164

Chapter Five

Regional Backwardness, Statehood Movement and the State Response in Western Orissa

Like many other states in India, Odisha has introduced several welfare measures to

address the issue of economic underdevelopment and regional disparity. Many argue that

it has a historical root. The state of Odisha witnessed acute regional, social and gender

disparities which are the outcome of long term neglect of depressed regions and

entitlement failures for marginalized sections. Wide variations have been observed in

human development and infrastructure developments across the state. There is need for

sustainable broad based inclusive growth for Odisha over a long period to deal with

multi-dimensional disparities. The depressed regions and the social classes need greater

attention. Removal of regional disparities has been one of the important strategies

adopted by the state government during successive five year plans. However due to

several economic, social and institutional obstacles all regions in Odisha have not shared

the gains of development in an equitable manner. Some regions continue to languish in

abject poverty. The undivided districts of Koraput, Bolangir and Kalahandi (popularly

known as KBK district) form one such region where incidence of poverty is highest in

the state. This chapter attempts to analyze the state responses in order to bridge

disparities in development. It analyzes how do democratically governed state address to

the question.

The underdevelopment of certain regions within the state could give rise to a severe

dissentment. Backward region may demand development and adequate intervention of

the state government. In most of the cases the demand for raising regional disparity, if not

resolved proactively by the state and the problem lingers. People may get alienated from

the development process and demand for a separate state. But this may not always be the

case. Because other issues get integrated into the issues of regional disparity. The non-

economic issues gradually grow and influence sub-national politics. The issue of regional

disparity or economic underdevelopment coupled with various other issues give direction

to the process of articulation of statehood movement. The statehood movement is a

165

process supported by certain structures. In the process of its evolution the power, nature,

direction, motivation the central issues changes over a period of time. The movement is

not very powerful or equally powerful or significant throughout the process of its

evolution. Now the fundamental question is: In such a complex scenario how would state

government respond to pacify the movement. How to respond to such movement by the

government is a complex task because any preference of and ill conceived policies and

schemes may produce negative consequences and further divide the people on various

lines. Hence it is an interesting area of study the responses of the state government to

such movement. In the case of Odisha the government introduce many democratic

equalizing policies of regions.

From the very beginning the government showed its commitment in order to bridge

regional disparity. As a result of which the government of Odisha introduce many

commissions to inquire the fundamental causes of regional disparities and to recommend

how such disparity could be addressed within the framework of democratic governance.

Of late, the government of Odisha has also set up Regional Development Council which

is known as Western Odisha Development Council. Many policies and schemes have

been specially introduced to develop some of the backward region like KBK in order to

uplift the region at par with developed regions. And in this process some regions are

politicised.

Though the representation of the members from the backward region is usually

inadequate the members of legislative Assembly belonging to these regions have been

raising the issue of under development on the floor of legislative Assembly of Odisha.

They raise some of the common issues of their regions in the Assembly. The

members/MLAs do so or raise questions on the floor of the house in the manner which is

permissible by the party that are associated with. They do not demand separate state

because most of the dominant political parties in Odisha are yet to directly include the

demand for a separate state carving out some districts from Odisha. The state response

and non state responses have been discussed comprehensively in the sections that follow.

166

5.0 KBK Issues For a long time these backward regions did not get justice and these regions were

subjected to regional disparities and discriminations while allocating resources for

various development activities or projects. Since 1980, the perspective of Odisha

government is changing in addressing the question of regional inequality. This is not to

suggest that these regions have got the share it deserves. It is also true regional disparity

have come to occupy the political imagination of Odisha politics while addressing the

question of regional disparities, government is not paving the ways for granting any kind

of extra institutional autonomy at the cost of state commonality. In fact the KBK region

with about 72% of its rural people below poverty line is perhaps the poorest in the

country74. Several other pockets of southern and western Odisha are also socially and

economically depressed. These regions are also frequently visited by natural calamities

including severe droughts and floods. Persistence of heavy incidence of poverty in these

regions has been a cause of concern for the state government as well as the government

of India. However, the adhoc approaches adopted in the past to develop these regions did

not yield desired results. Therefore, in consultation with government of India, state

government have adopted a special development approach for these regions with a view

to focussing attention on them for accelerated development. In fact, the issue of regional

disparity is so acute that the central government has started some schemes to address the

issue of regional disparity in many states in India. One major scheme of Central

government is Pradhan Mantri Shram Vikas Yojana. Centre allocates special funds for

the development of these backward regions. It mainly focuses on infrastructural

development.

Eight key initiatives have been taken to address the problem of underdevelopment and

regional disparities in Orissa. The first initiative is conceptualization and implementation

of the Long Term Action Plan/Revised Long Term Action Plan for KBK districts. The

KBK districts which are located in western Orissa is one of the poorest regions in India.

The second initiative was inclusion of 19 additional districts: Bolangir, Boudh, Deogarh,

74 Annual Plan (2009-10), Government of Orissa, Planning and Coordination Department, Bhubaneswar, Vol. 1, P.15/1

167

Dhenkanal, Gajapati, Ganjam, Jharsuguda, Kalahandi, Kandhamal, Keonjhar, Koraput,

Malkangiri, Mayurbhanj, Nabrangpur, Nuapada, Nayagarh, Sambalpur, Sonepur and

Sundargarh under “Backward Regions Grant Fund”. Third, the state government have

also launched Gopabandhu Gramin Yojana in 11 additional districts including Bargarh

and coastal districts that are not covered under backward region grant fund. Fourth, the

Biju KBK Plan has been launched in the KBK districts to supplement development

efforts under RLTAP. Fifth, Western Odisha Development Council has been constituted

for backward districts of the western part of Odisha to quicken the pace of development

in these districts75. The sixth initiative is to bridge the critical infrastructure gaps in

identified sectors in the TSP areas. Out of the grant-in-aid receipt under Article 275 (1) of

the Constitution the seventh initiative is the implementation of development programmes

in TSP areas funded out of Special Central Assistance. The Eight initiative is

establishment of the Regional Imbalance Enquiry Commission headed by Justice

S.K.Mohanty (Retd) with a view to (i) conducting free and fair investigation into the

existing regional imbalances in the development process of the state and its trend in terms

of different socio-economic parameters like agriculture, infrastructure, development,

poverty, health care, literacy, population, employment etc and (ii) suggesting suitable

measures to address the existing regional disparities as well as to halt this trend. In the

mean time, the commission has submitted its final report to the state government which is

yet to be considered76.

The KBK districts: A Profile KBK region refers to the three old undivided districts of Kalahandi, Bolangir and

Koraput. From these eight new districts were carved out in 1992-93 i.e. Koraput,

Malkangiri, Nabrangpur, Raygada, Kalahandi, Nuapada, Bolangir and Subarnapur. These

districts cover 47,646 sq km area and comprise 14 sub-divisions, 37 tehsils, 80 CD

75 Shovan Ray (ed.)(2010), Backwaters of Development Six Deprived States of India, Oxford University Press, New Delhi, p.200 76 Annual Plan (2009-10), Op.cit, p.1/7

168

blocks, 1437 gram panchayats and 12,293 villages. As per 199777 census of families

below poverty line (BPL) about 72% families below poverty line live in this region.

Demographically, tribal communities dominate this region. As per 2001 census, about

38.41% people of these districts belong to the Scheduled Tribes communities including

four primitive tribal groups (PTG) i.e. Bondas, Dadai, Lanjia Sauras and Dangaria

Kondhas. 44 CD blocks are included in Tribal sub-plan (TSP). In addition, 16.25 %

population belongs to the schedules caste communities as per 2001 census78. District wise

information about the number of TSP blocks and BPL families as per 1992 and 1997

census are summarised in table.

Table: 5.1 Census of Families Below Poverty Line (BPL): 1992 & 1997*

Sl.No Districts Blocks

(number)

1992 census 1997 census

Total TSP* Total BPL Percentage

(%)

Total BPL Percent

(%) (Lakh families) (Lakh families)

1 2 3 4 5 6 7 8 9 10

1 Kalahandi 13 2 2.41 2.07 85.77 3.08 1.93 62.71

2 Nuapada 5 - 0.94 0.79 83.64 1.27 0.99 78.31

3 Bolangir 14 - 2.39 1.81 75.82 3.30 2.01 61.06

4 Sonepur 6 - 0.92 0.57 62.29 1.10 0.80 73.02

5 Koraput 14 14 1.88 1.63 86.59 2.65 2.22 83.81

6 Malkangiri 7 7 0.80 0.68 84.81 1.09 0.89 81.88

7 Nabarangpur 10 10 1.52 1.38 90.56 2.15 1.59 73.66

8 Rayagarda 11 11 1.42 1.22 86.04 1.88 1.36 72.03

Total*** 80 44 12.28 10.14 82.60 16.52 11.79 71.40

Source: Annual Plan (2009-10), Government of Odisha, Planning and Coordination Department, Bhubaneswar

Several socio-economic indicators highlight the backwardness of this region:

• The literacy rate at 43.33% is much lower than the state average of 63.08% as per

2001 census.

77 The Panchayat Raj Department, Government of Odisha has conducted a Census of Families below poverty line during 1997 by way of door to door survey 78 Census of India, (2001)

169

• The female literacy rate 29.10% also compares on favourably with the state

average of 50.51%.

• The population suffers from high morbidity on account of under nutrition as well

as endemic malaria and other localised diseases.

• 48.23% of all children born at the 3rd or higher birth order children in the family.

• Compared to the national average 36.80% of girls marrying below the age of 18

years, this is as high as 60.60% in KBK districts.

Other socio-economic indicators including population composition and density, net area

irrigated, rate of fertilizers used and member of hospitals beds are also far from

satisfactory. According to the report of “the Committee on the Constitution of Separate

Development Board in Odisha”79, 96% of CD Blocks in these districts are either very

backward or backward. To be specific 49 CD Blocks of KBK districts are regarded as

very backward and 28 CD Blocks are considered as backward. Only 3 CD Blocks i.e.

Karlamunda in Kalahandi, Dugiripali in Sonpur and Podia in Malkangiri are treated as

developing blocks. No CD Blocks is considered as developed in these districts.

The KBK districts have been historically rich in forest resources. Though the people have

been using these forests very intensively and eking out their livelihood from this source.

Forest of this region has not received adequate investments and managerial inputs over

time. Intensive use of forest for sustenance coupled with lack of adequate investments

and managerial inputs are thus continuously leading to forest degradation. Although 1/3rd

(16,131 sq km) of the geographical area of this region is recorded as forest, only 11.3%

(5,473 sq km) is actually dense forest as per satellite imagery data. It has been further

ascertained that 9% (4,332 sq km) forest area is completely devoid of vegetation cover.

Another 13.5% (6,327 sq km) forests are open80. The old Koraput and Kalahandi districts

and portions of Bolangir districts are mainly hilly. Severe droughts and floods also very

often visit this region and some areas in quick succession. Therefore, backwardness of

79 The report is also known as Ghadei Committee Report 80 Annual Plan (2009-10), Op.cit, p.15/3

170

this region is multi-faceted: (i) tribal backwardness (ii) hill area backwardness (iii)

backwardness due to severe natural calamities.

Strategies for Development of KBK Districts The special plan for KBK districts under SCA and the new initiative called “Biju KBK

Plan” launched by the state government under state plan (states own resource), will

effectively maintain and strengthen the momentum gained by Revised Long-Term Action

Plan (RLTAP). The special plan for the KBK districts and Biju KBK plan aim at (i)

drought proofing (ii) poverty alleviation and (iii) improved quality of life in KBK

districts. In order to achieve these objectives the following strategies have been adopted.

• Building rural productive infrastructure (e.g., roads, bridge, irrigation projects,

tanks, watershed development, markets, storage godowns) and conserving

natural resources (e.g., forest, soils and water)

• Developing programmes for income generation on sustainable basis (e.g.

productive rural infrastructure, SGSY, SGRY, NREGP, agriculture

development and micro-credit support)

• Mobilising and empowering the rural poor (e.g. self-help groups (SHG), vana

samrakshana samitis (VSS), pani panchayats and bhumi panchayats)

• Restructuring and enhancing the social security system (e.g. emergency

feeding programme, special nutrition programme, mobile health units,

promotion of education among SC, ST girls)81

Plan Scheme The state government has attached five priorities to balance regional development

strategy as one of the important development strategies for backward districts. The main

objectives of the special area development programmes are to address the severe

problems of underdevelopment and regional disparities. For this purpose, an outlay of

Rs.96, 564.00 lakhs had been proposed for the annual plan: 2009-10 under special area

81 Ibid, p.15/3

171

development programme. The annual plan outlay includes funds of Rs.36, 500.00 lakhs

out of states own resource82.

