Zonal Councils in the Indian Federal System A Case Study Shriram Maheshwari The functioning of the Central during the seven years from its inception to 1963 refutes the many criticisms levelled against the institution of zonal councils in our federal system. The fear that these Councils would become the proverbial fifth wheel in the administrative coach serving purpose other than impeding speed and efficiency has proved entirely unfounded. Nor have the Councils become one other tier in the power hierarchy. The States constituting a Zonal Council are not required to get the clear­ ance of the Council before proceeding with any programme or policy. Though the Zonal Councils are the Centre's creation and the Union Home Minister is the Chairman of all the Councils, it has not happened that in their operation the Councils have functioned as handmaids of the Centre. Use of the Councils to persuade the States to accept some policies of the Central Government is just one aspect of the role of the Councils. If it is not trite that the Zonal Councils have been used to weaken the federal system by the Centre encroach- ing on the spheres of the States, the opposite is also not true. The formation of the Councils has in no way created a challenge to the authority of the Centre, nor is there any possibility of this happening in future. The Council's working is regulated by the Union Home Minister and the Joint Secretary of the Council, who is a nominee of the , is virtually the resident agent of the Central Government in the Zone, exercising ad- ministrative control over the Secretariat of the Council. The Zonal Councils have functioned as purely advisory bodies without exercising anything like coercive powers against either the Centre or the States.

ZONAL Councils, set up under the viations. The over-all conclusions projects, there is constant and States Re-organisation Act, 1956, I emerging from the present study may, daily need for co-operation have as their avowed object the deve­ therefore, generally hold good in the between the two Governments. lopment of "co-operative working" to case of other Councils as well. counter "too acute a State-conscious­ (iii) Puller utilisation of Power pro­ ness which has been encouraged even The consists jects near the border between more by arguments about linguism and of , the largest State of the two States calls for increas­ the like." They have been called upon the Indian Union from the point of ed co-operation and understand, to promote inter-State co-operation and population, and , the ing between them. It is not co-ordination, this being obviously a largest in respect of area. It rovers unlikely that while demand for necessary pre-requisite for the ordered slightly less than one-fourth of the power exists in one State, the progress of the individual States no total area of the country, and is in­ potential for power general ion Jess than of the nation as a whole. habited by one-fourth, approximately, of may abound in a' contiguous the country's population. This Zone is These Councils, thus, represent an inte­ area falling within the other the largest in area, and in regard to resting experiment in co-operative State. "For the achievement of population is is second only to the federalism, forming a part of the com­ optimum benefits development Eastern Zone. Yet, of all the Zones, plex of processes for relieving, or, a! schemes of different States have this one manifests the highest degree any rate, reducing the strains and to be clearly co-ordinated. Water of linguistic homogeneity. Consequent, stresses inherent in a federal polity. stored in the reservoirs in one ly, no psychological barriers, born of In particular, they may make recom­ State may be used with advant­ differences in the language spoken at mendations with regard to: age for irrigation and power different parts, have confronted the generation in the adjoining "(a) any matter of common interest Central Zonal Council. Happily placed State. Similarly, power availa­ in the field of economic and in this respect, it can usefully address ble in one State may be distri­ social planning; itself to quite a few problems facing buted in other States. In certain (b) any matter concerning border the participating States of Uttar Pra­ cases, it may be necessary to disputes, linguistic minorities or desh and Madhya Pradesh. In parti­ divert waters from one basin to inter-State transport; cular, the following problems may be the other for the benefit of the solved more effectively if tackled on (c) any matter connected ,with or region as a whole. Co-operation a zonal basis: arising out of the re-organisa­ between the States is therefore, tion of the States under this (1) The problem of dacoity in the essential for investigations, road Act."2 Chambal ravines and in the surveys, allocation of waters contiguous areas calls for inter- and power generated and shar­ The present paper is restricted to the ing of their costs.4 discussion of the Central Zonal Coun­ State administrative arrange­ 3 ments. cil. Each Council, it is true, has The Central Zonal Council was in­ developed its own nuances and under­ (ii) The border between U P and augurated on May J. 1957, and had tones, and, therefore, differs from its M P is, in the opinion of many, held five meetings until 1963: counterparts both in matters of details not as rational as it could be; First meeting: May 1. 