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1 CHAPTER – I INTRODUCTION 1.1 INTRODUCTION Administration is the process of running the government with emphasis on “What” and “How” of the Government. 1 The “What” refers to the subject matter, i.e., the technical knowledge of a specific area which enables an administrator to perform his/her task. The “How” refers to the technique used in management of the process, i.e., the principles according to which comprehensive programs are accomplished through process. Science of politics uses the best means to organize the will of the people for the formulation of policy. Similarly, the science of public administration is a question of how policies may best be carried into operation. The state of Karnataka has identified its existence since 3000 B.C. So it assumes that the state is deeply rooted in an ancient history. Considerably the state included large quantity of wealth and human resources which attracted many outsiders. Resultantly Karnataka had to experience some invasions. At some extant state was ruled by many outside rulers so it led to dissatisfaction among people, obviously few protests occurred against autocratic rule. However Karnataka administration was well recognized in the post independence period through the democratic set up. As a democratic visionary Kengal Hanumanthaiah put his effort regarding the upliftment of politics and administration within the state. Being a statesmen he 1 Marshall E Dimock, The study of administration, The American Political Science Review, Vol. 31, University of Chicago, 1937, p. 30.

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CHAPTER – I

INTRODUCTION

1.1 INTRODUCTION

Administration is the process of running the government with emphasis on

“What” and “How” of the Government.1 The “What” refers to the subject matter,

i.e., the technical knowledge of a specific area which enables an administrator to

perform his/her task. The “How” refers to the technique used in management of

the process, i.e., the principles according to which comprehensive programs are

accomplished through process. Science of politics uses the best means to organize

the will of the people for the formulation of policy. Similarly, the science of public

administration is a question of how policies may best be carried into operation.

The state of Karnataka has identified its existence since 3000 B.C. So it

assumes that the state is deeply rooted in an ancient history. Considerably the state

included large quantity of wealth and human resources which attracted many

outsiders. Resultantly Karnataka had to experience some invasions. At some

extant state was ruled by many outside rulers so it led to dissatisfaction among

people, obviously few protests occurred against autocratic rule. However

Karnataka administration was well recognized in the post independence period

through the democratic set up.

As a democratic visionary Kengal Hanumanthaiah put his effort regarding

the upliftment of politics and administration within the state. Being a statesmen he

1 Marshall E Dimock, The study of administration, The American Political Science Review, Vol. 31,

University of Chicago, 1937, p. 30.

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tried to uphold the popularity of the state in the country with his sharp intellect.

This shows that, he was familiar in both the conditions (pre and post

independence). This chapter has two parts. Part-A deals with General Background

and Part-B deals with the Research Problem.

PART-A: GENERAL BACKGROUND

1.2 BACKGROUND OF KARNATAKA

Karnataka is one of the most prosperous states of India with due credit to

its natural resources and the development that ensued after independence. The

state has witnessed tremendous success in the fields of education, literature,

agriculture, industry and tourism. The proliferation of IT industry attracting

numerous investments from the U.S. and European countries has made the state,

especially Bangalore city, Asia’s Silicon Valley. Hence, it commands a separate

position on the IT map of the globe. Karnataka is therefore sometimes called “The

land of science and technology”.

The state has three principal geographical zones including the coastal

region of Karavali, the hilly Malenadu region comprising the Western Ghats, and

the Bayaluseeme region comprising the plains of the Deccan plateau. The bulk of

the state is in the Bayaluseeme region, the northern part of which is the second

largest arid region in India. Mullayanagiri hills in Chikkamagaluru district with an

altitude of 1,929 metres (6,329 ft) is the highest point of Karnataka.

Karnataka is bordered by the Arabian Sea to the west, Goa to the

northwest, Maharashtra to the north, Andhra Pradesh to the east, Tamil Nadu to

the southeast, and Kerala to the southwest. The state is divided into 29 districts

covering a surface area of 74,122 sq miles (191,976 km2) or 5.83% of the total

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geographical area of India. It is the eighth largest Indian state and by area, the

ninth. About 14,951 sq miles (38,724 km2) of Karnataka (i.e., 20% of the state’s

geographic area) is covered by forests. The forests are classified as reserved,

protected, unclosed, village and private forests. The percentage of forested area is

slightly less than the all-India average of about 23%, and significantly less than the

33% prescribed in the National Forest Policy. Kannada is the official as well as the

most widely spoken language. Some of the important rivers in Karnataka are the

Kaveri, the Tungabhadra, the Krishna and the Sharavathi.2

Karnataka preserves its past glory by observing various fairs and festivals,

retaining its art and crafts and by encouraging diverse dance and music forms.

Though the Indian classical music was born in Karnataka, yet it bears with it the

most unique feature of promoting the main styles of Indian Music (Karnataka and

Hindustani) side by side.

From the evidences, such as hand axes and cleavers, found from Paleolithic

period the long-drawn history of Karnataka is understood.3 Several evidences have

also been found from neolithic and megalithic cultures. A well-established link has

been observed between ancient Karnataka and the Indus Valley Civilization in

3000 BC through the findings of the gold in the Harappa region which is strongly

suggested to be from mines in Karnataka.4 Karnataka holds a prominent position

in Indian history as it was first ruled by Nanda Empire before the third century

BC, followed by the Mauryan Empire of Emperor Ashoka. The Satavahanas

2 Sushmita Dutta, Karnataka – state profile, An article in www.zeenews.india.com 3 Paddayya, K., Recent findings on the Acheulian of the Hunsgi and Baichbal valleys, Karnataka, with

special reference to the Isampur excavation and its dating, Current Science, 10th September 2002, pp.641–648.

4 Ranganathan, S., The Golden Heritage of Karnataka, Department of Metallurgy, Indian Institute of Science, Bangalore. Prehistoric culture of Karnataka, retrieved from www.ourkarnataka.com

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controlled large areas of Karnataka for four centuries. However, the decline of the

power of Satavahana gave rise to the earliest native kingdoms including the

Kadambas and the Western Gangas, which marked the egression of Karnataka as

an independent political entity. The Kadamba Dynasty was founded by Mayura

Sharma, who made Banavasi its capital.5 The Western Ganga Dynasty had

Talakad as its capital.6

The Halmidi inscription and a fifth-century copper coin discovered at

Banavasi strongly suggest that these were first kingdoms that used Kannada in

administration.7 These dynasties were followed by imperial Kannada empires such

as the Badami Chalukyas,8 the Rashtrakuta Empire of Manyakheta9 and the

Western Chalukya Empire,10 which ruled over large parts of the Deccan also had

their capitals in what is now Karnataka. The Western Chalukyas patronised a

unique style of architecture and Kannada literature, which became a precursor to

the Hoysala art of 12th century.11

The Chola Empire ruled most parts of modern day Karnataka between

990 and 1210 AD.12 Raja Raja Chola I (985-1014 AD) was the first to establish

the kingdom that was later passed onto son Rajendra Chola I (1014-1044 AD).