Special Plans for KBK District

In order to address severe problems of underdevelopment and regional disparities the

state government in consultation with government of India have formulated the long term

action plan (LTAP) and revised long term action plan (RLTAP) for the KBK districts. A

revised long term action plan (RLTAP) of the KBK districts was submitted to

government of India on their advice in 1998. The project was prepared in sub-plan mode

to address the peculiar socio-economic problems of this chronically poor region, which is

also geographically contiguous. This project envisages an integrated approach for

speeding up the socio-economic development of this region by synergizing effectively

the various developmental activities and schemes under implementation both in central as

well as state sectors. The critical gaps in the development efforts as well as resources are

sought to be bridged through additional central assistance (ACA/ Special Central

Assistance (SCA)) as a special dispensation. Therefore, there has to be pooling up

resources from different sources like (i) normal flow of funds to KBK districts under

Central Plan (CP) and Centrally Sponsored Plan (CSP) schemes (ii) additional funds

received from government of India exclusively for programmes in KBK district as agreed

by the Planning Commission and (iii) central assistance under programmes of

government of India to be implemented in KBK districts with some relaxation in norms

such as Accelerated Irrigation Benefit Programme (AIBP) for earmarked irrigation

projects83.

A total outlay of funds to the tune of Rs. 6,251.08 crores over a project period of 9 years

from 1998-99 to 2006-07 is envisaged under the revised project. However, state

government have been receiving adhoc assistance from the central government to bridge

gaps in resources available for critical sectors on year to year basis. During the first four

82 Ibid, p.15/4 83 Orissa Development Report, (2002) Planning Commission, Govt. Of India and NCDS, Bhubaneswar,Orissa, New Delhi, pp.340-341

172

years RLTAP i.e. from 1998-99 to 2001-02 the government of India has released funds to

the extent of Rs. 1,393.99 crores. This just constitutes 22.30% of the plan outlay

earmarked under the RLTAP of KBK region for the period 1998-99 to 2006-07. Also it is

found that the state government has failed to utilise the funds released by the centre.

Against the central release of Rs. 1,393.39 crores during 1998-99 to 2001-02 the state

government has been able to spent Rs. 1,042.44 crores i.e. 74.78% only according to the

information available from the planning and coordination department, government of

Odisha. No doubt the state government have taken several initiatives to improve

governance and to monitor the implementation of RLTAP programmes in KBK districts.

A very senior I.A.S officer has been posted as the chief administrator, special area

development (KBK Project) with headquarters at Koraput. The revenue divisional

commissioner (Southern division) has also been given additional responsibility to act as

deputy chief administrator, KBK and to assist the chief administrator KBK. However, all

the same, there is need for effective grass root level planning, awareness generation,

community level sensitization for sustainable development of the region84.

Table: 5.2 Department-wise/Scheme-wise Allocation, Reported Expenditure and submission of

UCs of ACA/SCA under RLTAP for KBK districts during 1998-99 to 2007-08 (Rs. In lakhs)

Sl.No Department Programme/Scheme Total

ACA/SCA

allocated

Total

expenditure

Submission

of UCs

1 Agriculture 13163.22 12594.47 10192.13

(i)Watershed development

project/Coffee project

11756.35 11187.60 9289.34

(ii) Diversification of

agricultural crops

721.26 721.26 261.54

(iii) Diversification of

horticultural crops and

development of kitchen gardens

to ensure food security

685.61 685.61 641.25

2 Cooperation 1444.00 1444.00 1322.00

84 Ibid. p.341

173

(i) Construction of warehouses 750.00 750.00 750.00

(ii) Infrastructure development

under agricultural business

572.00 572.00 572.00

(iii) Completion of cold storage 122.00 122.00 0.00

3 Energy 1270.00 1270.00 1270.00

(i) Rural electrification 1270.00 1270.00 1270.00

4 Finance 650.00 650.00 650.00

(i) Irrigation interest liability 650.00 650.00 650.00

5 Fisheries and

ARD

1816.39 1816.39 1688.20

(i) Poultry/Duckery/ Cattle dev. 1080.84 1080.84 1024.21

(ii) Pisci culture/ Aqua culture 735.55 735.55 663.99

6 Forest and

Environment

15962.55 15962.55 14944.55

(i) A forestation programme/

Aromatic medicinal plants and

edible bamboos

15962.55 15962.55 14944.55

7 Food, Supplies

and Consumer

welfare

24.00 24.00 24.00

(i) Infrastructure/Institutional

development under agri business

24.00 24.00 24.00

8 General

administration

39.10 39.10 39.10

(i) Construction of residential

clusters

39.10 39.10 39.10

9 Health and

Family Welfare

5362.29 5362.29 4978.86

(i) Mobile health unit and other

health programmes

5362.29 5362.29 4978.86

10 Housing and

Urban

development

4611.45 4611.45 4206.83

(i) Water supply for the urban

poor

4611.45 4611.45 4206.83

11 Industries 2268.50 2268.50 945.01

174

(i) Development of handicrafts 325.00 325.00 76.51

(ii)Promotion of employable

skills/vocational training of

unemployed youths

1943.50 1943.50 868.50

12 Panchayati Raj 1300.00 1300.00 709.12

(i) Improvement of traditional

water bodies/rural livelihood

support for plantation crops

709.12 1300.00 709.12

13 Rural

development

12653.63 12585.10 12414.96

(i) Rural water supply scheme 7249.27 7249.27 7252.87

(ii)Rural connectivity

programme

5404.36 5335.83 5162.09

14 Science and

Technology

700.00 700.00 300.00

(i) GRAMSAT Development

programme

500.00 500.00 300.00

(ii)Promotion of Bio-diesel 200.00 200.00 0.00

15 ST and SC

welfare

14694.71 14694.71 12527.54

(i) Development of Scand ST 14694.71 14694.71 12527.54

16 Sports and

Youth Services

10.00 10.00 0.00

(ii) Sports and Game in Tribal’s 10.00 10.00 0.00

17 Textiles and

Handlooms

403.00 403.00 23.16

(i) Handloom and Craft

development

226.50 226.50 2.00

(ii)Sericulture development 176.50 176.50 21.16

18 Water

Resources

12236.47 12236.47 10929.34

(i) Biju Krushak Bikas Yojana 9049.31 8977.27 8534.57

(ii) State Matching Share

towards AIBP

2140.00 2140.00 2140.00

(iii) Minor Irrigation Projects 410.54 482.58 122.45

(iv) Improvement of Traditional 636.62 636.62 132.32

175

Water Bodies

19 Women and

Child

Development

20664.10 20664.10 16886.29

(i) Emergency Feeding 12382.01 12382.01 10388.04

(ii) Micro-credit help to women

SHGs

985.00 985.00 985.00

(iii) Special Nutrition Support 4930.80 4930.80 4868.25

(iv) Construction of Buildings

for Anganwadi workers

1239.50 1239.50 137.95

(v) Reduction of Malnutrition

and Child Mortality

1026.79 1026.79 507.05

(vi) Mobility supports to

Anganwadi workers/ANMS

100.00 100.00 0.00

20 Works 8456.93 8119.25 8101.89

(i) Rural Connectivity

Programme

8156.93 7819.25 7813.89

(ii)Construction of Residential

Clusters

300.00 300.00 288.00

21 Law 32.25 32.25 29.52

(i) Construction of Judicial

Building

32.25 32.25 29.52

22 Planning and

Coordination

39362.41 38507.55 20938.68

(i) Construction of Residential

Clusters

4079.00 4079.00 2498.38

(ii) Special Connectivity for

KBK/Masterplan

19808.77 18683.91 7115.50

(iii) Monitoring and Evaluation 324.00 324.00 274.00

(iv) Support to high power

employment mission

300.00 300.00 0.00

(v) Repair of Roads damaged by

heavy rains/floods

810.64 810.64 0.00

(vi) Special human development

programme through PHDMA

50.00 50.00 0.00

(vii) IEC Corpus Fund 160.00 160.00 150.00

176

(viii) Corpus for Study of

System improvement, evaluation

and IEC through PHDMA

100.00 100.00 0.00

(ix) District Window 14000.00 14000.00 10900.80

Total ACA/SCA 157395.00 155295.18 123121.17

Source: Annual Plan 2009-10, Government of Orissa, Planning and Coordination Department, Bhubaneswar

Though these initiatives have brought several benefits to this region, the acute conditions

of regional and social disparities have not been adequately addressed. There is still a felt

need to continue with long term development measures during the 11th five year plan for

addressing mass poverty and chronic backwardness of this region. Government of India

has agreed to allocate Rs.130.00 crores per annum in shape of Special Central Assistance

or Special Plan for KBK district during the 11th five year plan. During the year 2008-09,

Special Central Assistance to the extent of Rs.130 crores has been allotted by the Central

government for implementation of different schemes, programmes in the KBK districts.

An outlay of Rs.130.00 crores had been proposed for the Annual plan 2009-10 under

State sector with a flow of fund of Rs. 57.28 crores and Rs.24.23 crores to TASP and

SCSP respectively85.

New eight year perspective plan for KBK districts The state government in consultation with planning commission have submitted a new

eight year perspective plan for KBK district for Rs.4450.00 crores for the period from

2009-10 to 2016-17. The approval of the planning commission is awaited. If it is

approved the region might get a boost in the speed of development.

Biju KBK Plan The state government had launched a new initiative called the Biju KBK Plan under state

plan as a tribute to late Biju Patnaik Former Chief Minister of Odisha, for eight KBK

districts of Odisha with a view to maintaining and strengthening the momentum gathered

under RLTAP and up scaling the public investment in the KBK region. This plan was

85 Annual Plan, (2009-10), Op.Cit, pp.15/9 – 15/10

177

implemented at a modest scale in the year 2006-07. The objectives of the Biju KBK plan

are as follows:

(i) Creating opportunities for economic, social and human development for the

people in the region, especially the disadvantaged.

(ii) Accelerating poverty reduction and achieving millennium development goals and

(iii)Improving the quality of life of the local people and bringing the region at par

with other developed regions.

The funds under Biju KBK plan shall be used as an additionality to fill critical gaps for

which funds are either not available or are inadequate. The Biju KBK plan shall also fill

the critical gaps left uncovered under the backward regions grant fund (BRGF). Priority

shall be accorded to fill critical gaps in infrastructure, completion of projects/programmes

under RLATAP and thrust on Bijli, Sadak and Pani i.e. village electrification including

street lighting, construction of concrete roads within the village or any other form of

connectivity, and creation of irrigation/drinking water source. Programmes under Sadak

and Pani will continue to have major share of investment under the scheme as Bijli

programmes will be supplemented in case of such programmes are not covered under

Biju Gramya Jyoti Yojana and RGGVY. During the year 2008-09, Rs.120 crores under

Biju KBK plan has been sanctioned to the KBK district both under state sector and

district sector. Action plans of all the districts have been prepared for the

programmes/projects are under implementation. The action plan relating to schemes

programmes for the annual plan 2009-10 under Biju KBK plan will be formulated and

implemented at the district level for which an outlay of Rs. 120.00 crores has been

proposed86.

5.1 Western Odisha Development Council Politics of allocation and utilization of funds and factors affecting the Western Odisha

Development Council (WODC) in its achieving the desired result has been discussed in

this section which is as follows:

86 Ibid, Op.cit, p.15/11 – 15/12

178

The government of Odisha initiated political actions in order to bridge regional disparity

in terms of economic development. As discussed in the different sections of the previous

chapters the rational intention of the government have not produced anticipated

outcomes. This is a serious issue for meticulous examination of how institutions like

WODC functions on the ground. Institutions get affected by non-formal processes87. It is

true in the case of WODC because the functioning of WODC is not free from the

influence of various variables on the ground. The WODC has not produced intended

outcomes. Many have started arguing that the ineffectiveness of WODC to address the

question of regional disparities is meagre. It is also argued by some that it is due to lack

of political will of state government to energise and enable WODC in achieving its

objectives for which it was formed. The protagonists of the movement often consider the

state government, political elites and political use of WODC as one of the main cause of

failure of WODC. The fundamental question is, as we know that WODC is not free from

the political uses of the state government. Often, the WODC is used by the ruling

political party in order to accommodate some of the leaders who had lost in the elections.

The directly elected representatives of the people often sidelined due to certain regions

connected to the party concerned in power. It is natural that the political party in power

accommodate some of the leaders who are not the members of the legislative Assembly

or any other representative body of the government. This practice destroys the intention

of WODC. However, this is one among other challenges that WODC faces at this

juncture. For instance, the close examination of the functioning of WODC would reveal

that the genuine issues routinely left out in the proceedings of the WODC meetings.

There is no proper discussion and deliberation on these issues relating to development.

Many un-substantive issues are often discussed in the council rather in a very

acrimonious form. It is alleged that discriminations against certain members in allocating

resources through the WODC is taking place. Though substantial resource is allocated for

western Odisha no money is allocated for welfare of the marginal community. Some of

the dalit activists are of the opinion that no activities of WODC directly benefit the

87 Doughlas. C.North, (1990), Institutions, institutional change and Economic Performance, Cambridge University Press, Cambridge

179

weaker sections of the society. There is no statutory representation of weaker sections in

WODC despite the fact western Odisha is a region where backward communities formed

a significant chunk of the population of the backward region. As discussed above the

backward communities are not actively involved in Koshal Movement. The WODC do

not directly focus on the development of marginalized groups. Their association with the

movement is getting further aggravated. The decision making of WODC is done on

political lines. They are often used for promotion of the party interest.