1957; and positive achievements, Neverthe­ and in matters such as the con­ Second meeting: January 4, 3 958; less the common institutional charac­ struction and maintenance of Third meeting: June 22, 1958; teristics of these Councils do not, per­ roads, administration of justice, Fourth meeting: August 28, 1960; haps, make for any fundamental de­ implementation of development Fifth meeting: January 29 and 30, 1963, 1131 July 17, 1965 THE ECONOMIC WEEKLY

It may be noted that the Council in the north of M P and scuth they submit the results of their has not been meeting at regular Inter­ of UP. deliberations to the Council . which vals and the interval between succes­ then takes appropriate decisions. The (20) Appointment of a 'study group' sive meetings has been setting longer. Central Zonal Council had appointed to examine the Motor Vehicles In course of these five meetings the the following committees, each entrust­ Rules of both the States with a Council discussed 67 items including ed with specific problems : view to ensuring more smooth items concerning purely procedural (1) Man power Planning Committee, matters. This number also includes the operation of both goods and consisting of Chief Secretaries, Develop­ items that figured on the agenda on passenger road transport ser­ ment Commissioners, and Re-organisa­ an earlier occasion as well but on vices on inter-State routes and tion (or Integration) Officers of the two which the discussion could not be connected reciprocal arrange­ States, to study the man-power pro­ completed, or was postponed for con­ ments. blem in the Zone. sideration at the subsequent meeting (21) Examination of possibilities of of the Council. Below is a list of the extending irrigation from Rang- (2) Power Development (Technical) more important subjects discussed by wan reservoir and Ken canal in Committee for power development on the Central Zonal Council during the M P by UP engineers. Zonal basis, consisting of the follow- seven years to 1963. (22) Improvement of communica­ iOg: tions between U P and M P. (i) a representative of the Central (1) Agricultural production pro­ (23) Implementation of the safe­ Water and Power Commission; gramme for achieving the re- guards for linguistic minorities (ii) a representative of the Central vised production targets, in UP and MP. Ministry of Commerce and Industry; (2) Recasting of State plans in con­ (iii) Chief Engineers of the Electri­ sequence of States' reorganisa­ As mentioned earlier, the Central city Departments, and/or Electricity tion. Zonal Council met five times since its Boards of the two States; (3) Man-power planning. inception to 1963, the number of par­ (iv) two representatives of the (4) Acquisition of land for Rihand ticipants at a meeting fluctuating bet­ ween 14 and 19. This number includes Development Commissioners of each of dam. the States; (5) Supply of electric energy and the Chairman (who is the Central Home Minister), the ministers including the (v) Directors of Industries of the water for irrigation and other Chief Ministers of the participating two States; purposes to Madhya Pradesh States, their 'advisers', and some senior (vi) a representative of the Federa­ from Rihand dam. officials of the Central Government In tion of Electricity Undertakings of (6) Supply of water and power to addition to the Chief Ministers of both India; M P from Matatila dam. the States, there are, as a rule, one or (vii) a representative of the Natural (7) Development of Chitrakut and two other ministers from each State. Resources Division of the Planning surrounding areas. Among the 'advisers' are the Chief Commission; (8) Power development on Zonal Secretaries and Development Secreta­ (viii) Joint Secretary of the Central basis in the Central Zone, ries of both the States. The Council, Zonal Council. (9) Recruitment of one-third of the thus, partakes of the features of a (3) On M P's request for supply of number of the High Court summit meeting of the chief executives power and water to M P from Rihand judges from outside the State. of the member-States. A senior official dam, the Council appointed a com­ (10) Inclusion in the 'core' of the of the Planning Commission has also mittee to consider this question. It Second Five Year Plan of all been attending the meetings. His asso­ consisted of the following : power development schemes ciation with the deliberations of the (i) Secretaries of the Irrigation under implementation in the Council is reflective of an urge to and Power Departments of both the Zone. make the Council