Rajaraja Chola I conquered and annexed Gangapadi, Nolambapadi and

5 Suryanath U. Kamath, A Concise History of Karnataka, MCC Publications, Bangalore, 2001, p.30. 6 Malini Adiga, The Making of Southern Karnataka: Society, Polity and Culture in the early medieval

period, AD 400–1030, Orient Longman, Chennai, 2006, p.89. 7 Ibid, p. 10-11, From the Halmidi inscription. 8 John Keay, The Chalukyas hailed from present-day Karnataka, India: A History, Grove Publications,

New York, 2000, p.168. 9 Altekar, Anant Sadashiv, The Rashtrakutas And Their Times; being a political, administrative,

religious, social, economic and literary history of the Deccan during C. 750 A.D. to C. 1000 A.D., Oriental Book Agency, Poona, 1934, pp.21-24.

10 Cousens, Henry, Balagamve in Mysore territory was an early power centre, The Chalukyan Architecture of Kanarese District, Archeological Survey of India, New Delhi, 1996, pp.10,105.

11 Suryanath U. Kamath, A Concise History of Karnataka, MCC Publications, Bangalore, 2001, p.115. 12 Nilakanta Sastri, K.A., A History of South India, From Prehistoric times to fall of Vijayanagar, OUP,

New Delhi, 2002, p.164.

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Tadigaipadi. These are now parts of modern Mysore, were conquered and annexed

under Raja Raja Chola I. Rajendra Chola I “marched up to Donur and captured

Banvasi, a good part of the Raichur Doab and sacked Manyakheta” itself, which

was the Western Chalukyan capital. The defeat of Jayasimha, the Chalukyan ruler,

by Rajendra Chola I paved the way for setting up the Tungabhadra river as the

boundary between the two kingdoms. During the rule of Rajadhiraja Chola I

(1042-1056), Dannada, Kulpak, Koppam, the fortress of Kampili, Pundur, Yetagiri

and the Chalukyan capital Kalyani were sacked. In 1053, On defeating the

Chalukyans, Rajendra Chola II advanced to Kollapura and erected a pillar of

victory before returning to his capital at Gangaikondacholapuram. Later, in 1066,

the next Chola ruler Virarajendra defeated the forces of the Western Chalukya

ruler Somesvara and also the Western Chalukyas at Kudalasangama. Virarajendra

then set up a pillar of victory on the banks of the Tungabhadra. The victory of

Kulottunga Chola I in 1075 AD against Vikramaditya VI at Nangili in Kolar

district helped him to appropriation of Gangavadi, a vantage area. However, the

Cholas eventually lost Gangavadi in 1116 AD to the Hoysalas under

Vishnuvardhana.

The first millennium witnessed the gaining of power by Hoysalas in the

region. The period under Hoysalas was a golden period of literature, which

began to flourish during this time leading to the distinctive Kannada literary

matters and the construction of temples and sculptures that followed the Vesara

style of architecture.13 The expansion of the Hoysala Empire brought parts of

modern Andhra Pradesh and Tamil Nadu under its rule. In the early 14th century,

13 Suryanath U. Kamath, A Concise History of Karnataka, MCC Publications, Bangalore, 2001,

pp.132-134.

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Harihara and Bukka Raya established the Vijayanagara Empire with Hosapattana

(later named Vijayanagara) as the capital on the banks of the Tungabhadra river in

the modern Bellary district. The empire rose as a bulwark against Muslim

advances into South India and completely controlled the area for more than two

centuries.14

In 1565, Karnataka and the rest of South India experienced a major

geopolitical shift when the Vijayanagara Empire fell to a confederation of Islamic

sultanates in the Battle of Talikota.15 The Bijapur Sultanate became powerful after

the demise of the Bahmani Sultanate of Bidar and it soon controlled the entire

Deccan region. However, it was defeated by the Moghuls in the late 17th century.16

The Bahamani and Bijapur rulers encouraged Urdu and Persian literature and

Indo-Saracenic architecture, the Gol Gumbaz being one of the high points of this

style.17

The ensuing periods witnessed a motley of rulers that controlled parts of

northern Karnataka. They were the Nizam of Hyderabad, the British, and other

powers. In contrast, the Mysore Kingdom, the southern part of Karnataka, which

were former vassals of the Vijayanagara Empire, was independent for a short

period.18 With the death of Krishnaraja Wodeyar II, Haidar Ali, the commander-

in-chief of the Mysore army, gained control of the region. After his death, Tippu

Sultan, son of Haidar Ali, ruled the kingdom.19 Both Haidar Ali and Tipu Sultan

bravely fought against the British in four Anglo-Mysore wars, which helped in 14 Hermann Kulke and Dietmar Rothermund, A History of India, fourth edition, Routledge

Publications, 2004, p.188. 15 Suryanath U. Kamath, A Concise History of Karnataka, MCC Publications, Bangalore, 2001,

pp.190-191. 16 Ibid, p.201. 17 Ibid, p.207. 18 Ibid, p.171. 19 Ibid, pp.171,173,174,204.

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containing the advances of British in South India. Nevertheless, in the last war

Tippu Sultan lost his life. As a consequence, Mysore was taken over by the British

and got incorporated into the British Raj in 1799.20 The Kingdom of Mysore

was restored to the Wodeyars and Mysore remained a princely state under the

British Raj.

Doctrine of Lapse resulted in disagreement and resistance from princely

states across the country. In 1830, Kittur Chennamma, Sangolli Rayanna and

many more mustered people and led rebellions in Karnataka, almost three decades

before the Indian Rebellion of 1857. Supa, Shorapur, Bagalkot, Nargund and

Dandeli are some of the other uprisings that followed. These rebellions later

became part of the 1857 War of Independence, which was led by Mundargi

Bhimarao, the Halagali Bedas, Bhaskar Rao Bhave, Venkatappa Nayaka and so

on. Late 19th century saw the emergence of the freedom movement that gradually

gained momentum. Karnad Sadashiva Rao, S. Nijalingappa, Aluru Venkata Raya,

Nittoor Srinivasa Rau, Kengal Hanumanthaiah, and others carried on the struggle

into the early 20th century.21 After independence, Maharaja Jayachamarajendra

Wodeyar conceded his kingdom to become part of India. Thus, Mysore became an

Indian state with the same name with the Maharaja becoming the Rajpramukh

(head of state) until 1975.

In certain regions, the Kannadigas in spite of being a majority, they could

not enjoy administrative patronage. Kannadigas in the Hubli-Karnataka region, for

example, came under the rule of the Bombay Presidency, where Marathi was the

official language. Those in the Hyderabad-Karnataka region came under the

20 Ibid, p.231-234. 21 Suryanath Kamath, The rising in the south, The Printers (Mysore) Private Limited, Mysore, 2007.

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Nizam’s rule, where Urdu ruled. Kannadigas in South Canara came under the rule

from Madras Presidency which used Tamil as the official language.

Due to the discomfort, the Kannadigas who were living outside Mysore had

a feeling of discontent creating restlessness among them.. They felt that their

interests as well as their language were not given fair chance by the administrators.

Thus, while the Kannadigas under the Nizam felt that Urdu was being thrust on

them at the expense of Kannada, those in the Bombay Presidency felt similarly

vis-à-vis Marathi.22 These areas were undeveloped, neglected and backward

economically. Under these condition, a mass agitation started against linguistic

oppression, which later turned into a demand for separate state wherein all the

Kannada-speaking regions would be consolidated into one unified state.

