Creation of Separate Province of Odisha: The establishment of a separate Odisha province was a pivotal moment in the state’s modern history. After 1568, Odisha disintegrated into regional kingdoms, with the Bhois of Khurdha, the Bhanjas of Ghumsur and Mayurbhanj, and the Chauhans of Sambalpur gaining political prominence. Neither the Mughals nor the Marathas were able to fully restore Odisha’s unity.
The East India Company’s piecemeal conquest of Odisha – first the southern region, then the coastal areas, and finally Sambalpur and its neighboring territories – further prevented unified British rule. As a result, the southern portion was governed by the Madras Presidency, the coastal region by the Bengal Presidency, and the western portion by the Central Provinces. This administrative division relegated Odia-speaking people to the status of neglected minorities in each region. However, on April 1st, 1936, Odisha finally achieved recognition as a separate state.
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The problems of the division of Odisha
Odisha’s arbitrary division into numerous fragments resulted in a slew of complicated issues, including the following:
Negligence Odia language
The arbitrary division of Odisha had dire consequences for the Odia language. It suffered neglect and suppression within all three provinces. The dominant groups – Bengalis, Telugus, and Hindi-speakers – exhibited linguistic chauvinism and actively posed a threat to Odia’s survival.
Influential Bengali scholars, like Rajendralal Mitra and Kantilal Bandopadhyaya, denied Odia’s status as a distinct language. They even pressured the government to make Bengali the primary language of instruction in Odia schools and replace existing Odia textbooks. Similarly, Telugu was forced upon Odia schools in the Ganjam region, while Hindi was imposed in the schools of the Sambalpur tract within the Central Provinces.
Government Failure and the Suffering of the Odia People
Odisha’s disunity directly hampered the ability of the three regional governments to effectively respond to natural disasters like drought, famine, and floods. This became tragically evident during the Great Famine of 1866, which claimed countless lives and brought profound suffering to survivors. The crisis prompted Strafford Northcote, the British Secretary of State for India, to acknowledge in 1868 that reuniting the Odia-speaking territories could reduce the risk of neglect due to administrative division.
Calls for change were echoed by officials on the ground. In 1885, Henry Rickets, Commissioner of Odisha Division, proposed merging Sambalpur with Odisha due to their shared racial and cultural ties. H.G. Cooke, the Commissioner of Odisha, later passionately argued for the Sambalpur tract’s inclusion into Odisha in his 1894-95 Annual Report.
Economic Stagnation and Crisis
The negative economic consequences of Odisha’s division were severe. Odia-speaking people had their resources fragmented across three administrations. Trade and commerce faced major disruptions as the mouths of the Suvarnarekha and Budhabalanga rivers, along with the ports of Pipli and Chandbali, became silted. The government lacked the political will to resolve these crises – starkly revealed by their inaction following the 1866 famine.
Story of Creation of a Separate Province or Modern State of Odisha
The Odia Movement emerged in the wake of the devastating 1866 Famine, often with the support of British officials. The work of prominent figures like Madhusudan Das, Gauri Shankar Ray, Fakir Mohan Senapati, and Radhanath Ray, alongside influential publications, educational initiatives, associations, and the language crisis itself, played a crucial role in awakening the political consciousness of the Odia-speaking people.
Efforts to influence the government took various forms. Raja Shyamanand De of Balasore and Madhusudan Das of Cuttack submitted memoranda in 1875 and 1885 respectively, advocating for the reunification of Odia territories. Das also drew the attention of Bengal’s Lt. Governor to the many challenges Odias faced under fragmented rule. In 1902, Raja Baikuntha Nath De of Balasore presented a widely-publicized petition to Viceroy Lord Curzon. Madhusudan Das even met with the Viceroy in Simla in 1900 to press the issue. Meanwhile, the people of Ganjam submitted a heavily supported memorial further highlighting the cause.
These efforts had an impact. Lord Curzon developed sympathy towards the Odia-speaking people.
