanwant Singh, initially sought independence before considering acceding to Pakistan, believing he could extract more favourable concessions. Jinnah reportedly offered him significant concessions to join Pakistan, including - use of Karachi as a free port, free import of arms, jurisdiction over Jodhpur-Hyderabad (Sind) railway and supply of grain to famine-threatened districts. Sardar Patel, V.P. Menon quickly intervened with Menon countering Jinnah’s offer by promising similar concessions from India, including a railway from Jodhpur to a port in Kutch. Lord Mountbatten also intervened and cautioned the Maharajah about the danger of igniting communal violence (Menon, 1956; Zubrzycki, 2023).

The atmosphere in Jodhpur was also hostile to the idea of joining Pakistan. The Jagirdars and nobles were decidedly opposed to it. Menon made it clear that Accession to Pakistan would conflict with the principle of partition based on Muslim and non-Muslim majority areas and could lead to severe communal trouble within the state. After significant discussion and negotiations Hanwant Singh eventually signed the Instrument of Accession to India. A dramatic incident occurred when Hanwant Singh suddenly pulled out a pen-pistol on Menon after signing the Instrument. Menon took it as a serious threat and Mountbatten also entered the room to calm the situation. But later it became a ‘standing joke’ between the three of them (Basu, 2020; Zubrzycki, 2023). 

Privy Purse was a key negotiation point for the rulers, followed by the demarcation of private property. It was a complex and delicate task, often settled through discussions rather than arbitration. Inventories were submitted, and principles were formulated, with V.P. Menon personally assisted in finalizing settlements across various unions (Menon, 1956).

The integration aimed to replace absolutist regimes with democratic, responsible governments. The new Government of India, being a people's government, had a predisposition towards people's rights, advocating for a peaceful transfer of power (Menon, 1956). 

Integrating diverse administrative systems, revenue structures, and judicial practices was a major challenge. The process involved absorbing state servants into provincial cadres, extending central and provincial laws, and reorganizing administrative pyramids. Special officers and expert committees were deployed to formulate principles and assist in the process. To ensure good governance, especially in the newly formed Unions, provisions were included in covenants for the Rajpramukh and Council of Ministers to be under the general control and direction of the Government of India until a local constitution came into operation (Menon, 1956; Sharma, 1967).

Formation and Merger of Matsya Union:

The Matsya Union was formed by integrating the four states of Alwar, Bharatpur, Dholpur, and Karauli. It was inaugurated on 18 March 1948. Sardar Patel and V.P. Menon felt that these contiguous states, sharing natural, racial, and economic affinities, should be united. The name "Matsya Union" was suggested by K.M. Munshi, drawing from ancient Indian history, was accepted by the rulers. The Maharajah of Dholpur became the Rajpramukh due to his seniority, as an inquiry was pending against the Maharajahs of Alwar and Bharatpur. The Matsya Union's covenant generally followed the Saurashtra model (Menon, 1956; White Paper on Indian States, 1950).

Later, however, it was made clear that this union might later need to join either Rajasthan or the United Provinces, as it would not be financially self-supporting on its own. During negotiations for Greater Rajasthan, opinions were divided, especially in Bharatpur and Dholpur, regarding whether to merge with Rajasthan or the United Provinces due to linguistic affinities. A committee was appointed to ascertain public opinion, which ultimately reported a majority favoring integration with Rajasthan. The Matsya Union was then integrated with Rajasthan on 15 May 1949, though a provision allowed for future reassessment of public opinion in Bharatpur and Dholpur regarding a merger with the United Provinces (Menon, 1956; White Paper on Indian States, 1950).

The key features of the agreements and covenants of merger of princely states into Rajasthan were laid down as follows:

• The covenants established a common executive, legislature, and judiciary for the integrated territories. Rulers agreed to unite and integrate their territories into one state, with all rights, authority, and jurisdiction belonging to the Ruler, which pertained or were incidental to the government of the covenanting state, vesting in the new Union.

