THE ECONOMIC WEEKLY
of t h e ' e m p l o y m e n t offset', (E 0),
w o u l d be
Ec — Eb X 100 = E O *
Co — Cb
W i t h the help o f the above f o r m u l a , a n a t t e m p t has been m a d e i n
T a b l e I V t o calculate E o a t the
end o f the w a r i n r e l a t i o n t o t h e prew a r level. T h i s f o r m u l a c a n serve
o u r purpose o n l y so l o n g as Cc is
g r e a t e r t h a n Cb. F o r instance, i t
w i l l f a i l w h e n the t w o are equal i n
w h i c h case the r e s u l t a n t d e n o m i n a t o r a n d E O become equal to zero.
I t s a p p l i c a t i o n is thus confined to a
single base series r a t h e r t h a n a c h a i n
i n d e x series.
A p a r t f r o m the g e n e r a l i n d i c a t i o n
t h a t d u r i n g the w a r p e r i o d there was
an
appreciable
increase
in
the
volume of employment along w i t h
the rise o f cost o f l i v i n g i n different
i n d u s t r i a l centres, T a b l e I V shows
n o single homogenous t r e n d i n the
r e l a t i o n s h i p between the t w o v a r i a bles. T h e e x t e n t t o w h i c h hardships
i n v o l v e d i n t h e increased cost o f l i v -
December 24, 1955
i n g w e r e n e u t r a l i z e d b y t h e increased
quantum of employment varied f r o m
region to region. To illustrate, f r o m
the v i e w p o i n t o f cost o f l i v i n g alone,
U P l a b o u r was the w o r s t sufferer, t h a t o f B e n g a l b e i n g m o d e r a t e l y
better off,
that of Madras though
least affected over the w h o l e span
o f t h e w a r w a s o n l y s l i g h t l y better
off t h a n l a b o u r i n B o m b a y i n 1945.
However, w h e n l o o k i n g a t e m p l o y m e n t offset, we find t h a t the p o s i t i o n
of B e n g a l w a s t h e w o r s t , the E O f o r
B e n g a l b e i n g 19 as a g a i n s t 38 f o r
U P.
Madras
wage-earners w h o
suffered p r a c t i c a l l y to the same ext e n t as those of B o m b a y on account
o f increased cost o f l i v i n g could
secure the benefit of E O o n l y to the
extent of 37 against 50 in Bombay.
T h u s the r e l a t i v e p o s i t i o n o f wageearners in t h e f o u r regions as i n d i cated b y the r e l a t i v e v a r i a t i o n s i n
the cost o f l i v i n g indices d u r i n g the
course of the w a r was s u b s t a n t i a l l y
a l t e r e d as a r e s u l t of the i m p a c t of
increased e m p l o y m e n t . A t t h e e n d
o f the w a r , B o m b a y
wage-earners
were least affected a n d w a g e - e a r n ers o f M a d r a s w e r e s l i g h t l y w o r s e ;
B e n g a l wage-earners were w o r s t
affected, those of U. P. being o n l y
s l i g h t l y better.
*The a u t h o r i s i n d e b t e d t o t h e l a t e
P r o f . J . N . Das G u p t a f o r h i s g u i dance i n t h e f r a m i n g o f t h i s f o r mula.
Ec = E m p l o y m e n t I n d e x in 1945
Eb = E m p l o y m e n t in 1930; Cc = Cost
of l i v i n g in 1945; Cb = Cost of l i v i n g
I n d e x in 1939; Eo — E m p l o y m e n t
offset.
Views on States Reorganisation -VIII
Bombay as Capital of Maharashtra
G K Cholkar
T H E R E are o n l y t w o proposals o f
practical importance:
(l) B o m b a y as the c a p i t a l of a
new l i n g u i s t i c State, M a h a rashtra, and
( i i ) B o m b a y C i t y as a separate
State b y i t s e l f .