The Struggle to Incorporate Sambalpur: Language, Culture, and Administrative Challenges
Linguistic surveys by Grierson and government records clearly designated Sambalpur and its surrounding Feudatory States – administratively placed under the Central Provinces in 1862 – as part of “Natural Odisha” and “Odia country.” Yet, the C.P. Government’s imposition of Hindi led to serious issues: Hindi-speaking officials were reluctant to work in Sambalpur, while Odia-speaking officers resisted transfers to Hindi areas. Language became a barrier between government and the people.
Outrage erupted in response to the January 15th, 1895 notification (No. 227) mandating Hindi as the official language for offices, courts, and schools. Odias feared that this would deny them government jobs, force their children to learn a new language, and endanger their distinct culture. The press fiercely opposed the order, with the ‘Sambalpur Hitaisini’ and Calcutta’s ‘Statesman’ leading the charge. Dharanidhar Mishra organized a petition to Viceroy Elgin. Madhusudan Das lobbied tirelessly, even meeting with British Parliament members in 1897. Sambalpur produced its own heroes in the struggle, including Braja Mohan Patnaik, Balabhadra Sukar, Mahant Bihari Das, and Madan Mohan Mishra.
When Sambalpur leaders met with Viceroy Curzon in 1900, their call for inclusion in Odisha’s Bengal Division coincided with his plans for territorial reorganization (later related to the Partition of Bengal). He ordered an inquiry under the C.P.’s Chief Commissioner, Andrew Fraser, who recommended both Sambalpur’s transfer to Odisha and the restoration of Odia as the official language. Seizing on this, Curzon moved to redraw boundaries, outlining his plan in the ‘Risley Circular’ of 1905, which fulfilled both key demands made by Sambalpur’s leaders.
Bihar-Odisha: A Province Born in Protest
While the reversal of Bengal’s partition and Sambalpur’s incorporation brought joy, it also led to a greatly enlarged Bengal. Lord Hardinge, the Viceroy, proposed separating Hindi and Odia areas from Bengal. In 1912, Odisha Division joined with Bihar, forming Bihar-Odisha Province, while Ganjam and the Vizianagaram Agency remained with Madras. Odias deeply resented the birth of this “twin,” fearing domination by Biharis. Curzon even voiced his dissent in the House of Lords, but the Indian government ignored the protests.
The Utkal Sammilani’s Response
The Utkal Sammilani had advocated for Odia unification since 1903. Now, under the dynamic leadership of Madhusudan Das, it intensified its efforts. The creation of Bihar-Odisha was a “political earthquake” for Odias, and Das tirelessly brought the issue to the government’s attention.
1917 Reforms Spark Hope… and Disappointment
The 1917 Reforms Committee recommended greater provincial autonomy, fueling the Odia movement’s demand for unification. A delegation led by Madhusudan Das, Gopabandhu Das, and others presented Montague with a comprehensive case titled “The Odia Movement.” Montague expressed his own dissatisfaction with Bihar-Odisha, calling it an “artificial unit” and suggesting a sub-province for Odia speakers. This raised hopes, but his proposal of a “process of consent” from Madras, C.P., Bengal, and Bihar-Odisha Councils doomed the plan. Odias felt betrayed.
The Age of Moderates Ends
This disappointment marked the end of Madhusudan Das’s moderate approach. A new generation of young, assertive nationalists took the helm of the Utkal Union Conference, ushering in a new era in Odisha’s political life from 1920 onward.
Sachchidanand Sinha’s Resolution: A Spark for Unification
On February 20th, 1920, Sachchidanand Sinha introduced a resolution in the Imperial Legislative Council, calling for the consolidation of Odia-speaking territories. Known as the Sinha Resolution, it faced opposition from provincial governments. The C.P. offered only the small Khariar zamindari. Bihar-Odisha responded more favorably. Madras, however, refused to cede Ganjam, prompting Odia leaders to take action. Members of the Odia community introduced a resolution in the Madras Council, while the ‘Asha’ newspaper’s editor, Sasibhusan Rath, organized rallies in Berhampur to mobilize support.