attend to problems States; (11) Inclusion of all power projects of regional development and planning (ii) Chief Engineers of the depart, of the Zone in the Second Plan. in a more concentrated way. Besides, ment of Irrigation and Power of both (12) Formation of a Common Police there are officials of the Central Gov­ the States; Reserve Force in the Central ernment attending the meetings. The (iii) representatives of the Finance Zone. Central Ministry of Home Affairs is Departments of both the States; and, (13) Development of border roads. invariably represented by 2/4 officials, (vi) Joint Secretary of the Central generally of the rank of Deputy Secre­ Zonal Council. (14) Joint selection of technical per­ tary and above. The representatives of (4) A committee consisting of the sonnel. other Central Ministries which have following was appointed to examine (15) Establishment of Joint Office of something to do with, or say on, some the feasibility of having a common the Administrator-General and items figuring on the agenda in a par­ Police Reserve Force for the Zone, and Official Trustee for the Central ticular meeting, are also invited. Zone. to draw up a scheme therefor: (16) Maintenance of inter-State liver The nature of membership of the (i) Secretary, Central Zonal Coun­ bridges. Council, its infrequent meetings, and cil (Chief Secretary, M P); (17) Co-ordination of technical edu­ short one-day sessions do not make it (ii) Home Secretaries of both the cational facilities in the two a suitable body for going into details States; States. of administrative policies. Inevitably, (iii) Inspectors-General of Police of (18) Conversion of certain State therefore, it has to depend upon com­ both the States; Highways into National High­ mittees,8 at one stage or the other, for (iv) Joint Secretary of the Central ways. most of its work. These committees, Zonal Council. (19) Integrated road development comprising officials of the two Govern­ (5) A committee, consisting of the programme for the border areas ments, can meet more frequently and following, to prepare an integrated 1132 THE ECONOMIC WEEKLY July 17, 1965 road development programme for bor­ decisions taken by the Chief Ministers' ing to compensation for lands, etc, ac­ der areas of the two States in the Conference relating to safeguards for quired in MP for Rihand dam, but as South of U P and north of MP: linguistic minorities and national inte­ regards additional compensation to dis­ (i) Joint Secretary of the Central gration. placed persons for purposes of reset­ Zonal Council; tlement, it agreed that payment be In the nature of things, all these (ii) Chief Engineer, M P; made at the rate of Rs 125 instead of committees (except Nos 2 and 11) have (iii) Chief Engineer, U P. Rs 250 per family. Similarly, the com­ been of an ad hoc nature, ceasing to mittee to inquire into the question of (6) A committee was appointed to exist after completing the investigation make recommendations to determine supply of power and water from Rihand of the problems with which they were dam to MP could not make unanimous the principles on which payment should charged. The Power Development be made for lands, houses, etc, for recommendations, The Zonal Council (Technical) Committee, which was ori­ decided that the Chief Ministers of UP Rihand dam. It consisted of the follow­ ginally set up as an ad hoc body, was ing: and MP should try to settle the matter later converted into a standing one in between themselves. (i) Joint Secretary, Central Zonal view of the obvious importance of Council; power planning on zonal basis. As said earlier, the Central Minister (ii) Revenue Secretaries of both the for Home Affairs is the Chairman of States: Committees and Policy-Making the Council and the Chief Ministers of (iii) Secretary, Public Works De­ the two States hold office as vice-chair­ partment, M P; It may be-mentioned that the for­ men alternatively. The Chief Secretary (iv) Secretary, Irrigation & Power, mation of these committees may either of the State is the Secretary of the U P. precede policy making or follow it. Council by rotation in the same order. Generally the Zonal Council would wait The office of Secretary being floating in (7) A committee, consisting of the until the problem has been thoroughly following, to draw up a scheme for the nature, the real functionary is the Joint explored by a committee. It has, how­ Secretary who should be a person "not joint control of ferries crossing Cham- ever, happened that a committee was bal and other rivers in the border areas in the service of any of the States re­ set up after a policy had already secur­ presented in the Council". A .senior of Madhya Pradesh: ed approval, and in such a case what (i) Secretaries of the Public Works official of the Central Home Ministry the committee is required to do is to bus so far been appointed in this post. Departments of both the States; prepare a detailed scheme with a view (ii) Secretaries of the Local-Self