These t w o proposals are n o t o f the
same status. The first is an independent d e m a n d for a new t e r r i t o r i a l
a r r a n g e m e n t . T h e second is a cond i t i o n a l proposal. Those w h o m a k e
i t have n o t h i n g a g a i n s t the e x i s t i n g
a r r a n g e m e n t s . T h e y suggest t h a t i f
t h e e x i s t i n g B o m b a y State is to be
b r o k e n u p f o r f o r m i n g new l i n g u i s t i c
States o f G u j a r a t , M a h a r a s h t r a a n d
K a r n a t a k , the C i t y be dissociated
f r o m t h i s scheme a n d i n c o r p o r a t e d
i n t o a separate State. I t w o u l d also
be t r u e to say t h a t the break-up is
opposed ( b y those w h o oppose i t )
chiefly because i t m i g h t i n v o l v e ass i g n i n g t h e C i t y t o one o f the three
n e w l i n g u i s t i c States.
T h i s m a k e s i t clear t h a t there i s
no need to consider the advantages
o f a separate C i t y State f o r B o m b a y
a s c o m p a r e d w i t h t h e present posit i o n . I t i s necessary t o consider o n l y
t h e disadvantages o f t h e C i t y b e i n g
the c a p i t a l of a n e w l i n g u i s t i c State
a s c o m p a r e d w i t h t h e present position of the City. Against them,
m u s t , of course, be considered
advantages.
the
A p a r t f r o m a d v a n t a g e s a n d disadvantages,
i t m i g h t seem also
necessary to see to w h o m B o m b a y
C i t y "belongs", b u t such a n e x a m i nation would hardly be worthwhile.
In whatever way the future of B o m bay i s settled, t h e C i t y m u s t r e a l l y
" b e l o n g " to the n a t i o n as a w h o l e .
T h e r e is one point, h o w e v e r to w h i c h
attention m a y be d r a w n . The fact
t h a t those w h o prefer a C i t y State
w o u l d equally f a v o u r c o n t i n u i n g the
existing arrangements implies that
t h e y do n o t w a n t a C i t y State because, in t h e i r o p i n i o n , B o m b a y
"belongs" to t h e people of the C i t y .
On the o t h e r h a n d , those w h o m a k e
the o t h e r proposal include m a n y w h o
believe t h a t B o m b a y C i t y "belongs"
to
Maharashtra.
F r o m this, one
conclusion as regards f u t u r e possibilities m a y b e d r a w n . I f B o m b a y i s
made a C i t y State, those w h o consider this " u n j u s t " w o u l d a l w a y s
l a b o u r under t h i s sense of " i n j u s t i c e " .
B u t i f B o m b a y became the c a p i t a l
of M a h a r a s h t r a , there is a possibil i t y t h a t those w h o oppose i t n o w
m a y b e less opposed t o i t i n f u t u r e
t o the e x t e n t t h a t t h e disadvantages
r e s u l t i n g t h e r e f r o m prove to be less
than anticipated now.
1523
T h e disadvantages o f i n c o r p o r a t ing Bombay City in Maharashtra
were v i v i d l y b r o u g h t o u t b y S h r i K
M M u n s h i in a note on " L i n g u i s t i c
Provinces a n d t h e F u t u r e o f B o m b a y " w h i c h h e w r o t e i n 1943 f o r the
D a r Committee.
F r o m t h a t , the
f o l l o w i n g m a y be quoted:
T o annex the B o m b a y C i t y t o
United Maharashtra formed on
l i n g u i s t i c basis, therefore, w o u l d
have the result n o t o n l y of des t r o y i n g the c o s m o p o l i t a n c h a r a c ter o f B o m b a y b u t o f p l a c i n g t h e
non-Marathi speaking population
i n c u l t u r a l subjection.
Those i n charge o f i n d u s t r y ,
trade a n d f i n a n c e i n t h e c i t y o f
o f B o m b a y a n d its suburbs a r e
predominantly non-Maharashtrians
. . . . Serious apprehensions a r e
e n t e r t a i n e d i n v a r i o u s q u a r t e r s reg a r d i n g the possibility of the dom i n a t i o n o f a u n i - l i n g u a l people i n
the l i f e o f B o m b a y C i t y i n case I t
is to be j o i n e d to a l i n g u i s t i c p r o vince.