The tepid response for the Karnataka Ekikarana movement from the new

government disappointed the people. Kannada speaking areas now got grouped

under five administrative units of the Bombay and Madras provinces, Kodagu, and

the princely states of Mysore and Hyderabad. The Akhila Karnataka Ekikarana

Parishat met in Kasargod and reiterated the demand for a separate state for

Kannadigas.

The endorsement of the recommendations of the Fazal Ali Committee in

parliament brought extreme joy to the entire Kannadiga population that got

merged under the state of Mysore. The struggle, however, did not come to an end

but the acute disappointment prevailed at the non-inclusion of certain regions into

the Mysore state. The biggest disappointment lay in the non-inclusion of Kasargod

in the newly formed state despite the fact that Kasargod was one of the bastions

22 Contributing the cause, Deccan Herald, published on 1st November, 2005.

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from which the Ekikarana movement had launched its agitation. This issue

remains to be a sore point for the people, who fought for the unification of

Karnataka. Some like literary giant and nonagenarian Kayyara Kiyyanna Rai who

was part of the movement ever since the agitation started continued to fight for

Kasargod’s merger with Karnataka peacefully.

Mysore State was created on November 1, 1956, by the passing the States

Reorganisation Act. Under the aegis of Devaraj Urs, who was the Chief Minister

of the Mysore state at that time, Mysore was renamed as Karnataka23 since it was

felt that Karnataka was more ‘inclusive’ of all the other regions of Karnataka than

the name Mysore.

1.3 IMPORTANCE OF ADMINISTRATION

Administration has become an important segment of the modern society,

which has witnessed the emergence of what is called by administrative thinkers as

“Administrative State”. Administration refers to regulating every activity of the

individuals by the administrative agencies.

Various scholars have highlighted the significance of public administration

in the society. According to Alfred Diamant “if civilization fails, the main cause

would be the breakdown of administration”. In the opinion of L.D. White “Public

administration nature, contents and scope all go to make it the heart of the problem

of modern government”. In the words of Sir Josiah Stamp, “Administration

remains unfettered by the governments and those who are involved in forming the

governments”. While government may come and go, ministers may rise and fall,

the administration of a country goes on forever. Chaos would prevail if

23 Boruah, Maitreyee, In the dark about Rajyotsava in Bangalore, retrieved from www.dnaIndia.com.

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administration fails. In other words, there would be no existence without

administration.

The government advisors form the hub of the wheel of the new society,

suggesting, promoting and advising at every stage. The society is increasingly

dependent on the political system, which in turn is becoming more and more

dependent on the administrative system. The administrative process is universal.

Its existence is most important element in practically all vocations and professions.

Therefore, a widespread need is felt for the scientific study of administration. The

main purpose of administration is to ensure that the status quo in society is

preserved. It carries on with continuance of the existing order with minimum

effort and risk. Its fundamental aim is to ‘carry on’ rather than to venture new and

uptried paths. Administrators are essentially the guardians of traditions.

Administration forms the crux of a society as its chief purpose is to

facilitate social change and without upsetting the balance of social revolution.

Social consolidation is not a simple problem; consolidation indicates equal ability

for administration. Perfection in administration must correspond to the majority

and the momentum of the mass to be administered. Else the centrifugal force will

overwhelm the centripetal force, and the mass will disintegrate. In other words, it

may even lead to dissolution of the civilization. Administration is the evolution of

another human technology leading to man’s adaptation of his complex

environment. Administration is the basis of government. No government can exist

without administration.

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1.4 ROLE OF ADMINISTRATORS

Administrators provide the stimulus and support required to make

administration inclusive. Productive and self-motivated, are considered to be good

decision-makers. People with resolve and are rational with a specific purpose are

able to take timely decisions that have greater impact on the administration.

With the goal of vision and agenda in mind, administrators can provide the

vision of how a nation will look if proper administration exists. The role of the

administrators would be to ensure that the goals are achieved.

Administrators can facilitate cross-disciplinary collaboration by removing

the barriers to change. Restructuring should take into account the need for

planning time for collaborators, schedule changes with appropriate technical

assistance, thus absorb the change without resistance.

Staff training, continuing education, and ongoing professional development

prospects are necessary. Administrators can support the staff by providing in-

house training through employing competent personnel to deliver the training,

offering incentives, using a variety of methods, and coordinating the training with

other districts. The administrators must also build time into their schedules to

allow collaborative problem solving, team meetings, peer coaching sessions, and

adaptation of materials.

A creative distribution and pooling of resources is essential to implement

and maintain cross-disciplinary collaboration.

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1.5 ADMINISTRATIVE THEORIES

1.5.1 Bureaucratic Theory

Max Weber’s bureaucratic model continues to be the dominant paradigm in

public administration. Morstein Marx states that the term “bureaucracy” was first

used in the French form “bureaucratic” by a French minister of commerce in the

eighteenth century to refer to the government in operation.24

A plethora of literature is available on bureaucracy. Max Weber, Marx, and

Robert Michels were the chief contributors for the literature on bureaucracy. In his

earlier writings Marx made an attempt to conceive the role of the bureaucracy in

the corpus of state organisation. While trying to develop a critique of the political

economy of capitalism in 19th century Europe, Marx was found to be a sensitive

and keen observer of contemporary European public administrative organisations.

He has written about “administration” in numerous books, letters, monographs,

and editorial comments. In all these, he never tried to build up a theory of public

administration as such.

Before Max Weber it was Karl Marx, who attempted to provide an

explanation for bureaucracy in scientific manner. Weber who tried to create an

ideal type of bureaucracy. Marx examined it, as that which exists only in

abstraction, but also as a set of relationships that arise in a specific socio-economic

context.

He says, “Bureaucracy considers itself the ultimate finite purpose of the

state.” Since bureaucracy converts its “formal” purposes into its content, it comes

into conflict with “real” purposes everywhere. Thus, it becomes necessary to to

24 Rumki Basu, Public administration: Concepts and Theories, Sterling Publishers Private Limited,

New Delhi, 1994, p.143.

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pass off what is formal for the content, and the content for what is formal. The

purposes of the state are changed into the purposes of bureaus and vice versa.

Bureaucracy is a circle that no one can leave. Its hierarchy is a hierarchy of

information. The universal spirit of bureaucracy is the secret, the mystery

sustained within bureaucracy itself by hierarchy and maintained on the outside as a

closed corporation. The open spirit and sentiment of patriotism hence appear to

bureaucracy as a betrayal of this mystery. So authority is the principle of its

knowledge, and the dissemination of authority is its sentiment. But within

bureaucracy spiritualism becomes a crude materialism, the materialism of passive

obedience of faith in authority of the mechanisms of fixed formal activity, fixed

principles, views and traditions. For the individual bureaucrats, the state’s

purposes become his/her private purpose of hunting for higher position and

making a career for himself.25

The bureaucracy can be compared to a circle from which no one can

escape. Its hierarchy is a hierarchy of knowledge. Those at the top of the hierarchy

expects the understanding of detail by the lower levels, while lower levels assume

the top to have understood of the general, thus, all are mutually deceived.