Subject to the control of the Secretary, to its implementation. The committee the Joint Secretary is competent to per­ Government Departments of both the entrusted with the drawing up of a States; form all or any of the functions of the scheme for the joint control of ferries Secretary and he also acts as the mem­ (iii) Home Secretaries of both the plyirrg between either banks of the States; ber-secretary'of every committee cons­ Chambal and other rivers in the border tituted by the Council. The meetings of (iv) Joint Secretary of the Central areas of Madhya Pradesh, is in exam­ Zonal Council. the Council are held by rotation in UP ple of the latter type of committees. and MP but the office of the Council is (8) A committee, consisting of the Most of the committees have, however, located at (UP). The sanc­ following, to prepare a progress report been constituted preparatory to policy­ tioned strength of the staff of the on the Matatila dam and to suggest making. Council Secretariat is as follows: ways and means for expediting its completion: The pattern of composition of these (i) Secretary 1 (i) a representative of the Central committees reveals that they are man­ (ii) Joint Secretary 1 Ministry of Irrigation and Power; ned exclusively by officials, the joint (iii) Section Officer 1 (ii) a representative of each of the Secretary of the Council acting as Mem­ (iv) Upper Division Clerk-cum- two States; ber-Secretary of each committee. The Cashier 1 (iii) Joint Secretary of the Central Standing Committee of the two Chief (v) Lower Division Clerks 2 Zonal Council. Ministers is the only instance of a com. (vi) Class IV Staff 6 mittee whose membership is of a poli­ The work of the Central Zonal Coun­ (9) A committee, consisting of Chief tical nature. These committees act as cil may, perhaps, be better appreciated Engineers of UP and MP, was appoint­ the arm of the Council, and certainly if one studies its role ed to suggest a suitable method for the do not render the latter less effective, sharing of income from inter-State as the final decision rests, obviously, (i) as an institution to help in the bridges. with the Zonal Council Itself. The implementation of certain national (10) A "study group" consisting of Committee to determine the principles policies and objectives: the following to examine the Motor on which payments were to be made (ii) as an institution to help pro­ Vehicles Rules of both the States with for lands, houses, etc, to be acquired mote planning on zonal instead of a view suggesting amendment of the in MP for Rihand dam made unanimous State basis; Rules to ensure smoother operation of recommendations except on one point. (iii) as a forum for the participating both goods and passenger road trans­ The point in dispute related to addi­ States to put up a united stand on cer­ port services on interstate routes: . tional compensation payable to dis­ tain matters against; the Centre: and (i) Road Transport Commissioners placed persons. While MP was insistent (iv) as a forum for resolving inter- of both the States; upon payment being made at the rate State disputes. (ii) Joint Secretary of the Central of Rs 250 per family of displaced per­ The Central Government has in the Zonal Council. sons, UP was inclined to pay only at .Central Zonal Council an institution, to (11) A Standing Committee of the the rate payable In its own State, which persuade the participating States to Fall Chief Ministers of both the States to was Rs 125 per family. The Zonal in line with centrally sponsored objec­ review from time to time the progress Council accepted the recommendations tives and policies. The delicacy of this of implementation of the various policy of the committee on all matters relat­ task is obvious in a federal constitu- 1133 July 17, 1965 THE ECONOMIC WEEKLY

1134 THE ECONOMIC WEEKLY July 17, 1965 tion which demarcates the. spheres of context of the fissiparous tendencies assessment of man-power requirements. activities of the Centre and States. The increasingly coming to the surface in The Zonal Council set up at its first participating States in the Central Zonal the country. Similarly, the Central meeting a Committee to study man­ Council being predominantly agricul­ Government pressed for acceptance of power problems of the entire zone. tural, the Central Government has been its proposal for recruitment of one- The Council has succeeded in evolving exhorting them to step up food produc­ third of the High Court judges of a a new approach to the problem of tion. The Chairman, for instance, ob­ State from outside that State. This power generation which is now being' served at the second meeting of the proposal was accepted "in principle'" tackled keeping in view the require­ Council: "The food stiuation, I am at the third meeting of the Council, ments of the Zone as a whole, thereby sorry to say, has deteriorated since we held in January 1958. The central making power available throughout the met last, and