If
Bombay City is hande d o v e r t o M a h a r a s h t r a alone, t h e
C i t y . . . . w i l l lose i t s m u l t i - l i n g u a l character, i t s t r a d e , i n d u s t r y
a n d commerce w i l l b e seriously
affected; a n d the n o n - M a r a t h i
THE ECONOMIC WEEKLY
December 24, 1955
s p e a k i n g m a j o r i t y w i l l b e subjected
t o t h e p o l i t i c a l d o m i n a t i o n o f aggressive l i n g u l s m .
These a r e very serious m a t t e r s .
I n regard t o them, t w o observations
m a y b e made. F i r s t , a s s u m i n g t h a t
the p r o t a g o n i s t s o f a n e w M a h a r a s h t r a State include some m i s c h i e f
mongers, t h e r e w o u l d h e others w h o
are a s anxious t o a v o i d results o f
the k i n d apprehended b y S h r i M u n s h i
as he h i m s e l f is. Secondly, it is n o t
r e a l l y a question o f w h a t M a h a r a shtra would do to Bombay City but
w h a t a n y State G o v e r n m e n t c a n
c o n s t i t u t i o n a l l y d o t o d a m a g e the
economic l i f e of a c i t y or to violate
the rights of cultural minorities. T h i s
l a t t e r p r o b l e m is a v e r y i m p o r t a n t
p r o b l e m a n d i t was discussed f r o m
an all-India point of view by a
B o m b a y journal, the Tata Quarterly,
l o n g before t h e f i e r c e controversies
r a i s e d by States R e o r g a n i s a t i o n p u t
these i n t o c o l d storage f o r the t i m e
being.
H i n d i b u t m u s t h o t t o e v e r y case i n sist on a k n o w l e d g e of t h e r e g i o n a l
language,
W h e r e necessary, e m ployees w h o d o n o t k n o w the r e g i o n a l l a n g u a g e m a y , however, be
made t o l e a r n i t
allots g r a f t s to states, should show
special
consideration
for states
w h i c h incur substantial expenditure
on p r o v i d i n g e d u c a t i o n a l ' and cultural
facilities for the language minorities
in their territories."
" I n i t s r e l a t i o n s w i t h business a
State G o v e r n m e n t s h o u l d n o t be able
to introduce considerations of d o m i cile, language o r the l i k e . I t s h o u l d
be w r o n g to flay t h a t a business concern s h o u l d g i v e l a r g e r e m p l o y m e n t
to " l o c a l " people or c o n d u c t its business in a p a r t i c u l a r language.
I n t h e economic sphere also, t h e
C o n s t i t u t i o n empowers t h e C e n t r e
t o t a k e measures t o p r o t e c t t h e n a tional interest against prejudical
actions of State Governments.
" F o r t u n a t e l y , the C o n s t i t u t i o n n o t
m e r e l y makes a l l t h i s possible b u t
Indeed visualises i t The s p i r i t o f
the C o n s t i t u t i o n m u s t l i v e and inspire leaders everywhere, but it is
u p t o t h e Centre, i f necessary t o enforce t h e r e q u i r e d f i c t i o n . M o n e y
spent in being generous to m i n o r i t i e s
serves a g r e a t n a t i o n a l purpose a n d
the C e n t r a l G o v e r n m e n t , when i t
Linguistic Minorities, an a l l - I n d i a
Problem
The j o u r n a l m e n t i o n e d above, i n
i t s A p r i l 1954 issue, w r o t e :
" T h e Commission w o u l d d o w e l l
to g i v e careful a t t e n t i o n to t h e problem of linguistic or cultural minor i t i e s a n d set o u t i n d e t a i l the respons i b i l i t i e s of a State t o w a r d s themI t s h o u l d b e remembered t h a t the
p r o b l e m has t o b e e x a m i n e d even i f
no n e w l i n g u i s t i c State is established
because u n i l i n g u a l States l i k e B e n g a l , B i h a r , Orissa a l r e a d y exist. T h e
p r o b l e m m i g h t be even m o r e i m p o r t a n t i n H i n d i s p e a k i n g areas i f there
a r e people i n such areas w h o consider themselves to be m o r e ' n a t i o n a l i s t ' ' t h a n others because the
national
language happens
to be
their mother-tongue. The very ex'
istence o f several g r e a t languages i n
I n d i a raises t h e p r o b l e m o f m i n o r i ties a n d the best course is to face It
squarely.