The Philip-Duff Committee: Controversy and Stalemate
The Government of India finally convinced Madras in December 1924 to appoint the Philip-Duff Committee to investigate the matter. After extensive fieldwork, the Committee acknowledged the genuine desire of Odias under Madras rule to unify. However, their report met fierce opposition from the Madras Government, which denounced it and even threatened to seek reimbursement for public works in Ganjam. They proposed delaying the decision until the arrival of the Royal Statutory Commission in 1928. The Indian government, facing this tense situation, temporarily.
A Shift in Momentum: 1927-1929
Crucial developments occurred between 1927 and 1929. The Bihar-Odisha Government backed a new Odia province, commissioning a financial analysis of the Ganjam area. While a deficit was predicted, Odia representatives in the Legislative Assembly of India, Pandit Nilakantha Das and Bhubananand Das, boldly demanded a separate province. Alexander Muddiman, the Home Member, expressed sympathy. The central government’s stance towards Odia demands had clearly become more favorable.
The O’ Donnel Boundary Commission: A Step Towards Unification
Krushna Chandra Gajapati, the Raja of Paralakhimedi, provided a crucial push at the 1930 Round Table Conference. His passionate speech and memorandum advocating for a separate Odisha province resulted in the formation of the Boundary Commission. Chaired by Samuel O. Donnel, its work was guided by language, ethnicity, geography, and administrative and financial concerns.
The Commission conducted extensive research, traveling throughout the impacted regions, listening to hundreds of witnesses, and analyzing census data. Their final recommendation favored a new province largely encompassing Odisha Division, Angul, Padampur, Khariar Estate, and the Odia-majority areas of Ganjam and the Vizagapatnam Agency. This would create a province of 33,000 square miles with a population of over 8 million. However, due to financial concerns, they did not initially recommend a dedicated High Court, University, or new training centers. They urged the Indian government to cover any deficit.
Lingering Obstacles
The path to Odisha’s statehood remained complex. Madras refused to cede Parlakhimedi and Jeypur, while the Central Provinces withheld Khariar. A delegation led by the Rajas of Paralakhimedi and Khallikote met with Samuel Hoare, India’s Secretary of State, to address these disputes. Despite this, when the initial White Paper was published in March 1933, Parlakhimedi and Jeypur were still excluded.
The Joint Select Committee’s Breakthrough
The matter was ultimately resolved by the Joint Select Committee, chaired by Lord Linlithgow. They endorsed the Odisha Province plan, with its borders including Odisha Division, Angul, Padampur, Khariar, the Odia-majority Ganjam (including Berhampur and Jeypur), and a portion of the Parlakhimedi Estate. Crucially, the Committee recommended federal subsidies to address Odisha’s financial deficit, paving the way for its establishment.
The Hubback Committee: Shaping the New Odisha
To address practical questions surrounding the new province, the Indian government appointed the Hubback Administrative Committee. Chaired by Sir John Austin Hubback and including notable Odia advocate Madhusudan Das, it focused on the location of the capital, administrative costs, court and university affiliations, and staffing for officials.
Published on December 20th, 1933, the Committee’s report made key recommendations:
- Cuttack as the capital, with Puri as the summer headquarters
- Creation of a High Court for Odisha, but no separate university
- A joint official cadre shared with Bihar
- A new Koraput district, as well as Nawapara and Gunupur sub-divisions
- The division of Angul, with administration shared between Ganjam and Cuttack
Odisha Is Born!
These recommendations helped pave the way for the Government of India Act of 1935, formally establishing the new state of Odisha. On April 1st, 1936, after His Majesty, the King Emperor, issued the Order-in-Council on March 3rd, the province was formally inaugurated. Sir John Hubback became Odisha’s first Governor. While smaller than envisioned, the new province signified an end to the era of fragmentation and the start of a new chapter of Odia unity and achievement.