The state government have constituted a Western Odisha Development Council

(WODC), the jurisdiction of which extends over 10 districts, i.e. Bargarh, Bolangir,

Boudh, Deogarh, Jharsuguda, Kalahandi, Nuapada, and Sambalpur, Sonpur and

Sundargarh districts and Athamalik sub-division of Angul district88. The Western Odisha

Development Council (WODC), the first of its kind for any region of the state, was

formed with an aim to fulfil the regional hopes and aspiration of the people of that part of

state. The objective was to bridge the development deficit by targeting balanced growth

and mitigating regional disparities. The Council is mandated to develop appropriate long

term and short term development plans and programmes for these districts.

Western Odisha Development Council receipt Rs.157 crores from its inception to 2011.

Major areas where its money was sanctioned were: communication, public roads,

education sector, health sector, electrification, and drinking water and irrigation facilities.

There is also emphasis on building of institutions especially on health and agricultural

sector. Three medical institutions were conceived to be established in the backward

western Odisha. The medical colleges were to be located one each in Bolangir district,

Bhawanipatna in Kalahandi district and Rourkela in Sundargarh district. These three

districts are amongst the 69 most backward districts of the country listed by renowned

economist Bibek Dev Roy on behalf of Rajiv Gandhi Foundation.

88 Annual Plan (2009-10), Op.cit,p.15/11 to 15.12

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In this regard 15.00 crores have already been released. Apart from this the council may

consider setting new hospital at district headquarters on public private partnership model.

Similarly at Chiplima, in Sambalpur district 6 crores and 50 lakhs have been sanctioned

to Odisha University of Agriculture Technology for establishment of a Horticulture

degree college. Roads and communications have got major share i.e. about 36.14% of the

budget amount. Though there is great emphasis by the State government and Central

government on this aspect, which should have been easily avoided by the Western Odisha

Development Council and instead thrust should have been given to particular areas for

governmental measures are not able to reach out.

Table: 5.3 Statement Showing the Projects Approved (Sector-wise) and Funds Released to

different Districts of WODC since inception

Sl.No Project Head No. of Projects

Administrative Approval Amt (In Rs.)

Released Amount (In Rs.)

Total Completed

Total On Going

1 AGRICULTURE 10 91313820 90539820 0 10 2 BANDHAS AND

KATAS 347 49309248 47149248 208 139

3 CHECK DAM/SMALL MIPS

811 641862576 616903742 297 514

4 DRINKING WATER 2383 192819390 191628826 1574 809 5 EDUCATION 2542 524464824 490478824 1048 1494 6 ELECTRIFICATION 744 261676757 255781018 376 368 7 EMBANKMENT 17 19684716 19684716 12 5 8 FLOOD

RESTORATION WORK 9 8833747 8833747 6 3

9 GRANT TO URBAN LOCAL BODIES

52 77477213 77477213 28 24

10 HEALTH 115 1906260961 182234711 62 53 11 LABOUR INTENTIVE

WORKS DURING DROUGHT

96 22000000 22000000 24 72

12 LIFT IRRIGATION 650 50493471 497445374 411 239 13 MINOR IRRIGATION 516 631432755 593805069 251 265 14 OTHER PROJECTS 545 325610050 292391147 71 474 15 RDA ROADS 14 24349034 24348343 10 4 16 ROADS &

COMMUNICATION (R& B ROADS)

284 613701956 568108736 217 67

17 ROADS & COMMUNICATION (RW ROADS/PS AND OTHER ROADS)

1873 1311662724 1251698236 784 1089

Grand Total 11008 5491763242 5230508770 5379 5629 Source: Western Odisha Development Council Planning & Coordination Department, Bhubaneswar

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Table: 5.4 Details of Grant-in-Aid received and Release/Expenditure since inception of Western

Odisha Development Council, Bhubaneswar

Year G.I.A Received

Released for Developmental Projects

Establishment Expenses

Total Expenses

1998-1999 5.00 1999-2000 300.00 204.01 51.26 255.27 2000-2001 3000.00 2001-2002 5000.00 2289.67 25.38 2315.05 2002-2003 5000.00 4002.53 42.07 4044.60 2003-2004 5000.00 7386.52 52.27 7438.79 2004-2005 5000.00 6196.42 45.61 6242.03 2005-2006 5000.00 6652.20 46.63 6698.83 2006-2007 5000.00 4212.80 65.91 4278.71 2007-2008 5000.00 6180.30 48.22 6228.52 2008-2009 10000.00 6620.88 63.89 6684.77 2009-2010 10000.00 3800.25 57.23 3857.48 2010-2011 3000.00 4759.50 58.49 4817.99 61305.00 52305.08 556.96 52862.04 Source: Western Odisha Development Council Planning & Coordination Department, Bhubaneswar

Table: 5.5 District wise position on receipt of Utilisation Certificates since inception by WODC (Up to

31.10.2010)

District Name

Amount Released

UCs submitted up to 2009-10

UCs received during 2010-11

Total UCs Balance UCs to be received

Angul 1044.67 691.65 13.59 705.24 339.43 Bargarh 7089.24 4675.05 316.16 4991.21 2098.03 Bolangir 8582.14 6249.41 219.65 6469.06 2113.08 Boudh 3441.85 2483.48 76.28 2559.76 882.09 Deogarh 1850.42 1176.89 35.45 1212.34 638.08 Jharsuguda 2634.05 1917.50 49.43 1966.93 667.12 Kalahandi 7658.67 5471.55 515.39 5986.94 1671.73 Nuapada 3126.73 2346.99 5.00 2351.99 774.74 Sambalpur 5486.73 3589.96 188.55 3778.51 1708.22 Sonepur 3231.25 1962.90 41.44 2004.34 1226.91 Sundargarh 8159.33 5245.29 323.59 5568.88 2590.45 Development Expenditure

52305.08 35810.67 1784.53 37595.20 14709.88

Establishment Expenditure

0.00 499.13 0.00 499.13 0.00

Grand Total 52305.08 36309.80 1784.53 38094.33 14709.88 Source: Western Odisha Development Council Planning & Coordination Department, Bhubaneswar

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The Western Odisha Development Council consists of four important committees. They

are (i) Finance Committee (ii) Advisory Committee (iii) Work Committee and (iv)

Education Committee89. This committee have hardly met in the past. Finance committee

for instance had hardly met only once till 2009-10. In 2010 March, Dr. Hamid Hussain

took over member of Finance committee and within three years he conducted and

presided over seven meetings of Finance committee and all the proposals and projects

have to be approved and passed through Finance committee before placement in the

council meeting and then in the assembly. Then there is no perspective planning. The

Finance committee prepared a three year perspective plan for WODC to emphasise on

agriculture, education, and health service and employment generation. Earlier lahks of

money seems to have been earmarked for trivial activities which have little precious to do

with real development and issue of the areas.

These activities were constructing community centre, kalyan mandap, temples,

boundaries of schools and graveyards etc. In addition major portion of money were spent

on activities which already are focus area of the government like construction of roads

and drinking water facilities. Some of the MLAs had given their proposals which

included 80-90% of road construction only. The perspective planning limited the

budgetary provisions for road construction to 20%. Thus the proposals of the MLAs and

expert members which curtail higher percentage of proposals of road construction

returned in 2011 for reconciliation. Another area of concern for WODC is that the

WODC over the year has become an extension of MLAs and MPs fund. Each member

roughly and formally gets a quota of 1.5 crores each. The process has become virtually

institutionalised and it would be very difficult to alter and reverse the process. There is no

equal allocation in matters of fund to underdeveloped areas. The constituency which are

ruled by the ruling party members are getting more funds. Thus most of the projects has

become politically motivated and thus are populist one. In this situation the real issues of

removing regional disparity in terms of development gets sidelined.

89 The Odisha Gazetteer (2003), Government of Orissa, Planning and Coordination Department, Bhubaneswar, p.1

183

Table: 5.6 Short-term perspective plan for WODC (2010-11 to 2012-13)

Sector wise short-term perspective Plan of WODC for the period from 2011-12 to 2012-14

Sectors Rs. In Crores Percentage Irrigation Lift irrigation Projects 863 Units @ 10.00 Lakhs 86.30 28.77% Rain Water Management Project 70 Units @ 40.00 Lakhs

28.00 9.33%

Drinking Water Sallow tube wells 700 nos. @ 0.5 Lakh 13.50 4.50 Deep Tube Wells 142 nos. @ 2.0 Lakhs Pipe Water Supply Projects @ 2.0 Lakhs Electricity Replacement and transformers 13.60 4.53% Energizing the LIP Roads and Communications Culvert, small bridges 45.00 15.00% Health PPP Mode 16.00 5.33% Medical College 15.00 5.00% Eye Hospital (PPP Mode) 0.60 0.20% Education Classrooms, bench & Desk 46.00 15.33% Sports (Playground) 5.00 1.67% Zonal skill training centre 2.00 0.67% Education complex (PPP) 7.00 2.33% Centre for Development Studies 5.00 1.67% Farm Machinery hiring 3% (PPP mode) @ 45.0 lakhs 20 units

9.00 3.00%

Agro polytechnic 9 units @ 89.32 lakhs 8.00 2.67% 300.00 100% Source: Western Odisha Development Council Planning & Coordination Department, Bhubaneswar

Short-term Perspective Plan for WODC (2010-11 to 2012-13) Western Odisha Development Council (WODC) devised a short term perspective plan for

the period 2010-11 to 2012-13. The main aims and objective of Western Odisha

Development Council is faster growth process in village leading to better regional

development and minimising economic inequalities. It is felt by WODC that investment

of irrigation especially lifts irrigation and with people’s participation like Pani Panchayat

is likely to optimise the returns from the investments. During the last nine years of

existence of WODC though largest percentage of investment has been put in irrigation,

yet it has not been possible to motivate the farmers to diversify from paddy cultivation.

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Out of total investment of 170.30 crores on irrigation sector which is 34.85% of the total,

33.8% goes to check dam, 34.78% to MIPs, 28.5% to LIPs and 2.89% for Bandha Kata

Renovation. Since investment on check dams and MIPs renovation did not yield desired

results due to faulty designs it is suggested that the lift irrigation projects be given

importance. Apart from that rain water management project concept for irrigation

development in villages may be taken up which is investment effective costing only

Rs.20, 000 per hectare (Rs. 8,000 per Acre). A note on this concept is submitted for kind

persual of the honourable member. Earlier the system of detailed project report

preparation was not followed in any WODC project. While considering the importance of

LIPs for utilization of existing water sources, it is proposed that revival of defunct LIPs

should also be taken. Both installation of new LIPs and revival of old ones on an average

would consume Rs.10 lakhs per project. Number of LIPs to be taken up in each district is

as follow:

Table: 5.7 Number of LIPs to be taken up in each district

Name of

the district No. of LIPs Proposed Total No. of rain water

management projects proposed

Total

2010-11

2011-12

2012-13 2010-11

2011-12

2012-13

Sundargarh 40 45 45 130 5 5 4 14 Jharsuguda 20 25 20 65 2 1 1 4 Deogarh 20 25 25 70 - 1 - 1 Sambalpur 30 30 30 90 2 3 2 7 Boudh 15 15 15 45 1 2 1 4 Bargarh 30 35 40 105 3 4 3 10 Sonepur 20 20 20 60 1 2 1 4 Nuapada 20 20 20 60 2 1 1 4 Kalahandi 35 35 35 105 3 3 4 10 Angul 8 10 10 28 1 1 0 2 Bolangir 40 35 30 105 3 3 3 9

Total 863 Total 17 Source: Western Odisha Development Council Planning & Coordination Department, Bhubaneswar During the last ten years the WODC has sponsored 624 LIPs both new and revival of the

old ones. Now it is proposed to take up 863 LIPs during the next three years 2010-13 at a

rough estimate of 86.3 crores. For rain water management project which is a new concept

will consume 28.00 crores. So out of 300 crores likely to be available during the next

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three years 114.30 crores is proposed to be invested in irrigation sector (38.18%) hither to

the proportion which was 34.85%.

Drinking Water Between 2001 and 2010, a total 2174 drinking water projects have been operationalised

by the funding of the WODC to a tune of 17.11 crores which is 3.51% of the total of

488.57 crores which appeared a meagre percentage which should have received priority.

Drinking water projects cover the digging of shallow tube wells, pipe water supply in

village and some NACs areas. It is proposed to raise the expenditure on the drinking

water supply projects both tube well and pipe water supply to at least 4.5% of the budget

amount which comes to 13.5 crores.