• An annual fixed amount of privy purses was guaranteed to the rulers for their maintenance, free of all taxes, in exchange for surrendering their ruling powers. Initially, the "Eastern States formula" was generally applied for fixing privy purses, however, in certain larger or "viable" states, higher ad-hoc amounts were agreed upon due to their importance and willingness to join the federation, and sometimes due to amounts already fixed by their local popular ministries. For instance, the Maharana of Udaipur's privy purse was fixed at Rs. 10 lakh, with additional allowances for his role as Rajpramukh and for traditional purposes. The privy purses for Jaipur, Jodhpur, and Bikaner were also substantial (Rs. 18 lakh, Rs. 17.5 lakh, and Rs. 17 lakh respectively), fixed in consultation with top Congressmen in Rajasthan.

• The covenants included a mandatory provision for the Rajpramukh to accept all subjects in both the federal and concurrent legislative lists for legislation by the Dominion Legislature, except entries relating to taxation and duties. This placed Rajasthan, in terms of Central legislation, on the same footing as the provinces.

• Rulers were guaranteed full ownership, use, and enjoyment of their private properties, distinct from state properties, existing on the date of the agreement. The covenants also guaranteed the privileges, honour, and dignities of the rulers.

• The head of the new Union was designated as the Rajpramukh. For the Greater Rajasthan Union, the Maharaja of Jaipur became the permanent hereditary Rajpramukh, with the Maharana of Mewar (Udaipur) given the higher, honorary title of Maharajpramukh. This position was to be for life, but not necessarily hereditary to his successors beyond the first incumbent. Until a constitution framed by a local Constituent Assembly came into operation, the Rajpramukh and the Council of Ministers were placed under the general control of, and had to comply with directions from, the Government of India. The administration was generally carried out by a council of ministers appointed by the Rajpramukh in consultation with the States Ministry in New Delhi.

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In Rajasthan, a Constituent Assembly was not immediately convened, and the adoption of the new Indian Constitution by the Rajpramukh superseded the need for a separate constitution (Menon, 1956; White Paper on Indian States, 1950).

The formation of the Rajasthan Union, like other unions, resulted in scattered enclaves of other states or British Indian provinces within its territory, and vice-versa. Efforts were made to rationalize these boundaries through mutual exchange of territories to facilitate administration. An agreement for the exchange of enclaves between Rajasthan and Madhya Bharat was concluded with the approval of the Government of India (See Appendix below).

This demonstrates the comprehensive approach taken by the Union government, especially Sardar Patel and V. P. Menon, to integrate the diverse princely states of Rajputana into the Rajasthan state. 

The Greater Rajasthan Union was formally inaugurated by Sardar Patel on March 30, 1949. At its formation, this Union covered an area of 120,888 square miles with a population of 11.2 million. 

Following the formation of the Union, the Raj Pramukh of the United State of Rajasthan (Maharajadhiraja Sawai Sir Man Singhji Bahadur of Jaipur) executed a revised Instrument of Accession on April 15, 1949. This instrument superseded the individual Instruments of Accession previously signed by the rulers of the covenanting states. After the merger of Matsya Union in May 1949, the total area covered by the Rajasthan state was approximately 128,424 square miles, with the population of about 13.1 million. 

References:

• Basu, N. (2020). VP Menon: The Unsung Architect of Modern India. Simon & Schuster India.

  
  

• Kumar, A. (Ed.). (2012). Rethinking State Politics in India (0 ed.). Routledge India. https://doi.org/10.4324/9780203813997

  
  

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

  
  

• Sharma, P. K. (1967). Integration Of Princely States And The Reorganization Of States In India. The Indian Journal of Political Science, 28(4), 236–241.

  
  

• White Paper on Indian States. (1950). Ministry of States, Government of India. https://en.wikisource.org/wiki/White_Paper_on_Indian_States_(1950)

  
  

• Zubrzycki, J. (2023). Dethroned: Patel, Menon and the integration of Princely India. Juggernaut Books.

APPENDIX

Source: White Paper, 1950