Competence belies the fact that the bureaucrat cannot be a rational actor. The

hierarchy of structure means a hierarchy of knowledge. Comprehensive

knowledge is not possible in a situation where knowledge is deliberately split up.

Reality is conceived in dual terms: one practical and the other bureaucratic. The

real beings are treated according to bureaucratic perceptions and the image of the

world of bureaucracy forms one of them. “Bureaucracy reserves to itself the

25 Marx, Critique of Hegel’s philosophy of the state, Double Day, New York, 1967, p.185.

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rationality condensed in the social world, sets up a monopoly over it, and the

consequence is that rationality is changed into its opposite.” Thus Marx’s view

sharply contrasts the views of Weberian conception of bureaucracy as

rationalisation of organisation.

The bureaucracy is the imaginary state alongside the real state, i.e., the

spiritualism of the state. In the case of the individual bureaucrat, he/she considers

the state objective as his/her private objective, thereby chase high posts to make a

career.

The abolition of the bureaucracy is possible only if there is a general

interest and not in thought as suggested by Hegel. Abstraction becoming the

particular interest is possible only as a result of the particular interest becoming

the general interest.26

Public administration as a discipline has not bothered about Marx’s views

on bureaucracy. It has generally been held that bureaucracy is incorporated in

Marx’s theorisation of the capitalist state. Recent Marxist scholars, however,

admit the opening up of the concept of “relative autonomy” which generates a

fresh line of thought on the analysis of bureaucracy as a fairly autonomous social

category.27

Michels concentrated his analysis on the internal politics of large

organisations and to the phenomenon of elite domination in organisations. His

observations are based on the internal structure of the German Socialist Party

(which was supposed to be organised along democratic principles), and discovered

that the system was oligarchic. He concluded that all big organisations tended to 26Marx, Critique of political economy, Progress Publishers, London, 1965, pp.46-48. 27 Dwivedi, O., William Gras and Nef, J., Marxist contribution to the theory of administrative state,

Indian Journal of Political Science, January-March, 1985, p. 58.

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develop a bureaucratic structure which ruled out the possibility of internal

democracy. Bureaucracy as an organisational model was first systematically

proposed by Max Weber, an eminent German sociologist of the 19th century.

According to him, every organisation can be defined as a structure of activities

(means) directed towards the achievement of certain objectives (ends). Every

organisation puts together a system of specialization (division of tasks) and a set

of systematic rules and procedures to maximise efficiency and productivity.

Weber emphasizes that it is possible to attain the highest degree of efficiency in

the bureaucratic form. It is in this sense that is believed bureaucracy can become

the most rational known means of carrying out control over human beings in any

organisation. It is superior to every other form in precision, stability, discipline

and reliability.28

Weber attempted to identify the diverse factors and the conditions that

contributed to the growth of bureaucracy in modern times. The development of

modern large-scale organisations and corporations has led to the development and

substantial spread of bureaucracy in organisations. Despite all its disadvantages,

bureaucracy cannot be dispensed for the running of complex administrative

structures. An important factor responsible for the superiority of bureaucratic

organisations is the role of expanding technical knowledge, and the development

of modern technology. Whether the economic system is capitalistic or socialistic, a

considerable degree of bureaucratic specialisation is required to attain a high level

of organisational efficiency. According to Weber, the capitalist system has

undeniably played a major role in the development of modern bureaucracy. The

28 Max Weber, The essentials of Bureaucratic organization: An ideal type construction in R.K. Merton

Et Al (Ed), Writer in Bureaucracy, The Free Press, New York, 1952, p.24.

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proper functioning of capitalist system necessitates a stable state that includes a

well-organised administration. Besides, capitalism is considered the most rational

economic basis for bureaucratic administration itself.29

1.5.2 Decision Making Theory

The orthodox principles of administration30 formulated by classical

theorists in 1946 came under severe criticism by Hereber Simon as he considered

them as mere proverbs. Simon pointed out that in these principles it was assumed

that administrative efficiency would increase if

• Specialisation was increased;

• Members in an organisation were arranged in a hierarchy which presented

unity of command;

• Limit was imposed on the number of subordinates reporting to an

administrator;

• Workers were grouped according to the classification of purpose, place, people

and process.

In Simon’s view, these assumptions were not “principles” at all, since there

was a wide gap between the principles prescribed and their effective practice.

A brief, reference is made here to some of Simon’s objections in this context.

1. Specialization

Administrative efficiency is supposed to increase with an increase in

specialization. But, according to Simon, specialisation is not a condition of

efficient administration, though it is a characteristic of most group effort.

29 Max Weber, The Theory of Social and Economic organization, The Free Press, New York, 1964,

p.337. 30 Simon Herbert A, Decision making and administrative organization, Public administration Review

4(1), 1944, pp.16-30.

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Specialisation merely means that different people are doing different things. The

real problem of administration is not specialisation, but specialising in a particular

manner and direction that may lead to administrative efficiency.

2. Unity of Command

According to Simon, there is a notable contradiction between specialisation

and unity of command. Gullick in his principle perceives that it is physically

impossible for a man to conform to two contradictory commands. He considers

the main limitation to this principle pertains to incompatibility of unity of

command with the principle of specialisation. Subordinates accept orders not only

from their formal superiors but also from different specialists. In such a situation

unity of command does not exist. The principle of unity of command is more

defensible when narrowed down to the following: “In case two authoritative

commands conflict, there should be a single determinate person to whom the

subordinate is expected to obey; and the sanction of authority should be applied

against the subordinate only to enforce his obedience to that one person”. Even in

this limited form the principle of unity of command is able to solve some

problems. However, the most important question of non-authority remains

unsettled and needs to be zoned into a particular organisation and through what

channels it should be exercised.

3. Span of Control

Simon has subjected the concept of “Span of Control” to further

evaluation. He observes that limiting the number of subordinates reporting

directly to one superior can cause excessive red tapism in a large organisation.

This is mainly because for each contact between organisation members, the locus

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of decision must be carried upward until a command superior is found. But if an

organisation is large this will involve a unwieldy and time-consuming process.

Conversely, the control of administrator over subordinates may be weakened by

increasing the span of control of the administrator. Thus both the increase and

decrease in span of control have undesirable consequences that leads to non-

consensus about the number of subordinates who should work under an

administrator.

4. The Basis of Organisation Groupings

The classical theory suggests that administrative efficiency increases by

grouping workers as per the purpose, process, place and people. But Simon holds

that these principles set forth by Gulick are internally inconsistent with the

principle of specialisation. A closer study of the situation shows that there are

fundamental ambiguities in the meanings of the terms “purpose,” “person,”

“place”.

Not much difference is observed between purpose and process. Purpose

may be roughly defined as the objective achieved through an activity known as

Process. So Purpose and Process cannot be strictly separated. Similarly person and

place are not separate from purpose, but are considered as part of it. Simon further

posits that objectives of an administrative organisation are phrased in terms of a

service to be provided and an area for which it is provided. When one basis of

organisation is selected, the other three are sacrificed. Thus there is no way to

determine which method of organisation is most appropriate in a given situation.