both the states included Government, moreover, has won over Zone. The proposal for power deve­ in this Zone are seriously affected. . . . the participating States to its proposal lopment on zonal basis, sponsored by Our planned development and stability for a common Police Reserve Force. the Central Ministry of Irrigation and of our economy depend vitally on our Initially, this proposal encountered Power, was approved at the second achieving self-sufficiency in food. It some opposition but was finally carried meeting of the Council held in 1958 calls for a total effort on our part to through. The Council could not for and the Power Development Commit­ bring additional areas under "cultivation some time, take any decision on the tee has been in existence. and to increase food output per acre. formation of a common Police Reserve I hope, each meeting of the Zonal Force, as the- Chief Minister of M P, Council will serve-to focus attention to supported by his U P counterpart, Area Approach to Development this national issue of vital importance." sought postponement in order to give The problem of integrated road Again, alarmed at the upsurge of dis­ further thought to the proposal and integrating forces in the country, the development for border areas of the examine in greater detail the financial two States in the South of U P and Chairman sounded a warning at the implications involved. Occasionally, fourth meeting of the Council held in north of M P has been receiving the some concession has to be made la attention of the Council since 1938, August 1960; "Nearer home, while we the sentiments of the States to make are engaged in the great task of the when it constituted a committee to easier the "selling" of such proposals. prepare an integrated programme of economic reconstruction of India, we This may be illustrated by the Central are faced with a challenge to the inte­ road development for border areas. Government's proposal regarding the As a result of the deliberations in the grity of our country and the freedom appointment of one-third of the of our people ... In a country so large Council, and also of the offer of seme High Court judges from outside the financial assistance from the Central as ours, it may be difficult to cast off State. This proposal has been accept­ completely regional and other lesser Government, agreement has been con­ ed but the Centre had to make one cluded for the construction of bridges affiliations but unless the supremacy of concession, viz, that it has to secure national interests, is unreservedly ac­ over Chambal and Yamuna so that the prior approval of the State in the Bhind--Etawah Road, which cepted, our liberty itself may be great­ which the appointment is to be made. ly imperilled, Our independence would crosses these two rivers, can be com­ Finally, the Central Zonal Council pleted. Mention may also he made be incomplete, fragmentary and even approved the proposal made by the transient if we do not firmly set our here of the joint selection of technical Central Government, for the exchange personnel by one Public Service Com- face against all the narrow loyalties of agenda and proceedings between which stand in the way of our building mission instead of the hitherto follow­ the five Zonal Councils. Although a ed practice of selection by the respec­ an abiding sense of a harmoniously in­ minor measure in itself, this sets the tegrated nationhood." tive Commissions. This, to be sure, functioning of the Council in a much has necessitated some relaxation in wider context. rules, and requisite instructions have accordingly been issued to the respec- Use for Implementing Policies The permanent association with the nve Commissions. Finally, an illustra­ The Central Government also uses Zonal Council of a high-ranking official tion of planning on a Zonal level has the Zonal Council to implement its of the Planning Commission is calculated been provided in the vicinity of Chitra- policies. The Centrally sponsored more to make the Council planning- kut, in the District of Banda (U P), safeguards for linguistie minorities conscious. The inclusion of a repre­ which is important as a pilgrim centre. have been accepted by the Central sentative of the Natural Resources A joint development programme for Zonal Council and are being imple­ Division of the Planning Commission this area was proposed in the Council mented now. The Council has set up in the Power Development (Technical) in 1958. At the suggestion of the a Standing Committee comprising the Committee, set up by the Zonal Coun­ chairman, the two Governments have two Chief Ministers to review periodi­ cil in 1958, is a step in the same since agreed to allot a sum of Rs 50,000 cally the implementation of the direction. The Zonal Council has each for development work, in the various policy decisions taken by the been giving attention to schemes of first instance. The Zonal Council has Chief Ministers' Conference relating to mutual interest