"A State must provide as many
schools a s are r e q u i r e d i n o r d e r t h a t
a l m o s t every c h i l d c o u l d be t a u g h t
i n its m o t h e r tongue. I n schools a n d
colleges, H i n d i m u s t be compulsory,
College education may be in t h e reg i o n a l language, b u t i n every c i t y
there m u s t be at least one college
w h i c h teaches a n d examines s t u d e n t s
in H i n d i and which m a y be attended
b y a n y student irrespective o f w h a t
his m o t h e r t o n g u e is. A person
s h o u l d be e n t i t l e d to receive a r e p l y
i n the l a n g u a g e used i n his l e t t e r .
" I n recruiting staff, a State m a y
i n s i s t o n sufficient k n o w l e d g e o f
1526
Conclusion as r e g a r d s d i s a d v a n t a g e s
I f the leaders o f d i f f e r e n t S t a t e d
in collaboration w i t h the Central
Government, evolve an a l l - I n d i a
policy f o r the p r o t e c t i o n of the c u l tural rights of minorities and for
the p r e s e r v a t i o n o f economic u n i t y
a n d I f the Centre f o r t h e s a m e
objects makes proper use of t h e
powers i t has under the C o n s t i t u t i o n
t h e n apprehensions o f the k i n d expressed b y S h r i M u n s h i a n d o t h e r s
w i l l n o t result.
T h e n there w i l l b e
THE ECONOMIC WEEKLY
no serious risk in a l l o w i n g B o m b a y
City to be part of Maharashtra.
Advantages of Linguistic State
B e f o r e c o n s i d e r i n g the a d v a n t a g e s
of incorporating Bombay in Mahar a s h t r a , i t i s necessary t o see i f
there a r e a n y n a t i o n a l a d v a n t a g e s
i n r e d r a w i n g State boundaries o n a
l i n g u i s t i c basis a t a l l . T h i s b r o a d
q u e s t i o n has been e x a m i n e d c a r e f u l l y
b y t h e T a t a Q u a r t e r l y w h i c h suggests t h a t t h e interests o f I n d i a a s
a w h o l e m a y be s a i d to comprise
the f o l l o w i n g f o u r basic o b j e c t i ves:
( i ) W e w a n t State G o v e r n m e n t s
to a c t i v e l y pursue the econom i c development o f t h e i r reg i o n s a n d , f o r t h i s purpose,
use the powers t h e y have in a
m a n n e r f a i r t o o t h e r States
a n d w i t h o u t d e t r i m e n t t o the
n a t i o n a l economic u n i t y .
( i i ) W e w a n t the v a r i o u s r e g i o n a l
cultures t o f l o u r i s h a n d thereb y p r o v i d e f o r the e v o l u t i o n
of a n a t i o n a l c u l t u r e .
(iii) We
want
the
recognised
r e g i o n a l l a n g u a g e t o devel o p sufficiently to meet the
requirements of modern life
a n d w e w a n t H i n d i t o become
the n a t i o n a l language.
(iv) We do not want "linguism"
to be a c o n t i n u i n g force in
political affairs.
F o r the r e a l i z a t i o n o f these objectives, i t i s desirable t o e n t r u s t S t a t e
Governments w i t h
responsibility
f o r t h e development o f r e g i o n a l l a n guages a n d cultures w h i l e i t i s l e f t
to the Centra to provide facilities for
the f u s i o n o f r e g i o n a l c u l t u r e s b y
such means as cheapening r a i l w a y
t r a v e l a n d the p r o m o t i o n o f n a t i o n a l
l a n g u a g e . I n v i e w o f t h i s , State
b o u n d a r i e s s h o u l d correspond
to
d i v i s i o n s o f the m a i n d i s t i n c t i v e reg i o n a l cultures. Basically, therefore
the l a y - o u t s h o u l d be a l i n g u i s t i c
l a y - o u t i n a s m u c h as a r e g i o n a l l a n guage represents a c u l t u r a l p a t t e r n .