Table: 5.8 Drinking Water Supply Project: Shallow Tube Well, Deep Tube Wells and Pipe

Water Supply

Name of district

2010-11 2011-12 2012-13

Shallow tube well

Deep tube well

Pipe water supply

Shallow tube well

Deep tube well

Pipe tube well

Shallow tube well

Deep tube well

Pipe water supply

Angul 7 1 1 8 2 2 5 1 2 Bargarh 25 7 7 34 6 8 38 7 8 Boudh 15 2 2 15 3 4 10 3 4 Deogarh 7 1 1 8 2 2 5 1 2 Jhasruguda 15 2 2 15 3 4 10 3 4 Bolangir 25 7 7 35 6 8 40 7 10 Kalahandi 25 7 7 35 6 8 40 7 9 Nuapada 15 2 2 15 3 4 10 3 4 Sambalpur 20 5 6 30 6 7 30 5 7 Sonepur 15 2 2 15 3 4 10 3 4 Sundargarh 35 10 8 50 8 10 38 10 15 Total 204 46 45 260 46 61 236 50 69 Source: Western Odisha Development Council Planning & Coordination Department, Bhubaneswar Electrification

Rural electrification projects sponsored by the WODC are 674 in number with an

expenditure of 23.88 crores (4.89%). Though the demand on the WODC to support rural

electrification projects have been reduced due to implementation of Rajiv Yojana and

Biju Yojana, yet pressure is mounting for replacement of transformers. Since electric

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supply to the villages and agricultural fields are managed by same transformer, the

farmers who have afforded to sink deep tube wells are suffering. Since the electric supply

company do not extend electric lines to energise LIPs etc the WODC is obliged to allot

funds for that also. Therefore, 4.5% of the budget allocation may be operational for

electricity which comes to 13.6 crores. Since the cost estimate of the electric projects are

highly variable starting from a few thousand to a few lakhs depending upon the types of

jobs it may not be possible to allocate fixed number of projects to each district which may

be determined as per the necessity and priority limiting to 13.6 crores (4.53%).

Road Communication

During the last 10 years a good chunk of the budget money has been spent for road

repairs and construction of new roads including construction of culverts. R& B, RW, PR

and NAC and municipalities have been the executive agencies for the road projects. In all

1440 projects have been handled (1440 RW and 280 R& B). An amount of Rs 176.48

crores was spent which was just 36.145 of the budgeted amount. Government of Odisha

is pressing hard advising not to sanction rural road projects. Since a lot of money is

remaining unspent receipt from the government of India for such projects. In view of the

above, it is proposed to reduce the expenditure on rural roads to 155 knocking at Rs.

45.00 crores.

Health

Under health sector very meagre amount has been spent which is of the order of 48.55

crores (3.11%) which also include the incentive amount of the 9.00 crores paid for

establishment of the medical college at Jaring in the district of Kalahandi by a private

party. It is observed that majority of the investments initiated by the WODC under health

sector had very poor results. In this context the WODC observed that requirements under

health sector have peculiar nature which should not be decided by politicians and

bureaucrats. While deciding on the allocation of funds under health sector during the next

three years WODC has the obligation of providing 15.00 crores as incentive amount to

Kalahandi, Rourkela and Bolangir. Apart from these the council may consider setting

new hospitals at district headquarters on public private partnership model. Government

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may provide land of 3-5 acres for 100 bedded hospitals. WODC may provide one time

assistance of 1.00 crores to the private party. Such facilities may be extended to sub-

division level and other important areas providing one time assistance of Rs.50 lakhs for

50 bedded hospitals. Financial support from WODC may be provided for such

infrastructure development. It may be considered to set up diagnostic centre on PPP

model, WODC providing financial assistance of Rs.25.00 lakhs to fetch facilities like X-

ray, ultrasound. Idea is to have all tests under one room.

Eye Hospital

It is proposed to establish a 30 bedded eye hospital at Junagarh, Kalahandi through PPP

model with lepra society which is managing a 30 bedded eye hospital at Birmaharajpur,

Sonepur. The blindness percentage in Kalahandi is 2% which is much higher than the

state average of 1.4% and national average is 7% which is also higher than state average

of 2%. Around 3.00 crores would be required to organize land, land development,

auxiliary building, equipment etc and to run the hospital for first three years. 80% will be

met by lepra India and if agreed WODC may spend Rs. 60 lakhs (20%) of the total

expenditure which would be utilized to create only fixed assets like buildings.

Education

The literacy rate of WODC districts is 60.01% which is below the state average of

63.08%. Substantial investment is required in education sector, mainly for construction of

additional class room, libraries and laboratories. The library may be provided with the

books grant on the basis of actual and also the laboratories may be supported with

equipments. In addition, class room may be equipped with bench and desk facilitating the

classes to run. More help may be provided to high schools which do not receive any

funding from the government for infrastructure though LP and UP schools have some

sort of help through government projects. During the last 10 years, 2106 education

projects have been financed by WODC with an expenditure of 40.90 crores (8.37%).

There are 1720 high schools, 2843 middle schools and 270 colleges in western Odisha.

Barring a few managed high schools located in the district headquarters and sub-

divisional headquarters, all other have poor classroom infrastructure not to speak of

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laboratories and libraries. Since schools education is a prerequisite to bring awareness

among masses, those need financial support for infrastructure development. During the

next three years at least 900 schools are provided with financial assistance to build two

class rooms/laboratories/libraries/dormitories, Rs.3.50 lakhs to each. In addition 900

schools are given 0.50 lakhs each for purchase of desk and benches. 500 schools are

provided with Rs. 2 lakhs for construction of boundary walls and lavatories for girls and

500 schools is given one lakhs each to develop their sports activities.

Table: 5.9 Basic Amenities proposed to be provided in Schools

Name of

the district

2010-11 2011-12 2012-13

Classroom/

Library

/laboratory

Boundary

wall

Bench

&

Desk

Classroom/

library/

laboratory

Boundary

wall

Bench

&

Desk

Classroom/

library/

laboratory

Boundary

wall

Bench

&

Desk

Angul 10+2 7 12 8 10 8 7 10 7

Bargarh 40+3 20 43 50 20 50 30 20 30

Boudh 10+5 10 15 8 12 8 7 15 7

Deogarh 15+5 10 20 15 12 15 18+2 15 20

Jharsuguda 15 5 15 10 7 10 15+3 10 18

Bolangir 40+5 20 45 50 25 50 30+5 20 35

Kalahandi 40+5 20 45 50 25 50 40+ 30 40

Nuapada 20 10 20 17 12 17 15+5 15 20

Sambalpur 20 10 20 25 12 25 25+5 15 30

Sonepur 20 10 20 17 12 17 15 15 15

Sundargarh 40+5 20 40 50 25 50 50 20 50

Total 300 142 295 300 172 300 272 185 272

Source: Western Odisha Development Council Planning & Coordination Department, Bhubaneswar

Technical education of the state has been a good growth but this is lagging in western

Odisha. WODC districts like Nuapada, Deogarh, Boudh, and Bolangir can have

Engineering College in PPP model. This will provide access to Engineering Education

for students of WODC area. Government may provide 10 acres of land free of cost and

WODC can give a support of 1.5 crores to the promoters to establish Engineering

College.

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Establishment of Zonal Skill Training Centres

Zonal Skill development Centres with 40 to 50 trades meant for drop out students of class

VIII to graduate can be established in Bolangir and Kalahandi on PPP mode. These

centres may be provided with one time grant of one crores by WODC.

Educational Complex

Educational complex over an area of about 50 acres of land can be established in PPP

mode. This Educational complex may house Engineering College, Management Institute,

Para Medical Courses, Higher Secondary School, some diploma course. WODC may

provide one time assistance of 7,000 crores. Such complex will help promoting

educational facilities in different streams along with providing employment opportunity.

The partnership mode envisages making the facilities of the educational complex

affordable and accessible to students of the district.

Agriculture (Agro Polytechnic Centre)

During the last 10 years, on Agriculture Sector 8 projects have been operationalised with

an expenditure of 7.09 crores which amounts to 1.45% of the total budget support. Six

crores and 50 lakhs have been sanctioned to Odisha University of Agriculture

Technology for establishment of a Horticulture Degree College, Chiplima. Establishment

of cost and contingent expenses both recurring and non recurring will be met by the State

Government. Thirteen thousand 325 acres of uplands of Western Odisha have been

ameliorated for growing kharif pulses and oilseeds with an expenditure of Rs. 15.00

lakhs. Now it is proposed to open 9 Agro Polytechnic Centres one in each district

attached to the Krishi Vigyan Kendra’s run by OUAT. Each rooms, laboratories, hostel

dormitory, farm infrastructure, field laboratory and equipments. In addition the State

Govt will bear the cost of establishment and recurring contingent expenditure. A note is

placed for better appreciation of Hon’ble Members. The allocation for 9 Agro

Polytechnic centres is put at 8.00 crores.

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Contribution of Graduates, post Graduates in Agriculture, Animal Husbandry and allied

disciplines have been immense to make out country self sufficient in food production.

Now, a stage has come when the productivity per unit area is a stagnant, yield level

having reached a plateau. To guide the farmers for better economy now there is a need of

more of intermediate level technicians who could gain self confidence and convince the

fellow farmers about low risk technologies. Such technicians may fit themselves for self

employment also.

They can earn a living also by doing the job for the farmers on payment of a small fee. To

prepare them for such jobs, the SAUs have to think of certificates Courses of nine months

duration after High School for specific jobs and vocations. Preferably, such course is

offered in local languages. In the past Village Agricultural Workers (VAW) course of

two years during have been offered, which was general and non specific and was of not

great use.

The following are some suggestions to which more could be added or deleted.

Accordingly to the specific need of different regions, the SAUs could establish Agro Poly

Technical in the pattern of Industrial Training Institute (ITI), Seed Production (Certified

and TL Seeds), Nursery Management (food, vegetable, flowers, fruits etc), Plant

protection (including custom service use of Bio pesticides), Food processing and

preservation, Bio Fertilizer Production, Post Harvest Management (including value

addition), Floriculture, Orchard Development and Maintenance, Pisci Culture,

Entrepreneurship Management (Mushroom culture, Bee Culture etc), Poultry Production

and Diary Farming including Fodder cultivation.

Establishment of a Centre of Development studies of ecologically handicapped and economically distressed Western Odisha

Western Odisha Development Council (WODC) has been established and constituted by

an Act of Legislature for the accelerated development and advancement of Western

Odisha. The object is to upgrade the level of development and remove regional

imbalances in holistic development. WODC is expected to prepare long term and short

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term plans and programmes for removal of development imbalances between the districts

in the Council area, keeping in view the over all levels of development of the state.

The recent development study emphasise structural changes in society as the basis

condition of development. This can be possible through cultural changes such that the

inmates of a culture are expected to anticipate, appreciate, initiate and adopt changes in

all their affairs. Keeping this in view, it is proposed to establish a Centre for development

studies with objective to undertake, promote coordinated research in Social Sciences and

Socio economic problems of societies. A rough estimate for a full fledged Centre with

provision of 5 acres of land for campus, investment of about 40.00 crores for the

infrastructure facilities such as building etc. One crore of seed capital for creating campus

fund is proposed. It is expected in 2 years time the centre would be self financing and not

depending on the WODC for further finance.

Establishment of Farm Machinery and Implement centres with the provision of hiring scheme

With the growth of population and diversion of prime agricultural land for industries,

urbanisation, road construction etc through per capital land availability is getting reduced

in many areas the land is left fellow due to labour scarcity. Labour forces from villages

prefer to search their living in towns. Labour is considered as most expensive inputs with

the enhancement of daily wages. Therefore, farm machinery and implements are the

necessity of the day. Since consolidation of holdings did not succeed, large scale use of

agriculture designed but have not yet been popularised. Heavy machinery like tractors,

cultivators, harvesters, threshers, power tillers, rice planters may be kept at each

Panchayats for availability on hire with a reasonable charge. Smaller tools and

implements can be owned by the farmers themselves which are available at a subsidized

rate. Just like Pani Panchayat, each Panchayat may have a body to look after the hiring of

heavy machinery which could be made available to the farmers at actual cost of

maintenance and operational cost. Apart from labour problem, timely operation can be

solved since now bullock power is scarce.

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Impact Assessment

Western Odisha Development Council has been established and constituted by an act

known as Western Odisha Development Council Act, 2000 (Odisha Act, 10 of 2000)

legislature for the accelerated development and advancement of Western Odisha. The

objective is to upgrade the level of development and remove regional imbalances in

holistic development. But considering the performance of the Western Odisha

Development Council in the last several years, it is clear that the council is nowhere near

the goal it had set for itself. The lacklustre performance of the WODC can be ascribed to

its non representative character. The chairman and the members are neither elected nor

does the council have any autonomy. The nominated body is functioning as an appendage

of the planning and coordination department of the government. Surprisingly the party

currently in power had rejected the council branding it as a signboard council. Of course

the party was in the opposition at the time when the council was formed and its was

persistent on the demand for an elected and autonomous council. Surprisingly having

been in power for almost one decade now the party has forgotten its own stand. The

government has not shown any interest to bring about any structural changes to transform

the character of the council.

The body continues to be an entity in signboard only. As if this was not enough, the

ruling dispensation has seen to it that it degenerate further. Over the years the body has

been reduced to a rehabilitation centre for the rejected politicians of the party in power.

Most of the candidates of the ruling party, who lost in the battle of votes in last elections,

have found their way to the council. No one can say as to what is the area of their

specialization and in what way the people of the region are benefitted by their expertise.

Possibly, their only field of specialization is contesting elections and being rejected by

the people. It is natural that a nominated council without any autonomy and as such with

no accountability cannot live up to the expectation of the people and the area. The council

continues to be indifferent and insensitive to the needs of the people and the area it is

supposed to serve. The council, despite having substantial rise in grants from a paltry

rupee 3 crores in 1999 to Rs.100 crores annually, appears rudderless in the absence of a

roadmap for the development of the designated region. It must have a perspective macro

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picture of development with priorities fixed. The council cannot met the hopes and

aspirations of the people and bring about a change in development scenario, unless it is

made an elected body with autonomy.