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1.5.3 Contingency Theory

Contingency theory chiefly focuses on the contributing factor of the

organisational structure and behaviour. It provides a more explicit understanding

of relationship among various organisational variables. The approach strongly

asserts that there is no prescribed action or organisational design that is

appropriate for all situations. Instead, the design and managerial action depends

on the situation. Thus, the contingency approach is an extension of the systems

view of the organisation as it is action-oriented and directed towards the

application and the implementation of the systems approach. The approach

suggests that as the organisation interacts with the environment, neither the

organisation nor any of its constituents is forced to take absolute action. Rather, it

has to take action subject to various social, legal, political technical and economic

factors. The main advantage of the theory is that it fosters flexibility and provides

a link between theory and practice.

Karnataka administration, like any other Indian states, has a parliamentary

system of government with two democratically elected houses, the Legislative

Assembly and the Legislative Council. The Legislative Assembly consists of

224 members who are elected for a period of five years.31 The Legislative Council

is a permanent body of 75 members with one-third (25 members) retiring every

two years.

The Government of Karnataka is headed by the Chief Minister who is

chosen by the ruling party members of the Legislative Assembly. The Chief

Minister, along with the council of ministers, drives the legislative agenda and

31 Origin and growth of Karnataka Legislature - The Government of Karnataka, Government of

Karnataka, 2007.

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exercises most of the executive powers.32 However, Governor is the constitutional

and formal head of the state who is appointed for a five-year term by the President

of India on the advice of the Union government.33 The people of Karnataka also

elect 28 members to the Lok Sabha, the Lower House of the Indian Parliament.34

The members of the state Legislative Assembly elect 12 members to the Rajya

Sabha, the upper house of the Indian Parliament.

For administrative purposes, Karnataka has been divided into four revenue

divisions, 49 sub-divisions, 29 districts, 175 taluks and 745 hoblies.35 The

administration in each district is headed by a Deputy Commissioner who belongs

to the Indian Administrative Service and is assisted by a number of officers

belonging to Karnataka State Services. The Deputy Commissioner of Police, an

officer belonging to the Indian Police Service and assisted by the officers of the

Karnataka Police Service, is entrusted with the responsibility of maintaining law

and order and related issues in each district. The Deputy Conservator of Forests,

an officer belonging to the Indian Forest Service, also serves the government.

Sectoral development in the districts is looked after by the district head of each

development department such as Public Works Department, Health, Education,

Agriculture, Animal Husbandry, etc. The judiciary in the state consists of the

Karnataka High Court in Bangalore, district and session courts in each district and

lower courts and judges at the taluk level.

32 Pylee, M.V, Constitutional government in India, S. Chand & Co, New Delhi, 2003, p.365. 33 Ibid, p.357. The Head of the State is called the Governor who is the constitutional head of the state

as the President is for the whole of India. 34 Lok Sabha Introduction, The Indian Parliament. Government of India, 2007. 35 Statistics - Karnataka state. The Forest Department. Government of Karnataka, 2007.

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1.6 KENGAL HANUMANTHAIAH REGIME

Administrators are the pillars of a nation. A well-developed or developing

nation will have good administrators. Kengal Hanumanthaiah was considered to

be an able administrator. His quick decision making skill, a crucial characteristic

of being an astute administrator, made him tower over all other politicians of his

time in Karnataka. His contributions to the development of the state are discussed

in the subsequent sections.

Kengal Hanumanthaiah was born in Lakkappanahalli, Ramanagara Taluk,

Bangalore district on February 10, 1908.36 Despite his poor family background, he

completed his B.A. degree from Mysore Maharaja College and LL.B. from Pune.37

During his college days, he not only actively participated in freedom struggle, but

also willingly led movement activities. His career as a lawyer did not last for long,

as he embarked on his political journey. After completing LL.B., he practiced for

few days, but seeing the problems in state administration and the plight of poor

people, he decided to join the Congress party.

His social services were earmarked by organizing programmes, such as

Dalit movement and agriculture-related programs. He held many important

positions like the President of Harijan Seva Sangha in 1933 and president of Hindi

Prachara Sabha in 1934. His course of life took a turn towards the freedom

struggle.38 His efforts were recognized by the Congress party and he was made the

President of Bangalore Congress from 1937-1947. Later he was elected twice for

Praja Prathinidhi Sabha. In 1952, he became the Chief Minister of Mysore state.

36 Ramegowda Bhairamangala, Kannada Kulodharakaru Maalik: Kusuma – 2, (Kannada), Karnataka

Offset Printers, Bangalore, 2009, p.1. 37 Ibid, p.5. 38 Rashtra Ratna Kengal Hanumanthaiah Jeevana Gathe, a serial published in Karmaveeram,

(Kannada), Samyukta Karnataka Press, Bangalore, 23.11.2008, p.15.

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After he became the chief minister, he undertook many administrative

projects for the development of the Mysore state. Few of the most important

reforms that changed the course of the state are educational reforms to encourage

creative education, initiated Sharavathi power project, nationalized Kolar gold

mines, stopped hoisting Mysore flag, the Department of Literature and Culture

brought out a Kannada encyclopedia to propagate the significance of Kannada

language and essentially to educate people with proper knowledge through mother

tongue. A major of contribution of Kengal Hanumanthaiah was the unification of

Mysore and the construction of Vidhana Soudha, the epitome of power in the

state.39

The rich administrative experience of Kengal Hanumanthaiah which

resulted in administrative reforms earned him the “Rashtra Rathna” award in 1973.

In 1977 he started his own party called ‘Suraj’ later merged with the Congress

party. His indefatigable enthusiasm and continued effort was rewarded with

national recognition for Mysore state.40

1.6.1 Kengal Hanumanthaiah’s Role In Freedom Movement Of India

The early life of Kengal Hanumanthaiah was distinguished with patriotism

that was reflected in his behavior. While he was still young, he listened to

speeches delivered by leaders with great interest that later shaped his thoughts and

motives. His participation in the protest against Simon commission in 1927 as a

student leader laid the foundation for his future activities in the freedom struggle

39 Prathibavantha Samsadhiya Patugala Badhuku Baraha Malike Kengal Hanumanthaiah, (Kannada),

Karnataka Vidhana Sabha Secretariat, Bangalore, 1998, p.9. 40 A point narrated by the respondent at the time of interview on 16.2.2011 in Mysore.

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movemen.41 Initially, he was engaged in mobilization of people, arranging

programs, distribution of pamphlets, propagating the national leaders’ ideologies

to the general public to motivate and ensure that they too willingly support the

leaders and disseminate the importance of khadi. Kengal Hanumanthaiah actively

participated in the freedom movement from 1937 onwards. In 1938, he

participated in “Shivapura Dhwaja Sathyagraha” movement.42 On the second day

of the movement, his enthusiasm to hoist the national flag was rewarded by police

arrest, which, however, neither made him quit nor dampen his passion for freedom

struggle.