and concern since its approved of the setting-up of a deve­ safeguards for linguistic minorities and inception which is well borne out by lopment authority south of the river national integration. It has, also, programmes like those for man-power Mandakini under the M P Government agreed to implement the centrally planning in the Zone, power develop­ and a similar authority north of the evolved three-language formula, and, ment on zonal basis, integrated road river Mandakini under the U P Gov­ further, to dispense with the system development for border areas of the ernment, and, of the establishment of of compusory tests- in the regional two States, joint selection of technical a Joint Advisory Committee to prepare language for purposes of recruitment. personnel, etc. a development plan for the entire The Council is, thus, emerging as a region and to co-ordinate the working bulwark of national integration, which Of vital importance to the successful of these two bodies. This is an attempt is obviously an important role in the execution of the Five Year Plans is the 1135

THE ECONOMIC WEEKLY July 17, 1965 at evolving an area-approach to issues indicated a "very remote" possibility of could be made available from the of public administration, and such making any addition to the existing States' share of the Central Roads attempts as have been made may, National Highway System during the Fund. U P alone is to contribute for under wise political and administrative Third Five Year Plan. The two the bridge on Yamuna, while U P and leadership, develop into a widespread States, however, insisted that the M P are to make equal contribution practice in course of time. Central Government accept "in princi­ for the construction of the bridge on Just as the Central Government has ple" the conversion of the following Chambal. The Council further recom­ in the form of the Zonal Council an roads into National Highways : mended that the Central Government should contribute the balance of one- institution to secure the States com­ (i) S a u g a r - Chattarpur - Gonda- third of the cost of the two bridges. pliance with certain matters, the Tulsipur-Nepal Border Road; Similarly, on another occasion, the participating States, too, have a parallel (ii) Gwalior - Bhind . P i l i b h i t - opportunity to urge acceptance, by the financial commitment of the Central Pithorgarh-Dharchula - Lipulekh Government was sought to be increased Central Government, of their proposals Road; by putting up a united stand on certain in the case of another bridge, Naughat- (iii) Jhansi - Mauranipur - Nowgong- ghat bridge. Both the States again matters against the Centre. They have Satna-Bela Road. been to an extent successful in such combined on this issue, and as a result, united attempts. At the very first The proposal was accepted by the the Zonal Council recommended that meeting of the Council, the Chief Min­ Zonal Council, which forwarded it to the Central Government's contribution ister of U P referred to the need for the Union Ministry of Transport and towards the cost of Naughat-ghat a larger allotment of funds in the Communications for consideration. bridge be enhanced to one-third of central sector of the Five Year Plan. the cost, notwithstanding the original commitment limited to Rs 8 lakhs. The following issues may be cited as Use for Attracting Central Aid other illustrations of the use made of Fortunately, U P and M. P do not this forum by the States : These demands apart, the participat­ ing States have also been utilising the have any boundary disputes, such as (i) Inclusion in the 'core' of the Zonal Council for inducing greater have bedevilled the relations of some Second Five Year Plan of all financial involvement of the Central other Stales. The deliberations of the power development schemes Government in certain spheres. This Central Zonal Council have not, there­ under implementation in the may he illustrated by the following fore, been marred by injured feelings zone, examples. At the third meeting of the and acrimony. This, however, does (ii) Inclusion of all power projects Council there was a proposal for not imply that complaints are never of the Zone in the Third Five construction of bridges over Chambal heard at the meetings of the Zonal Year Plan, and" Yamuna on the Gwalior-Bhind- Council. Quite a few items figuring (iii) Conversion of certain State Etawah Road. The representatives of on the agenda relate to irrigation and Highways into National High­ M P remarked that out of the three power problems but these, it may be ways. bridges to be constructed, M P had added, do not appear to be the pecu- The first two suggestions emerged already constructed the bridge on the liar to this zone alone. Practically from the Power Development (Techni­ river Kauri in their territory, and every river-valley project in the coun­ cal) Committee, which had recommend­ requested that the bridge over the try has given rise to disputes among ed that (i) all power development river Yamuna should be constructed by the States through which the river schemes under implementation in the U P, while the bridge on the flows over the distribution of power zone should be included in the 'core' river Chambal, which forms the border and irrigation resources created. To of the Second Five Year Plan; and of the two States, should be construct­ come to this zone, M P, a comparative­ (ii) all power projects of the Zone ed by both the States jointly. But, as ly backward State, has thus been should be included in the Third Five all the available funds with both the insisting on an adequate supply of Year Plan. These proposals were States were already earmarked for the power and water from the Rihand and formally introduced in the Council by Plan, M P pressed for the Centre's Matalila Projects, both in U P, but the two States. The chairman and the financial contribution to the extent of (he catchment areas of which lie in representative of the Planning Com­ two-thirds of the cost of both the the north-east districts of M P. At mission were not favourable to be pro­ bridges. U P, on the other hand, ex­ the second meeting of the Council, posal; they emphasised difficulties of pressed its inability to provide funds M P moved for consideration the fol­ getting foreign exchange. On M P's for the construction of any of these lowing two items : suggestion that these two resolutions bridges because, in the first place, (i) supply of power and water for being of vital importance to both the these were not of great importance irrigation and other purposes to States, should be referred to the Plan­ from its point of view, and secondly, M P from Rihand dam: ning Commission, the Zonal Council because in its own territory there was (ii) supply of power and water to consented to pass these on to the felt a more pressing need for the M P from Matatila dam. Planning Commission together with construction of bridges at other places As the construction of Matatila dam copies of the discussions at the meet­ on both the Ganga and the Yamuna. had been lagging behind, the question ing. Although the material outcome It, therefore, urged that the Central of supply of power and water to M P of this proposal was practically nil, it Government should contribute two- was considered untimely. In fact, is an indication of how the States have thirds of the cost of construction of there has been in existence an agree­ not been mere camp-followers always. both the bridges while the balance ment between the two Governments Similarly, a united stand was taken on ' could be provided by the two States. signed as early as 1953, and it is to be the question of conversion of certain The Central Zonal Council, therefore, adhered to. The question of supply State Highways into National Highways. recommended that the Central Govern­ of power and water from the Rihand The representative of the Central Minis­ ment should examine whether two- dam was, however, entrusted to a try of Transport and Communications thirds of the cost of the two bridges Committee consisting of the officials 1137 July 17, 1965 THE ECONOMIC WEEKLY of both the States. This committee to enhance the status and prestige of ject is located, and further, inevitably succeeded in making agreed recom­ the Council by reinforcing its effective­ causes delay, which very often serves mendations in regard to sharing of ness. only to aggravate the existing dispute waters, compensation to be paid for by leading to a hardening of attitudes lands to be acquired for the dam, and on all sides. All this is injurious to utilisation of water for irrigation by Conclusions the cause of balanced regional develop­ "bunding up" in the upper reaches of The functioning of the Central Zonal ment, and, perhaps, calls for adminis­ the Rihand dam. It, however, could Council over the seven years to 1963 trative steps to bring all projects under not reach an agreement in regard to serves to dispose off the various criti­ particular regions under some form of the question of supply of power to M P cisms levelled against Zonal Councils. integrated control. and the price to be charged. The The fear that these Councils constitute Council thereupon asked the Chief the proverbial fifth wheel in the ad­ Notes Ministers to settle this matter between ministrative coach impending speed themselves. Success did not attend and efficiency has proved to be entirely 1 It may be noted that the States such informal efforts as were made by unfounded. An institution discussing, Reorganisation Commission (1953- them, and this problem remained with in the course of seven years, sixty- 55) made no mention of them in the Council. At its meeting held in seven items including items of a purely its -Report. January 1963 it again figured on the routine nature as well as those which 2 Section 21(2) of the States Re­ agenda. In deference to the Councils figured on the agenda more than once organisation Act, 1956 (henceforth