The proposals for consideration therefore should not be from limed number of people but

may encompass proposals from Ex-MLAs Ex-MPs, representative of local bodies, social

scientists, intellectuals and professionals. Priority should be given to projects which are

of urgent need and have possible long term impact on welfare and development

especially with regard to education, employment, health, irrigation, agriculture and agro-

based sectors. It is an irony that the head office of both WODC and the KBK authority

function at Bhubaneswar miles away from the operational area. Then it is no surprise that

the two bodies so away and detached from the collective sentiments of the people of that

region, obviously resulting in further alienation.

The main issues involved in the functioning of the WODC seem to be as under:

i. Huge backlog of utilization certificate

More than 405 of the projects of last few years are either halfway or yet to start, backlog

of utilization certificate till 2008-09 is about 25% i.e. 120 crores out of total sanctioned

amount of 438 crores. There is no institutional mechanism to prevent such backlogs and

disposal of earlier backlogs.

ii. Audit objections

Each year audit objections are piling of due to lack of professional commitment and

honesty, absence of periodical monitoring and no adherence to financial regulations. For

instance, an audit objections mentions that acknowledgment in regard to Rs.59 crores are

either missing or have not been received at all. No serious efforts have been made on this

account. There are number of other audit objections of trivial and serious nature. WODC

has no standard procedure of assessment and appeal.

194

iii. Complicated Procedures

WODC adopts very complicated procedures for administrative approval, sanctions and

release of funds. Equally complicated is the process of monitoring of the projects.

Professor Gopabandhu Behera, WODC expert member raised a point that, there is a huge

time gap on issue of administrative approval order and release of funds from WODC to

concern district collectors. Member Secretary elaborated that earlier in the administrative

approval order a clause has been mentioned that “the work may be started only after

receipts of funds from WODC” which was probably the bottleneck90. Release of funds

for a project, for instance takes eight months on an average, after the council has

approved it. Completion of projects takes even more time. Thus backlog of utilization

certificate are inevitable. However, no explanation can be given for non-receipt of

Utilization Certificates (UCs) to the tune of 120 crores for project up to 2008-09.

iv. Adhocism of WODC personnel and allegation of corruption

About 70% of WODC staff is working on contractual basis. This has resulted into lack of

accountability, lesser pay and possibility of extraneous consideration. The present

chairman Padmini Shekhar Deo though otherwise knowledgeable had no previous

administrative, financial expertise and experience. Therefore, allegedly junior officials

are able to have projects from contractors and get them inserted in the proposals. This has

resulted into allegation of corruption.

• Large number of projects and schemes of WODC have no bearing with real

development of the area. Some of these include construction of community centre,

religious institutions and boundaries of various institutes instead of focussing on the

infrastructure building, developing and building institutions and filling-up of the gap

of development or government schemes are not likely to reach out. The WODC

council is scattering its funds on various insignificant aspects. Following two major

considerations allegedly play vital role in submitting proposals.

90 Proceeding of the 34th meeting of WODC held on 9.6.11, Conference Hall, Rajeev Bhawan, Bhubaneswar

195

(a) Electoral gain

(b) Pecuniary benefit (popularly called as PC)

This is precisely why proposals by WODC are not development oriented. There is urgent

need to specify the nature of projects to be submitted and broaden the source of receipts

of such proposals to have wider choice. District authorities can also be called upon to

submit meaningful proposals which are otherwise do not fall part of government

schemes. The local self government institutions Ex-MLAs MPs also may be allowed to

submit proposals.

• Large number of projects and plans has remained incomplete and defunct. This

amount to loss to state exchequer on one hand and on the other depriving the people

of the area from benefits intended by the government for them. It is imperative to

monitor implementation of the projects sanctioned by WODC. There is need to have

circular issued to the line agency to give priority to WODC projects and send

quarterly report of status position.

• The amount allotted to WODC is not enough to make significant contributions to

develop Western Odisha. Funds are required from the central government. A case, as

far as procedure and detail justification should be processed the state government.

This has been time and again reiterated by the chairman of the finance committee and

other members in the council meeting, but no tangible efforts have been made in this

regard.

• Out of allotted funds, a substantial portion of it should be earmarked for development

of infrastructure. The council itself should have mechanism to assess the requirement

of the area and formulate plans instead of solely depending on recommendations from

political representatives and individual members of the council. Earmarking of fixed

funds for members and political representatives are likely to lead to recommendations

for populist schemes with a view to nurture constituencies or the respective areas they

belong to. Therefore, the greater focus should be on the larger interest of western

Odisha itself, rather than protecting individual interest.

196

5.2 Backward Region Grants Fund (BRGF) Government of India have launched a new initiative called Backward Region Grant Fund

(BRGF) during the year 2006-07 with a view to redressing regional imbalance in

development. The BRGF will provide united grants for supplementing existing

development inflows into identified districts. The main objectives of this component are:

(i) Bridge critical gaps in local infrastructure and other developmental requirements

that are not being adequately met through existing inflows.

(ii) Strengthen to this end panchayat and municipality level governance with more

appropriate capacity building, to facilitate participatory planning, decision-

making and implementation and monitoring to reflect local felt needs.

(iii)Provide professional support to local bodies for planning implementation and

monitoring their plans.

(iv) Improve the performance and delivery of critical functions assigned to panchayats

and counter possible efficiency in equity loss on account of inadequate local

capacity.

A well conceived participatory district development perspective plan is required to be

formulated to address the backwardness during the 2006-07 and the 11th five year plan.

The participatory plans prepared by each panchayats and municipality would be

consolidated into the district plan by the district planning committees (DPCs). BRGF

consists of two funding windows such as:

(i) Capacity building

(ii) Substantially united fund grant

The government of India have included 19 districts of Odisha under BRGF. They are:

Bolangir, Boudh, Deogarh, Dhenkanal, Gajapati, Ganjam, Jharsuguda, Kalahandi,

Keonjhar, Koraput, Malkangiri, Mayubhanj, Nabrangpur, Nuapada, Phulbani, Rayagada,

Sambalpur, Sonpur and Sundargarh. These 19 districts also include 5 Rashtriya Sam

Vikas Yojana (RSVY) district during the 11th plan i.e. the five RSVY district will be

subsumed into the BRGF in the 11th plan. During 2006-07 against the entitlement of

Rs.324.67 crores, Rs.43.59 crores was made available for 8 backward districts for

infrastructure development and capacity building under the BRGF component. Similarly

197

during 2007-08 as against the entitlement of Rs.324.67 crores, Rs.252.50 crores has been

received so far in respect of 17 districts as on 31st December 2008. Out of the available

amount utilization certificates for Rs.54.55 crores have been furnished for the year 2006-

07 and 2007-08 (up to 31/12/2008)91. The details of receipt of funds are given in the

following table 5.10. Table: 5.10

District –wise receipt of BRGFs for the year 2006-07 and 2007-08 (up to 31.12.2008)

Sl.No District Type Entitlement Funds received UCs

Submitted

Remarks

2006-07 2007-08

1 Bolangir KBK 16.41 11.12 Districts

covered

under

Rashtriya

Sam

Vikas

Yojana

(RSVY)

have been

switched

over to

BRGF

model of

funding

from the

year

2007-08

2 Boudh 12.94 1.00 11.51 0.6893

3 Deogarh 12.52 5.00 11.28 3.25

4 Dhenkanal 15.42 11.59 6.93

5 Gajapati RSVY 13.94 13.94 6.50

6 Ganjam RSVY 22.85 22.85 1.49

7 Jharsuguda 12.58 5.00 10.99 3.02

8 Kalahandi KBK 16.98 13.90 4.27

9 Keonjhar RSVY 19.13 13.72

10 Koraput KBK 16.82 14.36

11 Malkangiri KBK 13.84 12.45

12 Mayurbhanja RSVY 22.04 16.23 5.48

13 Nabarangpur KBK 15.04 15.04

14 Nuapada KBK 13.07 7.50 11.76 14.58

15 Kandhamal 16.89 5.00 3.00

16 Raygada KBK 15.37 13.83

17 Sambalpur 16.66 7.50 13.87 4.73

18 Sonpur KBK 12.48 1.00 11.12 0.6138

19 Sundargargh RSVY 20.69 15.53

Capacity building 19.00 19.00

Total 324.67 43.59 252.50 54.5518

Source: Annual Plan, 2009-10, Government of Odisha, Planning and Coordination Department, Bhubaneswar

91 Annual Plan, (2009-10), Op.cit, p.15/13

198

In order to undertake schemes/programmes to be proposed by district plans under BRGF

an outlay of Rs. 32,400.00 lakhs had been proposed for annual plan 2009-10 with a flow

of funds to the tune of Rs.6869.00 lakhs and Rs.5892.00 lakhs to TSP and SCSP

respectively. The action plans relating schemes/programmes under district window of

BRGF will be formulated and implemented at the district level after the same are

approved by district planning committees (DPCs), state government and Government of

India.

Constraints in Implementation of Development Grant Component A persistent shortcoming noticed in the implementation of developing grant component

of BRGF is that no state or district authority has able to indicate to each local government

their respective budget envelope, which is imperative if a meaningful plan has to be

prepared. This indicates that in most states, fiscal devolution to local governments has

been poor, while powers may have been formally devolved to them on paper, funds

remain with line departments and parallel bodies such as DRDAs, while the local

governments remain non-core players in the planning and implementation of

development programme and schemes92.

Another area where there has not been adequate progress is in the envisioning process,

which must precede the preparation of district plans. Most such exercises have been

rather sketchy and no clear vision or long term goals have emerged for districts, which

can guide the optimum application of BRGF funds. For the above reason, the quality of

district plans vary from state to state and even from district to district within the same

state. It can be concluded that truly participative planning through empowered local

governments is still in progress, though BRGF is slowly playing its part in changing the

mindsets and approaches.

92Sukhbilas Barma (2010), Regional Backwardness: Social Consequences and Concerns, ICSSR (ERC) Sponsored Seminar, Organized by Department of Sociology, University of North Bengal, May17th – 19th, p.10

199

Monitoring Monitoring and evaluation of BRGF is important for two reasons. First, it is highly

process oriented. The rigour with which the participatory processes are complied is a key

outcome of the programme, as it affects not only the efficiency of expenditure of BRGF

funds, but also expenditure of other important schemes implemented at the Panchayat and

Urban Local Body level. A good evaluation of BRGF would go beyond merely

evaluating how BRGF funds have been applied-it would be an evaluation of the district

planning process itself. Second, the use of funds are highly flexible and, therefore, a wide

range of physical and quality outcomes are expected from the well considered and

sensitive use of BRGF funds. The implementation authorities have been provided with

the formation on the BRGF website for reporting the physical progress and the status of

utilization of funds received by them. The ministry has framed the Monitoring Guidelines

to effectively capture these nuances of implementation of BRGF. The guidelines have

been circulated to the states with the request to disseminate them among all the planning

and implementation authorities under the programme. The monitoring formats are also

being made available in the Plan-Plus software for entering the data by all the planning

and implementing authorities93. Experience of BRGF implementation in west Orissa is no

different from that in other states; rather the performances are worse in some districts.

5.3 The Gopabandhu Gramin Yojana (GGY) The government of Odisha have also launched “The Gopabandhu Gramin Yojana

(GGY)” during the year 2006-07 with a view to providing additional developmental

assistance to the targeted 11 additional districts including Bargarh and coastal districts

which are not covered under the Backward Region Grant Fund (BRGF). The scheme will

continue during the 11th five year plan 2007-12. The GGY shall be implemented in the

following 11 districts (i) Angul (ii) Balasore (iii) Bargarh (iv) Bhadrak (v) Cuttack (vi)

Jajpur (vii) Jagatsinghpur (viii) Kendrapada (ix) Khurda (x) Nayagarh and (xi) Puri. The

93 Sukhbilas Barma (2010), Op.cit, p.11

200

details of achievement under GGY for the year 2008-0994 (up to 31st December 2008 are

given in the table).

Table: 5.11 Achievements under Gopabandhu Gramin Yojana (GGY) for the year 2008-09

(up to 31/12/2008)

Sl.No Districts Amount

Available

EXPENDITURE Villages

Covered

Mandays

(In Lakhs) (NO OF PROJECTS)

BIJLI SADAK PANI OTHERS TOTAL

1 Angul 1222.80 (3) 521.50

(565)

(53) 521.50

(621)

351 2.19

2 Balasore 1458.81 1.80

(1)

290.74

(717)

(6) 292.54

(724)

597 0.81

3 Bargarh 1291.52 (3) 675.50

(300)

26.08

(33)

12.10

(16)

713.68

(352)

266 1.75

4 Bhadrak 1494.21 7.20

(6)

1002.36

(632)

6.50

(2)

1016.06

(640)

574 2.90

5 Cuttack 1433.04 (1) 403.87

(320)

(9) 403.87

(330)

2.31

6 Jagatsinghpur 1099.20 45.40

(30)

559.50

(551)

604.90

(581)

503 4.75

7 Jajpur 1193.04 12.78

(52)

648.41

(759)

661.19

(811)

83 2.85

8 Kendrapada 1364.68 395.99

(266)

0.20 396.19

(266)

266 3.36

9 Khurda 1041.45 475.70

(1116)

475.70

(116)

3.93

10 Nayagarh 1579.50 653.00

(553)

120.50

(73)

7.00

(9)

780.50

(635)

110 6.69

11 Puri 1480.00 685.50

(662)

685.50

(0662

4.78

12 Admn Cost 27.50 27.50

Total 14685.75 67.18

(96)

6312.07

(6441)

153.08

(176)

19.30

(25)

6551.63

(6738)

2750 36.32

Source: Annual Plan, 2009-10, Government of Odisha, Planning and Coordination Department, Bhubaneswar The principal objective of the scheme is to provide additional development funds to the

targeted districts to provide infrastructure consisting primarily of Bijli, Sadak and Pani

94 Annual Plan (2009-10), Op.Cit, p.15/14

201

(i.e. electrification, roads and water supply) to every revenue village in the identified 11

districts. Some of the specific projects which could be taken under this yojana would be

in the nature of construction of concrete roads within the village, construction of black

topped/concrete roads to connect a village with the nearest PMGSY or ODR road,

installation of street lights within the village for which the maintenance is to be borne by

the concerned Gram Panchayat (GP), provision of drinking water supply and creation of

irrigation sources. The additional development funds provided in this yojana would be of

united nature and supplement the programmes, which are already available in the

aforesaid sectors and provide convergence to the different development programmes.