Kengal Hanumanthaiah actively participated in the quit India Movement in

1942.43 His active involvement in politics gained him recognition in the state,

which he used to create awareness among the people about freedom struggle. His

fervor for freedom is confirmed through his participation in the freedom

movement that resulted in several terms in prison. Though he was put in prison for

seven times and served a one and half year term in prison, it did not deter him

from fighting for freedom. In prison, he kept himself engaged by writing dairy on

freedom struggle and issues related to the British Raj. He instigated the feelings of

freedom and nationalism in the minds of the prisoners. After India became

independent, he continued to fight for democracy against Mysore Maharaja. A

new movement, called as “Mysore chalo,” took birth. Kengal Hanumanthaiah’s

national interest can be remembered by his projects that are considered as

milestones of his life. A few of them are construction of “Sathyagraha Soudha”

41 Prathibavantha Samsadhiya Patugala Badhuku Baraha Malike Kengal Hanumanthaiah, (Kannada),

op.cit., p. 2. 42 Prathibavantha Samsadhiya Patugala Badhuku Baraha Malike Kengal Hanumanthaiah, op.cit., p.5. 43 Rashtra Ratna Kengal Hanumanthaiah Jeevana Gathe, a serial published in Karmaveera, (Kannada),

Samyukta Karnataka Press, Bangalore, 23.11.2008, p.38.

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in Shivapura and his effort to bring national flag in place of Mysore flag.

These contributions confirm the nationalistic character of Kengal Hanumanthaiah

as well as his quest for freedom.

1.6.2 Kengal Hanumanthaiah’s Role In Unification Of Karnataka

After independence, the focus of the leaders turned towards the issue of

reorganization of the state. Although the state predominantly contained the

Kannadigas, they were spread in different regions including Bombay Karnataka

region, Hyderabad Karnataka region, etc. The main objective of the unification

movement was to bring all of them under a single umbrella of Karnataka state.

Kengal Hanumanthaiah ardently fought for unification of the state. Being an astute

leader, he travelled through out the state far and wide garnering support for the

movement and gathering public opinion. He tabled the opinion of the public in the

Assembly and got their consent.44 Further, he also played a crucial role in the

“Nanalla” session.45 In this session, he told Nehru that “Mysore is ready for

unification.” Thereby forcing the centre to send “States Reorganization

Commission.” His persuasive quality can be understood by how he could

successfully convince the members of the Assembly to support his cause and

thereby cast their votes in favour of unification. Mysore state was created on

November 1, 1956 by passing of the “States Reorganization Act”. On November 1,

1973, Mysore was renamed as “Karnataka” under Devaraja Urs’s rule.

44 Bhagawan, K.S., Kengalara Bashanagalu, (Kannada), Kannada and Culture Department, Bangalore,

2006, p.7. 45 Ibid., p.35.

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1.6.3 Kengal Hanumanthaiah’s Role In Politics

Entry into Politics

Kengal Hanumanthaiah hailed from an ordinary peasant family. His keen

interest in politics during the college days associated him with the Congress party

at that time. The social activities such as creating awareness to the mass about

socio political affairs, helping rural people in buying and selling agriculture

products, involving rural people in buying and selling their agricultural products,

involve himself in doing field works like sowing seeds, cutting crops, watering to

plants etc. fetched him mass appeal. He entered active politics in 193646 as

suggested by the national leader and all India Congress President Purushottam Das

Tandon and served for a long time.

Positions

Kengal Hanumanthaiah held numerous positions at the state level as well as

at the Central level politics, which earned him the affection and respect from all.

The presidential responsibility that he held in Harijan Seva Sanga helped him to

bring Harijans to the main stream. In addition, he also served as the President of

Hindi Prachara Samithi and the Bangalore Congress Committee. During those

days he worked for the strong foundation of the Congress Committee. After

getting selected twice to the Representative Assembly, he also became the

Constituent Assembly member. In 1950, he became the Mysore Pradesh Congress

Committee President and worked with enthusiasm to strengthen the Congress

party. He was elected as the chief minister of Mysore State from March 1952 to

August 1956. His tenure as Chief Minister, propelled the growth of Mysore State.

46 Ramegowda Bhairamangala, Kannada Kulodharakaru Maalik: Kusuma – 2, Karnataka offset

Printers, Bangalore, 2009, p.19.

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From 1957 to 1962, he served as the member of Legislative Assembly. His ardent

wish to ensure that Mysore State gained recognition at the Central level forced

him to become Lok Sabha member in 1962 and continued till 1967. In 1970, he

became the Social Welfare and Law Minister at the Centre. In 1971, he won the

mid-term election and became the Railway Minister. He brought revolutionary

changes in the Railway administration. The desire to establish his deep-rooted

principles at the national level, Kengal Hanumanthaiah formed his own party

called “Surajya” in 1977. All the positions that was held by him added to Kengal

Hanumanthaiah’s experience, which made him an able administrator and play a

crucial role in politics. His role can be understood by analyzing the following

aspects.

Leadership — Kengal Hanumanthaiah had leadership quality from his

student days.47 This quality could garner people towards him and trust him as a

leader who could guide them. At the same time, he could resist pressure and move

forward.

Karnataka politics — Kengal Hanumanthaiah played a comprehensive

role, which is evidenced through his several state-level projects. He started many

effective programs in Karnataka politics for bringing few policies like food policy,

industrial policy and agricultural policy. He also removed control on food products

so that the food grains reach common man directly by the government.

Participation — Kengal Hanumanthaiah’s speeches and his participation

in the Assembly and Parliament assumed profound significance intellectually and

democratically.

47 Prathibavantha Samsadhiya Patugala Badhuku Baraha Malike Kengal Hanumanthaiah, (Kannada),

op.cit., p. 2.

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Indian politics — Kengal Hanumanthaiah received recognition in the

Central level politics for his notable contributions. Some of his contribution for

Indian politics is bringing reformation in railway ministry, working for

the betterment of Centre-State relations and also a huge contribution for

Administrative Reforms Commission.

Contributions — Kengal Hanumanthaiah is remembered for his notable

contributions, such as construction of Vidhana Soudha, educational reform,

construction of temples and impetus to Kannada language by bringing out

Kannada encyclopedia.

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PART-B: THE RESEARCH PROBLEM

1.7 NATURE OF THE RESEARCH PROBLEM

The state of Karnataka has been experiencing politico-administrative

changes at different stages. Erstwhile Chief Ministers of Karnataka put

their efforts in strengthening administrative structure and process. Kengal

Hanumanthaiah regime was considered as one of the most successful period

during 1952-56, which came into existence by the first election. This particular

tenure needed the actual effort regarding construction of a state administration. As

a Chief Minister of the state Kengal Hanumanthaiah laid the foundation for better

of administration in the society.

This study deals with the dynamics of Karnataka administration with

special reference to the contribution made by Kengal Hanumanthaiah.

1.8 REVIEW OF LITERATURE

A perusal survey of literature reveals that, writers and scholars have

done work on various aspects of Kengal Hanumanthaiah. However so far no

comprehensive work has been done on the administrative dynamics of Karnataka

with special reference to Kengal Hanumanthaiah regime. The following literature

review indicates briefly the work that has been undertaken on Kengal

Hanumanthaiah so far.

Suryanath Kamath (2001) in his book, A concise history of Karnataka,

narrates the history of Karnataka with its past glory. It also focuses on the rise and

fall of several dynasties, freedom struggle by people of Karnataka and the efforts

for the unification.