Sometimes i t i s suggested t h a t i n stead o f l i n g u i s t i c States, there
s h o u l d be " e c o n o m i c " States. T h i s
is a m y t h . E c o n o m i c f a c t o r s c a n n o t by themselves y i e l d a unique
pattern of t e r r i t o r i a l divisions w h i c h
m a y be t a k e n to be t h e best. F u r ther, to quote the same source, "there
is n o necessary conflict between " l i n g u i s t i c " States a n d States capable
o f s h o u l d e r i n g t h e i r economic resp o n s i b i l i t i e s . P r o v i d e d the b r o a d c r i t e r i a o f the
k i n d suggested above
a r e satisfied, " l i n g u i s t i c " States c o u l d
d o w e l l i n the economic f i e l d too. I n
December 24, 1955
fact, the f o r m a t i o n o f c u l t u r a l l y homogenous States m i g h t p r o v i d e some
a d d i t i o n a l s t i m u l u s f o r economic dev e l o p m e n t i f i t induces people t o bear
l a r g e r sacrifices f o r c o m m o n benefit
and to collaborate more readily w i t h
the l o c a l G o v e r n m e n t w i t h the same
object. A p a r t f r o m this, t h e product i o n o f t e c h n i c a l a n d c r a f t books i n
the r e g i o n a l languages, w h i c h w i l l
be encouraged as a result of t h e
e s t a b l i s h m e n t o f " l i n g u i s t i c " States,
w i l l react f a v o u r a b l y o n the m a t e r i a l progress o f t h e people"
T h e conclusion is t h a t a l i n g u i s t i c
r e - d i s t r i b u t i o n o f State boundaries
w o u l d serve a g r e a t n a t i o n a l purpose
i f the Centre, i n c o l l a b o r a t i o n w i t h
the States, t a k e s adequate measures
f o r s a f e g u a r d i n g the n a t i o n a l i n t e rest i n economic a n d c u l t u r a l l i f e .
Advantages of Incorporating Bombay in M a h a r a s h t r a
A p r e l i m i n a r y c l a r i f i c a t i o n m a y be
made.
A l i n g u i s t i c State, once
it is formed, w i l l be l i k e a n y other
State i n r e g a r d t o the powers t h e
G o v e r n m e n t has o r t h e r i g h t s t h e
citizens enjoy. T h o u g h i n i t i a l l y a
State is f o r m e d on the basis of t h e
p r i n c i p a l l a n g u a g e spoken i n i t s
area, such a State need n o t be c a l l e d
" l i n g u i s t i c " a l l the t i m e .
I n fact,
even i f i n f u t u r e the c o m p o s i t i o n o f
l a n g u a g e groups In the b o r d e r areas
o r i n cities l i k e B o m b a y changes,
there is g o i n g to be no second r e v i sion of
boundaries on a l a n g u a g e
basis.
In one p a r t , the a d v a n t a g e s to be
considered here are the a d v a n t a g e s
o f i n c l u d i n g B o m b a y i n a l a r g e State
i n w h i c h there are also r u r a l areas
a s a g a i n s t i n c o r p o r a t i n g the C i t y
i n t o a separate State by i t s e l f . T h e
a d v a n t a g e s are social, economic a n d
political.
" A s a c i t y a n d the n e i g h b o u r i n g c o u n t r y s i d e react f a v o u r a b l y
on each o t h e r in a n u m b e r of w a y s ,
t h e y s h o u l d a d v i s a b l y be in a c o m m o n p o l i t i c a l e n t i t y , the State." C o n servatives should remember that a
C i t y State, w h i c h includes a l a r g e
i n d u s t r i a l population, w i l l p r o b a b l y
be m o r e r a d i c a l or l e f t i s t t h a n a
State w h i c h comprises b o t h u r b a n
a n d r u r a l areas. A p a r t of the revenue r a i s e d in a c i t y in Sales T a x
goes f o r the d e v e l o p m e n t o f a g r i c u l ture, i r r i g a t i o n , etc. i n r u r a l areas.