Each targeted district shall be provided with additional development assistance to the

extent of Rs.10 crores per annum during 11th five year plan. An outlay of Rs. 16,500.00

lakhs has been proposed for the annual plan 2009-10 with a flow of funds of Rs.1029.00

lakhs and Rs.3101.00 lakhs towards TSP and SCSP respectively95.

5. 4 Special Central Assistance for TSP Areas

Special Central Assistance (SCA) is being received from the ministry of tribal affairs for

implementation of programmes under Integrated Tribal Development Agency (ITDA),

Modified Area Development Approach (MADA), Micro Projects Clusters (MPCs) and

Dispersed Tribal Development Projects (DTDP) for development of scheduled tribes. An

amount of Rs.10184.00 lakhs had been proposed for 2009-10 for the programmes under

SCA as per schemes given below. The achievements under scheme for the period from

2001-03 to 2008-09 (up to 31/12/2008) are given in the table 5.12.

i. Integrated Tribal Development Agency (ITDA)

The tribal sub-plan (TSP) approach was adopted with effect from the 5th five year plan.

118 blocks with more than 50% tribal population in the state were brought under the

tribal sub-plan. There are 21 integrated tribal agencies in the state which implement

different income generating schemes and infrastructure development programmes

incidental to income generation. A sum of Rs.7543.00 lakhs have been proposed for the

95 Ibid, pp.15/15-15/16

202

year 2009-10 for the activities of integrated tribal development agencies out of SCA

receivable during the year.

ii. Modified Area Development Approach (MADA)

The Modified Area Development Approach (MADA) was evolved towards the end of the

5th plan with a view to bringing the tribal population living outside tribal sub-plan areas

under the fold of integrated approach to development. 46 MADA pockets having

population 10,000 or more each with more than 50% tribals are functioning outside the

tribal sub-plan area of the state. An outlay of Rs.700.00 lakhs had been proposed under

this scheme for the year 2009-10. Out of SCA for implementation of income generating

schemes of the same pattern of ITDA and infrastructure development schemes through

the blocks.

iii. Cluster Approach

During 7th plan the cluster approach was adopted for contiguous areas outside the tribal

sub-plan area having a population of 5000 or more of which more than 505 are tribal’s.

There are 14 cluster pockets, which cover parts of 13 blocks in 10 districts. Different

community benefits oriented schemes and individual benefit oriented schemes on the

same pattern in ITDA are implemented for the benefit of the tribal household living in

these clusters. An outlay of Rs. 70 lakhs had been proposed in the Annual plan 2009-10

out of SCA.

iv. Micro Projects

17 micro projects are functioning in the state for all round development of 12 primitive

tribal groups. These primitive tribal groups are given full subsidy for individual and

family benefit schemes. An outlay of Rs. 200 lakhs had been proposed for the scheme in

the annual plan of 2009-10 out of SCA.

203

v. Dispersed Tribal Development Projects (DTDP)

Tribal population is dispersed throughout the state and living in areas outside ITDA,

MADA, Cluster and Micro Project areas are covered under the Dispersed Tribal

Development Project (DTDP) and assisted with beneficiary oriented scheme. The

programme is being implemented by the Odisha state Scheduled Caste Scheduled Tribe

Development Finance Cooperative Corporation Limited. An outlay of Rs. 1600.00 lakhs

has been proposed for this scheme in the annual plan 2009-10 out of SCA.

vi. ITDP Monitoring, Evaluation and Cooperation

Several development and welfare measures are being operated for the upliftment of the

socio-economic status of tribal’s of the state. These measures aim at bringing about the

standard of living of tribal population at par with other people of the state. To develop

appropriate programmes/projects/policy options that will help enhancing the standard of

living of tribal’s and to ensure their participation in development programmes, it is

essential to undertake timely monitoring an effective evaluation of the programmes. For

this purpose a sum of Rs.15 lakhs has been proposed in the annual plan 2009-10.

vii. Cooperation

There are tribal cooperatives under the Tribal Development Cooperative Corporation

(TDCC). For grants-in-aid for processing of minor forest produce through tribal

cooperatives under TDCC, a sum of Rs.56 lakhs has been proposed in the annual plan

2009-1096.

5.5 Grants under Article 275(1) of the Constitution

The next initiative is to bridge the critical infrastructure gaps in identified sectors in the

TSP areas out of the grant-in-aid received under article 275(1) of the constitution. The

Ministry of Tribal Affairs, Government of India provides grant-in-aid as SCA to the state

under first provision of Article 275(1) of the constitution for creation of infrastructure in

TSP areas and for setting up of model schools. An outlay of Rs. 4480 lakhs has been 96 Ibid, pp.15/16-15/17

204

proposed for 2009-10 for creation of infrastructure in TSP areas as well as setting up of

model schools. The achievement under the scheme for the period from 2002-03 to 2008-

0997 (up to 31/12/2008 are given in the table 5.12).

Table: 5.12 Achievements under Special Central Assistance (SCA) to Tribal Sub-Plan (TSP) &

Article 275(1) (up to 31st December 2008)

Year SCA to TSP Article 275(1)

Financial Component Physical Achievement Financial Components No.

Of

works

completed

Amount

released

Expenditu

re

incurred

No.

of

beneficiaries

covered

No.

of works

completed

Amount

released

Expenditure

incurred

1 2 3 4 5 6 7 8

2002-03 6495.30 6495.30 53014 12121 3641.60 3641.60 217

2003-04 6184.94 6184.94 53373 1229 2830.00 2830.00 338

2004-05 7578.63 7578.63 42988 1361 4346.98 4346.98 1015

2005-06 6673.96 6673.96 69405 999 4445.48 4445.48 1247

2006-07 7829.33 7829.33 82367 1291 4029.11 4029.11 1312

2007-08 7400.00 6097.48 58516 1182 3428.39 1263.21 618

2008-09 9790.50 4848.00 41680 604 4129.73 2371.13 377

Total 51952.66 45707.64 401343 18787 26851.29 22927.51 5124

Source: Annual Plan, 2009-10, Government of Odisha, Planning and Coordination Department, Bhubaneswar

97 Ibid

205

5.6 Regional Imbalance Enquiry commission The eight initiatives is the establishment of the Regional imbalance enquiry commission

headed by Justice S.K.Mohanty (Retd.). It graded all CD blocks on a development scale

and suggested measures to reduce regional disparities. The commission has been

established with a view to

(i) Conducting free and fair investigation into the existing regional imbalances in the

development process of the state and its trends in terms of different socio-economic

parameters like agriculture, infrastructure, development, poverty, health care,

literacy, population, employment etc.

(ii) The cause of simmering discontent among people of different areas of the state and

(iii) Suggesting suitable measures to address the existing regional disparities and

equitable and balanced development of all the regions. In the meantime the

commission has submitted its final report to the state government98.

The Chief Minister had announced the setting up of this commission in February 2004.

The state went to the polls after 2 months. In the same year and same month too, the

Chief Minister has also laid the foundation for the establishment of three medical

colleges in the backward Western Odisha. The medical colleges were to be located one

each in Bolangir, Kalahandi and Sundergarh districts respectively. Doled out as poll gifts

the three medical colleges promised better health services for the people of backward

western Odisha. In the meanwhile, many years have passed the medical colleges are yet

to see the light of the day. None of the medical college is off the ground yet. However, in

the meanwhile, during the same time period, three medical colleges in the private sector

have come up in and around the capital city of Bhubaneswar. In a related development

during the same period public demands for the establishment of medical colleges in two

major centres-Balasore and Baripada in northern Odisha have snowballed into a public

movement.

98 S.K.Mohanty Commission Report (2004), Govt. of Orissa, Bhubaneswar

206

However, the reactions of the government to the demand of the people of north Odisha

have remained largely cool and indifferent. On the other hand, as if rubbing salt into the

injury, the government decided to upgrade the Capital hospital at Bhubaneswar into a

full-fledged medical college. It is a admitted fact that development in education and

health sector is intimately linked to the overall growth and prosperity of a particular

region. The Chief Minister is having with him not one but two copies of the report of

Justice Mohanty Commission. However, it is not known, whether the Chief Minister has

had the time to go through these reports. But, if the Chief Minister looks little deeper into

the issue of medical colleges and analyzes the resultant disappointment among the people

of western Odisha, he would definitely understand as to where lies the route of the

regional imbalance, even without having to read the commission’s report.

These of course do not apply to the present regime alone. All the previous governments

since independence have to share the scene and can be held guilty of contributing to

regional imbalance. Neither any political party nor any political group, whoever tasted

power can absolve itself of the charge of perpetuating lopsided growth depriving the

backward regions of their share thereby perpetuating the irritating backwardness and

deepening the feeling of alienation. The commission has directly and indirectly blamed

the insensitive, hollow governance for the present crisis. By recommending the formation

of special councils or boards for better administration of different backward and border

areas, the commission has cast serious doubts over the efficacy of the existing system99.

The panel dropped enough hints that the present system of governance is not adequately

equipped to sand up to the issue of regional aspirations. The commission has also

suggested total revamping and more importantly reorientation of the planning board to

address the issue of balanced regional development. The degree of failure in answering

balanced and equitable development can be measured from the fact that the commission

identified 40% of 314 blocks as either backward or extremely backward100.

99 Ibid 100 Ibid

207

5.7 Ghadei Commission Report The Committee on the Constitution of Separate Development Board in Odisha set up by

the Government of Odisha and chaired by former planning minister P.C.Ghadei in 1994.

The Committee listed all 314 blocks of Odisha according to a development index based

on 13 socio-economic indicators: population density, percentage of agricultural workers

to total men workers, net area sown per agricultural worker, percentage of net area

irrigated to net area sown, cropping intensity (percent), literacy (percent), number of

primary schools per lakh population, percentage of village connected with all weather

roads, percentage of village electrified, percentage of problem village provided with safe

drinking water facilities and number of medical institutions per lakh of population. The

committee had submitted its report on 27th September 1994. According to this report out

of total 314 blocks in the state, there are 75 developed blocks, 70 are developing 87 as

backward and 82 are very backward. Out of these 82 most backward blocks 32 (out of

total 87) belonged to the western part of the state. Similarly, according to the report 96%

of CD blocks in KBK districts are either very backward or backward. To be specific, 49

CD blocks of KBK district are regarded as very backward and 28 CD blocks are

considered as backward. Only 3 CD blocks i.e. Karlamunda in Kalahandi, Dungiripali in

Sonepur and Podia in Malkangiri are treated as developing blocks. No CD blocks are

considered as developed in these districts. It indicates that there has been no change in the

fortunes of these districts during the last 15 years101.

There may be differences between the committees with respect to recommendations for

the solution to the problems. They were unanimous that lack of political will and apathy

on the part of the government in power has led to this problem. Ineffective, inefficient

governance combined with widespread corruption have only compounded the problem,

which has since been entrenched. The utter insensitivity of the political establishment

towards the hope and aspirations of the people of a particular region and chronic neglect

of the issues affecting people has inhibited and equitable and balanced development is

101 Ghadei Commission Report (1994), Government of Odisha, Planning and Coordination Department, Bhubaneswar

208

also adversely affecting the emotional integrity of the state. On the one, the failure of the

government apparatus to reach out to the people living in the remote interior far from the

power centres and on the other hand inability of the people of those areas to extract the

due from the system owing to lack of education and awareness have created a complex

and sensitive and sometimes volatile too socio-political problems. The issue takes an

exclusive turn when the undercurrent of frustration gradually snowballs into a separatist

movement. It is not that funds are not available for the development of the backward

region.