The socio-political and economic history of Karnataka is well discussed in

R.R. Diwakar (1968) Karnataka through the Ages.

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S. Ranganathan (2007), The golden heritage of Karnataka, gives archival

information on geo-political significance of the state.

Origin and growth of Karnataka legislature (2007) by Government of

Karnataka deals with the development of Karnataka legislature in a detailed

manner. The other work brought out by the Indian parliament on Loksabha

introduction (2007) by the Forest Department Government of Karnataka, has well

focused on the representation of Karnataka in the Parliament.

Chester Barnard’s Organization and management (1948) highlights the

theory of leadership in the context of administration performed within the

organization.

L.A. Allen (1958) on Management and organization throws light on

administration concepts especially theoretical components.

Met Caff H.C. and Urwick L. (1947) on Dynamic administration contains

the collected papers of Mary Parker and Follet. This work includes various

significant administrative concepts and also some theoretical components.

Max Weber (1952) on The Essentials of Bureaucratic Organization deals

with an ideal type construction of bureaucracy.

The other work done by the Max Weber (1964) on The theory of social and

economy organization concentrates on organizational process through the socio-

economic factors.

The book by Avinash Tyagi (2001) on, Public Administration consists of

various administrative aspects.

The political economy of Karnataka (1981) by Thimmaiah G. and Aziz

Abdul lays emphasis on Karnataka politics and economic conditions.

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Kengal Hanumanthaiah and the formation of Karnataka by Varthappa K.

in Readings in Modern History of Mysore (1955) discusses about socio-political

background of Karnataka during the tenure of Kengal Hanumanthaiah.

Prathibhavantha Samsadeeya Patagalu Baduku Baraha Malike Kengal

Hanumanthaiah (1998) brought out by Karnataka Legislative secretariat includes

Kengal Hanumanthaiah’s speeches in state legislature and also at the parliament.

Life of Kengal Hanumanthaiah has been well discussed in Kengallara

Jeevana Mattu Sadhane by K.N. Venkatesh. It contains educational background,

political career and achievements of Kengal Hanumanthaiah.

The work by Byramangala Ramegowda (2009) titled Kannada

Kulodharakaru Kusuma Kengal Hanumanthaiah sketches the profile of Kengal

Hanumanthaiah.

D. Lingaiah (1998) Sathyagrahigala Nenapugalu remembers freedom

fighters and their efforts in the freedom movement including Kengal

Hanumanthaiah. Another book that Sathagrahigala Sandarshana (1998) by the

same author narrates interviews conducted by the author and discusses the

freedom struggle of India and Karnataka unification movement.

Bjorn Hetney (1978) in his book Political Economy of Indirect rule Mysore

1881-1947 explains the political history of the state.

Mobilization and Development in India: A case study of Mysore State

(1974) by Hetney describes historical development of the state and also the

political conditions which effected administration of the state.

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Political Change in an Indian State Mysore (1977) by James Manner

explains about political situation of the state and analyzes the political

transformation in the state.

James Manor (1977) work on The evolution of political Arenas and units of

political organization Lingaits and Vokkaligas of Mysore the Dimensions of social

change in India discusses the existence of the dominant political groups and their

impact in Mysore state.

C.R. Govindaraju (2005), Karnataka Ekikarana Mattu Namakarana briefly

discusses about the unification of Mysore state.

Nava Mysore Shilpi (1985) by Konanduru Venkatappa Gowda throws light

on Kengal Hanumanthaiah’s role in the freedom struggle of India and unification

of Mysore state.

Kengallara Bhashanagalu (2006), K.S. Bhagavan includes Kengal

Hanumanthaiah’s speeches in the state legislature.

Rashtra Ratna Kengal Hanumanthaiah Jeevana Gathe (17-8-2008 to

6-9-2009) a serial by D. Lingaiah focuses on various issues related to Kengal

Hanumanthaiah life including his participation in the freedom struggle as well as

unification. It also focuses on the socio-economic and political issues during

Kengal Hanumanthaiah’s regime.

The department of news and broadcasting has highlighted various issues of

Kengal Hanumanthaiah life in its periodic magazine Janapada.

B.H. Suresh Sathyashrya Dharmika Masapathrike a monthly magazine

focuses on the social factors during Kengal Hanumanthaiah’s period.

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Mysore Representative Assembly Proceedings

i. Suggestion for the establishment of Statistical Department, 8-6-1944.

ii. Regarding compulsory education, 10-6-1944.

iii. Discussion on Minorities, 4-10-1946.

iv. Educational reforms discussed, 6-8-1953.

Mysore Legislative Assembly Proceedings

Mysore Legislative Assemble Proceedings 1952-56.

i. Speech by Kengal Hanumanthaiah - pursuing the budget estimate for 1952-53

to the legislative assembly, 23rd June 1952.

ii. Member sworn – Question and Answer. General discussion on budget,

23rd June 1952.

iii. Short Notice Question and Answer – 1953.

iv. Mysore board on Revenue Bill – Volume XI, 1954.

v. Public Accounts Committee report – 1954.

vi. Resolution – Specification of fixed prices for important crops – 1954.

vii. Speech delivered by Kengal Hanumanthaiah – presenting the budget estimate

for 1954-56 Mysore Legislative Assembly, 6th March 1954.

viii. Mysore Legislative Assembly debates – 15th March to 29th March 1954,

Volume X, Part III.

ix. Demand No. 11 – General Administration – 1954.

x. Mysore appropriation – Question and answer, State Excise, 1955.

xi. Speech by Kengal Hanumanthaiah – presenting the Budget estimates for

1955-56 to Mysore Legislative Assembly, 3rd March 1955.

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xii. Mysooru samsthanadha mukhyamanthriyadha Sri. Kengal Hanumanthaiah,

Mysooru vidhana sabheyalli samsthanagala punarvingadana varadhiyannu

vimarshegagi mandisutha maadidha bashana – 16th November 1955.

xiii. Government of India Grants Sanctioned towards implementation of 5 year

plan, Volume 14, 1955-56.

xiv. State re-organisation Bill –1956.

xv. Mysore Legislative Assembly debates – Volume XIV 1956.

xvi. Mysore Appropriation Bill –1956.

xvii. Additional and supplementary demands for grants 1955-56.

xviii. Speech by Kengal Hanumanthaiah – Presenting the Budget estimates for

1956-57 to Mysore Legislative Assembly, 12th March 1956.

xix. Legislative Assembly Question and Answer – 1955-56.

xx. Discussion on Fact Finding Committee Report, general discussion on Budget

1955-56.

xxi. General Discussion on Budget – 1956-57.

xxii. Territorial and Political Pension – 1956.

Legislative Council Proceedings

i. Mysore Appropriation (No. 2) Bill – 1953

ii. Official Resolution, 1954 – Mysore sales tax Bill, 1954.

iii. Mysore Legislative Council – 21st March 1956.

iv. Madras Village Panchayats (Mysore Amendment) Bill 1956

v. The states Reorganisation Bill, 1956

vi. Discussion on demands for additional and supplementary grants for 1955-56.

vii. States Reorganization Commission Report

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viii. Mysore Legislative Council – 22nd February 1956.

ix. General discussion on Budget for 1956-57.