desire, however, it was in formally hardly deserves this criticism. Further, referred to as the S R Act). discussed, in the first instance, between the participating States are not bound 3 the two Chief Ministers, and to en­ to first obtain clearance from the The S R Act has set up a Council able this get-together, the Council Council before adopting any course of for each of the following zones : even adjourned its meeting, and agreed action. The Council therefore, does not (i) Northern zone, (ii) Southern to continue deliberations the following constitute another level in the tradi­ zone, (iii) Eastern zone, (iv) Wes­ day. Nothing concrete emerged from tional hierarchy. It is also not entirely tern zone, and (v) Central zone. this informal discussion, and the Coun­ true that the Zonal Council is the 4 Agarwal, P P: 'A Note on the cil, when it resumed its sitting the handmaid of the Centre, brought into Experiences of the First Five Year following day, was virtually faced with existence to do the latter's bidding. Plan, in relation TO Irrigation and a deadlock. All it could do, however, True, the Zonal Councils are the Power Projects', in "Fourth Irriga­ was to convene a meeting of the Coun­ Centre's creation, the Home Minister tion and Power Seminar". Central cil the following month with the is the chairman of all the Councils Water and Power Commission, specific purpose of resolving this dis­ and the expenses incurred on Council New , 46-47. pute. As a result, the Council again are a charge upon the Central Govern­ 5 This is the trend in all the Zonal met in February 1963. The first day's ment. Nevertheless, acceptance of some Councils, The Eastern Zonal Coun­ discussion held out little hope of in centrally sponsored policies forms but cil, thus, met once in 1957, twice agreed solution, and, in an obvious one aspect of the performance of the in 1958, once in 1959, 1961 aid bid to keep the discussion going, the Zonal Council. Nor does it emerge 1962. It did not hold any meeting Council constituted a Committee of from the functioning of this body that during 1960. The Southern Zonal five officials to report "by tomorrow the Zonal Councils may grow powerful Council, too, mec twice in 1957 noon" on the question of sharing of to the extent of weakening the autho­ and 1958, and once in 1961 and power and water. Successive Meetings rity of the Centre. The Council's 1962. Similarly, the Northern helped to narrow down the points of working is regulated by the Home Zonal Council met twice in 1937 difference, and, ultimately, a resolution Minister, and the Joint Secretary of and 1959, and once in 1958 and agreeable to both the States emerged the Council is virtually the resident- 1961 It did not hold any meet­ many months later. agent of the Central Government in ing' in 1960. the Zone, exercising administrative 6 The dragging on of this dispute over control over the secretariat of the Provision has been made under a period of seven years and its even­ Council. Besides, the Council has a Section 18 of the S R Act for the tual solution bring to the fore two purely advisory status which obviously appointment of committees of the points worth noting. First, the inhibits the exercise of anything like Zonal Councils for studying any Council has no 'coercive' power to dictatorial powers over either the particular problem or for per­ compel compliance with its decisions. Centre or the participating States. forming such other functions as What is more, it is aware of its weak­ the Council may decide. The Act ness, for, despite the formal provision says: "A Zonal Council may In the end, a word may be said for voting incorporated in the statute from time to time by resolution itself, there is a marked reticence to about the dispute over the supply of passed at a meeting appoint invoke it, the intention obviously being power and water to M P. As disputes Committees of its members and to arrive at agreed solutions. In fact, of this nature have confronted other Advisers for performing such voting has never been resorted to so Zonal Councils as well, it is pertinent functions as may be specified in far. Secondly, frequent recourse to to ask : Should solution of problems the resolution and may associate informal channels of settlement under so vital as sharing of powers and with any such Committee such the aegis of the Council, yet outside water be allowed to depend upon the Ministers either for the Union or its direct control, has been encouraged moods of the States, particularly when for the States and such officers by the fact of the same political party the demand for power is everywhere serving either in connection with being in power both at the Centre and much in excess of available supply? the affairs of the Union or of the in the Slates. The resultant homoge­ The existing arrangement stands in States as may be nominated in that neous behavioural pattern has helped favour of the State in which the pro­ behalf by the Council". 1138