Table: 5.13 Economic division of Odisha on the basis of Ghadei Commission: Reports district

wise categorization of blocks

Sl.No District Developed Developing Backward Very Backward

Category 1 Developed: 1 Cuttack 13 1 0 0 2 Puri 10 1 0 0 3 Khurda 9 1 0 0 4 Jajpur 7 3 0 0 5 Jagatsinghpur 7 0 1 0 6 Kendrapada 6 1 2 3 7 Bhadrak 4 2 1 0 8 Nayagargh 3 4 1 0 9 Balasore 2 3 4 0 10 Ganjam 5 9 7 1 Category 2 Developing: 11 Jharsuguda 1 2 2 0 12 Sundargarh 3 11 3 0 13 Keonjhar 2 7 3 1 14 Dhenkanal 1 2 4 1 15 Angul 1 2 2 3 Category 3 Backward: 16 Sambalpur 0 3 3 3 17 Mayurbhanj 0 3 14 9 18 Kandhamal 0 2 5 5 19 Boudh 0 1 1 1 20 Kalahandi 0 1 4 8 21 Sonepur 0 1 2 3 22 Malkangiri 0 1 5 1 Category 4 Most Backward: 23 Deogarh 0 0 0 3 24 Koraput 0 0 8 4 25 Nabrangpur 0 0 5 5 26 Nuapada 0 0 1 4 27 Gajapati 0 0 1 6 28 Raigada 0 0 2 9 29 Bolangir 0 0 4 10 Total 75 70 87 82 Grand Total No. Of Block 314 Source: Ghadei Commission Report, (1994) Government of Odisha, Planning and Coordination Department

209

The Chief Minister in his usual and anti-centre tirade might accuse Delhi of not providing

enough funds. But the state government has enough funds and plans in place. During the

last 10 years the state government has received Rs.7600 crores for the development of

these districts from the Union government102. Apart from these various international

agencies are also pumping funds to finance different projects in this poverty zone. In

2008, World Bank and other international agencies have committed funds to the tune of

6,000 crores for the state103. The bulk of this amount is meant for the backward region.

So the crux of the issue is not as much a paucity of funds as the proper utilization of the

aids. Even the general public do not compliant about non availability of funds anymore.

On the other hand there are complaints galore about mis-utilization and misappropriation

of funds in different development and welfare schemes. Large scale corruption in the

execution of the Prime Minister Gramya Sadak Yojana and rural electrification are only a

couple of pointers. Corruption in NREGA and World Bank Health Development project

provides some more examples that pathetically demonstrate the loot of public money.

Obviously the causality is development and welfare of the people. It is not only that the

government is failing miserably to utilize funds meant for the improvement of the socio-

economic infrastructure and monitor various schemes to optimise the benefits. It is even

failing to provide basis services to common people.

As a major move towards administrative decentralization the number of total districts in

the state has gone up from 13 to 30. The objective of having the smaller districts was to

take the administration closer to the people. But the reality present says different story.

The administration has failed to reach out to the people. Even in some remote places it is

almost non-existent. One of the principal reasons for such administrative vacuum is large

scale vacancies in the administration. Hundreds of posts including that of doctors,

teachers and engineers are lying vacant. The backward districts have the most vacancies.

Mohanty commission has pointed out that almost 3/4th of the vacant posts belonged to the

backward districts. The commission records that while 40% of Class II posts in backward

102 Ranjit, Guru (2011), Odisha-A decade of missed opportunity,Ama Odisha, p.196 103 Ibid, p.196

210

districts were vacant: other more districts have a surplus. The problems arising from large

scale vacancies are further compounded by acute absenteeism. In some areas, the services

with regard to health, education, public distribution system is in such disarray that it has

put the very credibility of the government at stake. The faith of the common people in the

government apparatus takes a further beating as in most places the grievances redressal

mechanism remains dysfunctional. The commission has suggested that separate special

boards for border and backward districts be constituted104. But this does not hold much

hope because of the frustrating experience KBK authority and Western Odisha

Development Council. The powers that be at Bhubaneswar continue to be apathetic even

as the movement for a separate Koshal state slowly but steadily gains momentum.

To mitigate popular discontentment in the area over discrimination and appeased agreed

people Western Odisha Development Council was set up. But the new body turn out to be

a damp squib. The council neither an elected body nor having any autonomy has failed to

fulfil the hopes and aspirations of the people of the region. Committees, commissions,

councils or for that matter anybody may be constituted, but no issues are addressed there.

The government of the day does not understand and fails to appreciate the sentiments as

well as the collective feeling of neglect and address the regions grievances with sincerity

and sympathy. The western part of the state is thus victim of unequal development and

obviously this leads to a sense of alienation amongst the people of these regions. The

demand for Koshal state renting the air in the western region. The people are

disillusioned with the present arrangement and fail to see any future in it.

There is growing realization within the government that there is underdevelopment and

backwardness in the western part of the state and that is why it has started implementing

various welfare plans and programmes in the concern region. It has also started many

public policy intervention as well as set ups regional imbalance enquiry commission and

western Orissa development council to address the problem of under development and

regional disparities in Orissa. In spite of all these measures the pace of development in

104 Mohanty Commission Report (2004), Op,cit, p. 131

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the region is far from satisfactory. The region is at the backward part of the state and the

planners and policy makers are sitting at Bhubaneswar and planning for the region with

which they are not fully familiar. They are still under the national development fund

which is at Delhi and still farther and more unaware of the needs and aspirations of the

people of this region. So it is because of poor planning and ignorance of the people the

needs and aspirations of the region that the true benefits are not reaching the region.

There have been instances when the full amount has not been fully utilized. So the point

is not of sanctioning special grants or establishing new departments but the question is

proper utilization of funds and resources.

These have to be utilized in such a way that there is development of the western region is

confirmity with its needs. The Koshal movement was the manifestation of some sort of

frustration at the lagging behind of the region and a feeling that if a separate statehood is

provided to them then the planning would go into the hands of those who are genuinely

aware of the needs and demands of the region. So the present system of planning is the

biggest source of corruption105. Large funds are allocated for development work in the

plans. Then in those funds, if a road, bridge, health centre, school or any other project is

to be built commissions are allegedly sought and given to officials and through them to

the ministers of the government. Though a number of plans and programmes were being

implemented for the development of backward area not much of a dent has been made in

the poverty of the western region. The rising population and the increasing pressure on

the resources along with negligible employment opportunities, have forced the people to

move out of the region to eke out their livelihood. For the success of the development

schemes and plans and to avoid alienation of the masses it is essential that grass root

people should be involved in the preparation and implementation of the development

plans. The sense of deprivation will go on increasing unless the people are made a part of

this developmental programme.

105 Pradeep Kumar, (2000), The Uttarakhand Movement: Construction of a Regional Identity, Kanishka Publishers, New Delhi, p.134

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5.8 Koshal in Western Odisha Public Sphere The issue of Koshal sentiment has already raised the awareness and debate in the public

sphere. Despite the fact that progress has been slow on this front the extent of awareness

on the Koshal issue has definitely increased. There is clear understanding among the

common people about the main issues i.e. backwardness and underdevelopment leading

to marginalization through dispossession from forest, land and culture. It is in this context

that support for the Koshal cause of a separate state is going to become a political

compulsion for all political parties. A look at movement’s leaders, workers, and party

programme however suggest that the intensity of the awareness is more in urban areas

than in rural areas. Currently the movement is largely urban phenomena mostly felt in the

urban areas.

Its workforce is comprised largely of urban youth. The rural masses are yet to be

involved in any significant way. It draws its support from the people who generally reside

in the urban or semi urban areas. This has largely occurred because the Koshal leaders

continue to mobilise in urban and semi urban areas. The analysis of the support base of

the movement suggests that mostly the youngsters are supporting the Koshal movement.

This has happened because the younger generation see the formation of a separate state as

a solution to their problems such as unemployment and education. However, the response

suggests that the people of western Odisha do not fully endorse all the demands of the

movement. Like some people are not in favour of the bifurcation of the state as claimed

by leaders. Thus the partial support to the movement is high. Similarly very few people

support the argument that the people of coastal Odisha are responsible for everything that

happens to the western part of the state.

The people’s perceptions about the major problems of the region are under development,

poverty, unemployment and disease. Most of the people of the Koshal region feel that the

step motherly treatment is meted to their region in comparison to other regions. This

impression has taken firm root due to persistent mobilization of the people by the local

elites. As happens in all sub-regional movement, the role of local elite in sustaining

certain point of view regarding their conditions cannot be ignored. Most of the

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respondents were in favour of bifurcation of state on the basis of region. They feel that

bifurcation of the state will mitigate their problem and brought the desired development

of the state. Thus the pattern of political mobilization has revolved round the issue of the

western regions neglect at the hands of the coastal regions.

5.9 Perception of Coastal Region

The leaders of coastal Odisha wish away the demand for separate Koshal state as a non-

issue raised by some disgruntled politicians to score political mileage. Some also

remarked that it is the handy work of some people who do not have political or social

base in western Odisha. The Koshal movement is the indication of a divisive force and is

preached and spread by vested political interests. According to them, it does not represent

a genuine case of distinct identity. There have been arguments that acceptance of demand

of separate statehood of Koshal movement will result in loss of administrative efficiency

and come in the way of integration of the state. It will upset the larger interest of Odia

nationalism and Odisha as a unified state. They reject the demand of the Koshal

protagonist for a separate Koshal state on the basis of Koshli nationalism and Odisha as a

bilingual state. Most of the Odia intellectuals have articulated that it is just a dialect of

Odia and is not strong as the Odia language. The language does not have a reach

vocabulary and has a distinct style.

In the context of under development across the districts in Odisha, it may be noted that

the growth process cannot be inclusive without reducing different types of disparities. It

is not that specific programmes targeting the weakest sections and the under developed

regions have not been taken up in the state. But they have never yielded desired results.

There have always been gaps in envisaged goals and actual realization in various

programmes launched by both the government of India and the state government from

time to time.

The region differs in resource endowment and for historical reasons, also differs in terms

of development of infrastructure base. Without the state intervention, the market driven

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growth forces in any economy leads to a skewed development pattern. This happens

because under market forces investments tend to gravitate towards the region that are

already developed and therefore provide better infrastructure and other supporting

services. In view of this, in all welfare states, it is expected as a state policy to pursue a

development process that reduces regional disparities in development. While the

historical process and the natural resource endowments place different regions in

different levels of development, the market mechanism has an inherent bias towards the

regions which are already developed and therefore have improved infrastructure base,

skilled manpower, resource and effective market support.

There are thus important issues which are pertinent while addressing to the problems of

regional disparities, whether at state level or desegregated district level. The first issue

relates to the flow of funds into different regions. The existing practice very often is

based on political consideration with major part of flow of funds determined by dominant

pressure groups of different regions. The flow of funds needs to be directed bypassing the

pressures. Important source of public funds flowing to districts are plan and non-planned

budgetary provisions of the state government, budgetary provisions of government of

India for central and centrally sponsored plans, schemes and investments made by state

and central PSUs. Out of these, funds flowing through non-plan budget are normally

meant for maintenance of the development already achieved and not for new

development initiatives. Likewise PSU investments are decided on the basis of overall

state or national level considerations. Therefore, flow of funds from these two sources is

either not relevant or not amenable for subjection to regional disparity consideration.

The flow of funds from the rest of the sources, determined by the State and Central

government, though amenable is rarely based on the objective of reducing regional

disparities. On the contrary, flow of funds from these sources further accentuates

development disparities with more funds allocation for the regions that are already

developed and getting higher flow of private investments. A reversal of the approach is

necessitated particularly in respect of state plan which accounts for the major part of the

flow of funds flow to the district and over which state government has its control. This

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calls for earmarking of greater portion of the state plan funds both in the district sector

and the state sector sides for backward and very backward districts. In case of Central

planned schemes government of India should be persuaded to take note of the regional

disparity, concern of the state government and accordingly ensure higher funds provision

for backward region. The flow of funds to different regions may be undertaken following

a scientific procedure that ensures a balanced regional development.

The other issues relate to the efficiency of public investment, which is basically a

problem of governance. There may be many backward regions where a number of

programmes are being implemented with massive public investment that are rendered

ineffective due to huge leakage of funds at different levels. Another pertinent problem is

the continuance of a dual system of governance i.e. through the officers of All India cadre

and also through the officers of states own administrative and professional cadres. The

consequences of such a system of governance are many. Therefore restructuring the

system of governance is required.

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Conclusion

The formation of political party with a strong regional base is one of the major events in

the process of regionalism in Orissa politics. There is a need to understand the politics of

regionalism within the framework of democratic processes. It is so because the group or

an interest group makes its presence felt and can realize its goals through the

instrumentalities of democracy. The formation of a political party is one such burning

example. The regional articulation also attempts to realize its goal of a separate statehood

through a political party. If one goes deep into the history of regionalism in India, one

would find that the first major event that preceded the formation of a separate state is the

presence of a political party based on regional bias. It is only through the political party

that the regional aspirations can be realized in a democratic polity. In this context, we

must concede to the fact that the regionalism is broadly an act of politics. We can take an

example of Telangana movement which has become not just a regional issue but a

national one. The emergence of Telangana Rashtriya Samiti is one burning example of

how statehood movement is realized in a democratic polity. After the TRS emerged as a

dominant political actor in Andhra Pradesh, it realized its ambition in realizing close to

its goal. In the case of Jharkhand statehood movement also, Jharkhand Mukti Morcha

played a significant role in realizing the goal of a separate state called Jharkhand.

