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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
4
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.
13
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.
14
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.
15
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.
16
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.
17
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
18
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.
20
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.
21
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.
22
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.
23
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.
24
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.
25
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.
26
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.
27
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.
28
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.
29
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.
30
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.
31
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.
32
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.
33
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
34
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.
35
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.
36
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
37
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.
38
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.
39
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.