Annual Reports

i. Report on the Administration of Mysore, 1951-52.

ii. Report on the Administration of Mysore, 1952-53.

iii. Report on the Administration of Mysore, 1953-54.

iv. Reports on the Administration of Mysore, 1954-55.

v. Reports on the Administration of Mysore, 1955-56.

Lok Sabha Debates

i. November 4th 1970 to December 8th 1970, Speech by Kengal Hanumanthaiah

– Abolition of Legislative Councils in India. Scheduled caste and Scheduled

tribes orders amendment Bill, 1967.

ii. November 9th 1970 to November 17th, Speech by Kengal Hanumanthaiah –

Scheduled caste and Scheduled tribes orders (Amendment) Bill.

iii. July 19th 1971, Speech by Kengal Hanumanthaiah – Punctuality of trains,

demands of Grants.

iv. August 2nd 1971 to August 9th, Speech by Kengal Hanumanthaiah – collision

of Railway trains at Uttadanga station, constitution of railway convention

committee.

v. November 29th 1971 to December 7th, Speech by Kengal Hanumanthaiah –

derailment of train no. 7 down Puri–Howrah express, demands for

supplementary grants (Railways), 1971-72.

vi. December 10th to December 19th, Speech by Kengal Hanumanthaiah –

Resolution: Interim report of railway convention committee.

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vii. March 13th 1972 to March 20th Speech by Kengal Hanumanthaiah –

regarding budget, messages from Rajya Sabha.

viii. March 14th 1972, Speech by Kengal Hanumanthaiah – Railway Budget,

1972-75.

ix. May 22nd 1972, Speech by Kengal Hanumanthaiah – Railway finances and

railway administration.

x. July 31st 1972 – August 10th, Speech by Kengal Hanumanthaiah – His

resignation from the council of ministers.

1.9 NEED FOR THE PRESENT STUDY

The administration of Karnataka owes much to the contribution made by

erstwhile Chief Ministers. Kengal Hanumanthaiah is one among them. He

accelerated the transformation of politics in Mysore by up-holding a secular

image. He actively supported the Karnataka Unification movement by denouncing

the caste based groups. There is an inherent need to study and understand the

contribution of Kengal Hanumanthaiah to the administrative dynamics of

Karnataka. The proposed research is being undertaken to study in detail the

dynamics of Karnataka administration with special reference to the contribution

made by Kengal Hanumanthaiah.

1.10 PURPOSE OF THE STUDY

The proposed study intends in particular to throw light on the dynamics of

Karnataka administration with reference to the contribution made by Kengal

Hanumanthaiah by making a focused study on the following aspects:

1. To understand the political and administrative transformation brought about by

Kengal Hanumanthaiah as the first elected Chief Minister of Karnataka.

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2. To know the contribution made by Kengal Hanumanthaiah to the freedom

movement in general and Karnataka unification movement in particular.

3. To evaluate how Kengal Hanumanthaiah balanced the caste-class factors in

achieving the socio economic progress.

1.11 SCOPE OF THE STUDY

Being a staunch Gandhian, an able and dynamic administrator Kengal

Hanumanthaiah’s period as chief minister has attracted lot of focus and attention

in Karnataka. The proposed research aims at understanding the politico

administrative dynamics in Karnataka during the regime of Kengal

Hanumanthaiah.

1.12 OBJECTIVES OF THE STUDY

The main objectives of the study are as follows:

1. The understand the nature of administrative dynamics in Karnataka during the

regime of Kengal Hanumanthaiah.

2. To access the role of Kengal Hanumanthaiah in the Unification Movement of

Karnataka.

3. To evaluate the efforts undertaken by Kengal Hanumanthaiah in strengthening

the congress party structure vis-à-vis the bureaucracy

4. To study the transformation of politics in Mysore during the period of Kengal

Hanumanthaiah.

1.13 HYPOTHESES OF THE STUDY

For the purpose of study, the following hypotheses have been drawn:

1. Kengal Hanumanthaiah’s tenure as Chief minister accelerated the

transformation of politics in Mysore

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2. Being a staunch Gandhian, Kengal Hanumanthaiah aimed at upholding a

secular and anti – casteiest image in state level politics

3. Kengal Hanumanthaiah played an important role in Karnataka unification

movement.

4. Kengal Hanumanthaiah’s administration generated friendly consciousness

among subordinates.

1.14 THE METHODS OF THE STUDY

The following methods have been adopted in the proposed study:

The Historical method will be used to understand the background of

Kengal Hanumanthaiah. The documentary method will be adopted in examining

various government documents, reports, proceedings, programmes relating to

administration during the period of Kengal Hanumanthaiah. The sociological

method of interview and discussion with government functionaries, family

members and followers of Kengal Hanumanthaiah will be used to gather

information related to Kengal Hanumanthaiah administration. Analysis of

collected data will be made and further findings will be identified through the

collected data by using the descriptive method.

1.15 SOURCES OF THE STUDY

The study involves both primary and secondary data collection. Among the

primary sources various government documents, reports, proceedings and informal

discussions with government officials, functionaries, followers and family

members of Kengal Hanumanthaiah will be made use of. Besides, secondary

sources including books, articles from various journals, newspapers, periodicals,

magazines as well as debates will be used.

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1.16 PLAN OF THE STUDY

The thesis has been divided into six chapters.

Chapter One: Introduction

This chapter contains two parts. Part ‘A’ gives a general background of the

research area. Part ‘B’ deals with the research problem.

Chapter Two: Life of Kengal Hanumanthaiah

This chapter provides a profile of Kengal Hanumanthaiah including

his political career, education, influences and inspiration of other leaders on

Kengal Hanumanthaiah.

Chapter Three: Kengal Hanumanthaiah’s role and leadership in the freedom struggle of India and unification of Karnataka

This chapter deals with Kengal Hanumanthaiah’s role in freedom struggle

of India. The chapter also contains Kengal Hanumanthaiah’s role in Unification of

Karnataka.

Chapter Four: Dynamics of Administration in Karnataka with special reference to Kengal Hanumanthaiah

This chapter examines administrative dynamics of Karnataka during the

regime of Kengal Hanumanthaiah. It includes administrative vision and also the

contribution of Kengal Hanumanthaiah for the development of Karnataka.

Chapter Five: Socio-economic and political dynamics during Kengal Hanumanthaiah’s period

This chapter emphasizes socio-economic and political dynamics of

Kengal Hanumanthaiah’s regime. It includes political development and also socio-

economic policies and programs of Kengal Hanumanthaiah regime.

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Chapter Six: Summary and Conclusions

This chapter presents a summary of research work and also the outcome of

the research. Verification of Hypothesis and statement of thesis, listing of research

findings are also contained in this chapter.

1.17 EXPECTED RESULTS

The present study is very helpful in understanding the administrative

dynamics in Karnataka with special focus on Kengal Hanumanthaiah’s tenure. The

study highlights how administrative vision of Kengal Hanumanthaiah brought

about radical transformation in state administration. The study also emphasises

how Kengal Hanumanthaiah’s democratic and secular attitude brought about all

round progress in Karnataka.