Hence in a democratic polity the ambition of a separate statehood cannot be realized only

through the intellectuals, students and other organizations. The Koshal movement as of

now is a movement and has no political party to reckon with in pursuing the goal of

achieving a separate state called Koshal. In a democratic framework, one can argue, the

movement can succeed only when a political party is formed with a strong regional bias

and it gradually became an important player in the politics of the state. In Koshal region

of Odisha no such party exists with a strong regional bias capable enough to influence the

politics of the state.

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As we have discussed in the preceding chapters, the current movement for the Koshal

statehood has no direct political support and the newly formed political party called

Koshal Kranti Dal is in an infant stage.

As discussed in the preceding chapters, the issue of regionalism is not a new

phenomenon. Regionalism in Odisha emerged in the early 1960s. There was political

under representation of the western region in the state Assembly. Through the issue of

regionalism is ever present in Orissa, it has not moved for the realization of its goal. The

Koshal movement in Odisha has no strong political party and mostly leaderless and no

political interest. It has not come up to the stage of influencing the politics of the region

concerned and in Orissa politics as a whole. In such a scenario, it would be difficult on

the part of the movement to influence and control the political imagination of Koshal

region. It is clear from some of the interviews that the researcher conducted during the

field study indicates that the leading members of the movement are for a separate state

for Koshal. But as far as its impact on state government is concerned it remains a

symbolic one. The movement is raising some of the genuine issues of the region though it

is yet to become a political force in the region. One can argue that at this point of time the

movement is not in a position to influence the state government on the issue of separate

state. Another conclusion one can draw from these features of the movement is that it is

gradually giving rise to some sort of awareness among the people of the region on the

issues of regional deprivation.

Regionalism or regional consciousness develops from a sense of identity with a

geographical area corresponding to a region in the sense of cohesive area homogenous in

certain selected defining criteria. The significance of such a consciousness can be hardly

overlooked in historical, political and sociological studies. It is a social reality that

survives in a geographical background and involves such matters as autonomy and

administrative decentralization, the cult of homeland and earth and local patriotism. In a

general sense, it may be viewed as a reaction against any exaggerated or oppressive form

of centralization. Apart from geographical factors, others factors which lay at the root of

regionalism are economic or class interests and certain ethnic factors.

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In her long history, India had essentially a cultural not political identity. Different

geographical regions had developed distinct cultures over a long period. The realization

of this truth inspired the Indian leadership to champion the cause of the regions with a

view to leading a unified struggle against the alien rule in the course of its movement to

achieve freedom and to work out a broad framework of unity for the diverse peoples of

India. The demand for constitution of linguistic provinces put forth by the Indian

National Congress in the inter-war period was an effort in this direction. The diversities

of India do not exclusively relate to language. The demand for the recognition of regional

language as the basis of administrative and political units gave rise to similar demands

based on ethnic and other social factors. Such demands proved very much disturbing and

a vexed issue in Indian politics in the post-independence era and involved the problem of

restructuring the federal system over and over again. On being pressed too much by

persistent popular agitations, when the Union Government conceded to such demands in

one part of the country, the decision had its repercussions in other parts of India so much

so that the viability of the units of Indian federation have been put under serious strain.

Added to this is the problem of dislocation of minority groups as a result of linguistic

reorganization of the states. In this context, regionalism has been the motive force for

identity formation and basis for political competition106. The regionalist movements in

the Indian states, particularly in the bigger ones, may be viewed in this perspective.

The highland-versus-the plains conflict in Orissa is some of the important examples of

such a tendency in Indian politics. Such a cleavage in the politics of Indian state and the

question of political integration that it raises constitute the focus of the present work

based on a study conducted in the state of Orissa.

As discussed in the preceding chapters, it is the historical background which contained

the seeds of regional imbalance in the state. It was observed that the basis of disparity

between princely ruled states and the regions which were directly under the British rule,

between hilly areas and plain areas, between rural areas and urban areas are primarily

106 R. N. Mishra (1984), Regionalism and State Politics in India, Ashish Publishing, New Delhi.

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historical. It can be attributed to differential interest of colonial power in different

regions, variations in state intervention across regions after independence and

differentiated resource base of the region. Despite its rich endowments, Orissa is

considered one of the most backward states in the country. Regional imbalance turns out

to the cause and effect of such backwardness. Large tracts of the state under feudatory

rule were a hindrance to development of markets.

The scarcity of resources and operation of socio-political factors at the district and

regional level as in the case of different states of the country, the districts of Odisha are

found to be unevenly developed as per states development standards. The state has its

own so called its backward and forward districts as per the state parameters of

development. However as the so called background districts of state relatively feel more

deprived than the advanced district of Orissa in the on-going development process of the

state economy. There is a regional undercurrent of dissatisfaction which has taken the

form of a sub-regional Koshal movement. As there is a distinct gap in the educational,

economic, health and agricultural achievement of these different groups of people in the

state due to historical reason since British period and the present plan development

strategy in a mixed economy set up has failed to bridge the existing gap, erupting of

regional discontentment has taken an intermittent form since the time of independence.

Usually the people belong to the western part of Orissa consider themselves more

backward than the people of coastal districts. The districts of western Orissa are highly

underdeveloped in spite of the rich deposits of mineral resources. The various

government of the state have virtually done very little to accelerate the pace of socio-

economic development in these very districts. The very nature of the political economy in

the state has perpetuated the trend of such regional inequality. This has led to the growth

of sub-regional consciousness among the people of western Orissa. The preceding

chapters reveal that western Orissa once forming a part of south Koshal and now named

by some as Koshala, had history of its own. This region has remained underdeveloped

and economically unstable in spite of rich natural, mineral, cultural and human resources.

The mineral resources remained unexploited for long years and now they are exploited in

a manner that harms the health and the economy of the locals. Indiscriminate

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industrialization has caused large scale displacement of families leading to terrible human

misery. The average agricultural food grain productivity in this region is lower than in the

coastal region. The region has lower level of irrigation of agricultural land compounded

to the coastal region. Planned development of the natural resources of this region has

been neglected even after independence and this is the root cause of poverty of the people

of this region. Educational development of this region, the foundation of all development,

has also not been given the attention that was needed.

A region that was historically backward in education, should have received more

attention in a planned economy. But in reality the reverse has happened. The position in

education sector is no better. In terms of number of government colleges, universities,

medical colleges and other technical and professional colleges is very low in comparison

with the coastal regions of the state. And it lags behind in literacy rate as well.

About two decades after this region became a part of the newly created state of Orissa

and about a decade after independence, the euphoria which the people of this region felt

in the aftermath of the formation of the new state began giving place to a sense of

disappointment and frustration. This sense, growing in intensity year after year, has of

late, given rise to a feeling that the solution to all the economic, educational and

developmental problems of the region is the formation of a separate state of Koshal

comprising the region now known as western Orissa. This feeling has been sharpened by

the creation of smaller states like Chhattisgarh, Jharkhand and Uttaranchal in the year

2000. Different political organizations have been formed in different districts of this

region which have come forward with a demand for creation of separate state of Koshal.

The regional mobilization in western Orissa has given birth to two broad trends i.e.

autonomist and separatism. The autonomist trend has emphasis in more development

schemes and equal development like western Orissa development council, alleviation of

poverty and extension of facilities available to coastal Orissa and establishment of a

bench of High Court etc. They strongly advocate that the distinct regional identity of

western Orissa should be recognized by the state government and the people of coastal

Orissa. On the other hand, the separatist’s trend has been demanding for a separate

Koshal state comprising western Orissa districts.

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The advocate of separate Koshal state has been raising the issue of perennial neglect to

the western region by successive government led by coastal leaders. Some separatists like

P.R.Dubey, an advocate from Sambalpur launched a ‘Koshal Party’ in 1991. He

undertook a Koshal Jana Jagran Yatra throughout western Orissa to mobilize support for

a separate Koshal state. The Koshal party, Koshali Ekta Manch, Koshal Liberation Front

and Western Orissa Liberation Front strongly supported the movement for separate

Koshal state.

The separate Koshal state protagonists demanded inclusion of eleven out of thirty

districts in it. The Pro-Koshal leaders also alleged growing economic disparities between

coastal and western Orissa citing it as a glaring example of constant neglect to this

region.

This constant neglect to the aspirations of their region is hurting the sentiments of the

people of this region. People in western Orissa are unhappy because a bench of Orissa

High Court, a long standing demand, has not been established in western Orissa resulting

in continued hardship for the poor people of this region. They are further, unhappy

because the western Orissa development council, constituted in response to the demands

of the people is still functioning from the state capital. The council, neither an elected

body nor having any autonomy has failed to fulfill the hopes and aspirations of the people

of the region. Other issues like non-recognition of Sambalpuri language and culture to a

distinct status, absence of any central university or IIT, non-establishment of an

institution like the All India Institute of Medical Sciences and not providing proportionate

benefits to the people of this region are agitating the minds of the people of this region

and providing fuel to the desire for creation of a separate state. The educated people of

the region have also been disturbed by a tendency of the state leaders in giving preference

to installation of statues of either central or state leaders in naming institutions, streets,

roads and markets after the same leaders neglecting the role of regional or local leaders.

The attitude of Oriya literature to Sambalpuri (Koshali) language and the reluctance of

people and officers of coastal region to learn and speak the local language even after their

long stay in the region has been another irritation for the supporters of the movement.

The supporters of the movement scoff at those who sometimes brand them as

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secessionists or separatists. They term these people as traitor, for turning a blind eye to

the wishes and aspirations of the people of this region and for continuing to perpetuate

injustices and inequalities within the state. Sometimes they also brand such people as

exploiters and for their colonial or step motherly attitude.

Whatever the arguments on both sides, the fact is that the spread of education and of

political consciousness among the people of western Orissa, awareness about the distinct

identity-physical, social, historical, cultural, linguistic and economic of the region has

created among them. And the amity and good understanding that existed between the

coastal regions earlier is fast disappearing.

It is observed that the media coverage on the issue has shown a declining trend resulting

in a lower intensity of the agitation. Each of the media houses are affiliated to different

political parties. In the print media all major newspaper are owned by the coastal people

and the regional content published by them play a vital role. Unlike the electronic

channels the print media also got political affiliations. Therefore the media coverage to

the issue of statehood is very negligible. Western Orissa media infrastructure is weak. It

is dependent on pamphleteering tradition. Issues relating to demand for statehood in some

cases telecasted in western Orissa but not in coastal or mainstream areas.

The method of mobilization is largely depended on individuals, small organizations and

circulation of pamphlets, community site-through internet creating awareness through

Koshal culture, festivals, food, dance and drama. Getting access to internet is limited and

socially well off and educated people are part of these community sites. Broadly speaking

this movement is led by like elsewhere in the world educated upwardly mobile,

economically well off and highly educated people. That is why there is argument in the

mainstream media largely emanating from the coastal part of Orissa that this movement

is led by handful of individuals for their personal political interest. It is a fact that in the

initial phases of any movement for statehood, the common people do not participate.

They participate gradually as mobilization and awareness spread. But the fact of the

matter is that many meetings, rallies, blockades, various means of agitation have been

frequent in these days and this is giving rise to the participation of the even poorest of the

poor in the region.

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Some individuals are working hard building organizations, spreading the awareness

regarding the statehood movement. They are trying to bring the notion of Koshal state

into the political domain. The leaders are also divided on various lines which are creating

various challenges to build up a unified movement for statehood and viable force. Over

these years the Koshal sentiment is growing in the hearts of the people in this region,

however the same have not been converted into votes. Hence this has not become a viable

political force to reckon with in the region. Most of the leaders with huge mass support or

mass base are already in the national political or dominant political parties like Congress,

BJP and BJD. They are not openly opposing the movement for statehood and often

remain mute on this particular issue.

In the course of time, Biju Janata Dal (BJD) has started spreading its political base and

winning elections, creating membership for the party in all parts of Orissa. In this context

one would find that the MLAs of BJD cannot revolt against the leadership of the party

which is largely controlled by the leaders of the coastal region. The issue of separate

statehood is not in the agenda of major political parties. It is also argued by some of the

people that they have secret informal organizations to improve their political futures

which often accommodate the Koshal sentiments. The support for the movement could be

traced among the educated and rich people across social groups. In the initial phase’s

leaders and individuals from the dominant castes jumped into the movement. The people

from the backward class were initially reluctant to go ahead with the movement and the

people who were leading the movement but they joined hands lately.

The issue of Koshal sentiments has already raised the awareness and debate among the

public sphere. Despite the fact that progress has been slow on this front the extent of

awareness of the Koshal issue has definitely increased. A look at movement’s leaders,

workers and party programme however suggests that the intensity of awareness is more

in urban areas than in rural areas. Currently the movement is largely urban phenomena

mostly felt in the urban areas.

Thus, on the basis of the analysis of regionalism in Orissa the following broad conclusion

can be made. In recent times regional discontent emerged in the state of Orissa due to

relatively low level of development in western Orissa. The growth of regional political

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parties, the struggle for power and political polarization along regional lines and the

under representation of western Orissa leadership in government and decision-making

process accentuated regional discontent further. Regional mobilization in western Orissa

has given birth to two broad trends: ‘autonomist’ and ‘separatism’. The former

emphasizes on more development schemes and equal development while the latter

demands formation of a separate Koshal state comprising western Orissa district.