T h i s is indeed as it s h o u l d be. U n d e r
the C o n s t i t u t i o n , a S t a t e G o v e r n m e n t has i m p o r t a n t responsibilities
i n r e g a r d t o r u r a l l i f e a n d these
cannot be discharged adequately if
t h e cities c l a i m separate state-hoods
f o r themselves. H o w e v e r w e l l B o m .
b a y as a C i t y S t a t e advances i n d u s 1525
t r i a l l y , i t w o u l d d o less t h a n i t s d u t y
t o the c o u n t r y I f i t d i d n o t c o n t r i b u t e
to the development of surrounding
r u r a l areas.
I n view o f the foregoing, i f the
present B o m b a y State is to be b r o k e n
u p i n t o separate States o f M a h a r a shtra, Gujarat a n d K a r n a t a k , it is
desirable t o assign t h e C i t y t o a n y
o f t h e n e w States r a t h e r t h a n m a k e
i t i n t o a separate State b y i t s e l f . A s
between M a h a r a s h t r a , G u j a r a t a n d
K a r n a t a k , the C i t y w o u l d m o r e easily
g o t o the f i r s t - n a m e d f o r t w o reasons:
( i ) T h e C i t y i s contiguous t o M a r a t h i s p e a k i n g areas o n the m a i n land.
( i i ) T h e l a r g e s t single l a n g u a g e
g r o u p i n the C i t y i s M a r a t h i . A c c o r d i n g t o t h e Census o f 1951, o u t
o f the t o t a l p o p u l a t i o n o f 2.8 m i l l i o n
in Greater Bombay, the mother t o n gue of 1.2 m i l l i o n is M a r a t h i . G u j a rat!, the n e x t l a r g e s t l a n g u a g e g r o u p ,
is spoken by o n l y h a l f a m i l l i o n .
"New L o o k " for Bombay
Bombay C i t y as the capital of
M a h a r a s h t r a w o u l d be a l i t t l e different f r o m w h a t i t i s now, b u t i t w o u l d
be d i f f e r e n t in a c o n s t r u c t i v e sense
I t w o u l d m a k e a m o r e conscious a n d
purposive c o n t r i b u t i o n t o the devel o p m e n t o f the c u l t u r e a n d t h e economy of Maharashtra. Non-Mahar a s h t r i a n s m i g h t come t o k n o w M a h a r a s h t r i a n s a l i t t l e better a n d t h e
proportion
o f t h e m h a v i n g some
k n o w l e d g e o f M a r a t h i m a y increase.
B u t there should n o t b e a n y f e w e r
o p p o r t u n i t i e s f o r the d e v e l o p m e n t o f
o t h e r cultures o n t h e basis o f m u t u a l respect. T h e M a h a r a s h t r i a n s i n
the C i t y are keenly conscious o f t h e
d e s i r a b i l i t y o f the C i t y p r o v i n g t o
be a generous host to people c o m i n g
f r o m different p a r t s o f I n d i a , b o t h
i n the N o r t h a n d i n t h e S o u t h , a n d
f r o m o t h e r countries.
I f B o m b a y i s m a d e a separate C i t y
State, t h e n too the C i t y w o u l d t e n d
to be different f r o m the c i t y as we
k n o w i t to-day. A s a w h o l l y u r b a n
a r e a c a t e r i n g solely t o i t s o w n req u i r e m e n t s , t h e C i t y m i g h t acquire
some c h a r m s o f H o n g k o n g . B u t
H o n g k o n g , w h i c h i s the m e l t i n g pot
o f the c u l t u r e s o f every n a t i o n i n the
w o r l d , has n o c o n s t r u c t i v e side o f
its o w n . The direction which B o m b a y a s the c a p i t a l o f M a h a r a s h t r a
w i l l t a k e w i l l b e more c o n s t r u c t i v e .
B o m b a y w i l l s t i l l r e m a i n a c i t y belonging to India or in fact an inter,
n a t i o n a l city, b u t i t w i l l h a v e somet h i n g o f its o w n j u s t a s Paris, w h i c h
is v e r y m u c h a w o r l d - c i t y , is s t i l l a
French city.
THE ECONOMIC WEEKLY
December 24, 1995
1526