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Sri Krishna Committee Report



COMMITTEE FOR CONSULTATIONS
ON
THE SITUATION IN ANDHRA PRADESH
REPORT

THE COMMITTEE
CHAIRPERSON
Shri Justice B N Srikrishna (Retd.)
Former Judge, Supreme Court of India
MEMBER SECRETARY
Shri Vinod Kumar Duggal, IAS (Retd.)
Former Home Secretary, Government of India
MEMBERS
Prof (Dr.) Ranbir Singh
Vice Chancellor, National Law University, Delhi
Dr. Abusaleh Shariff
Chief Economist /Senior Fellow,
National Council of Applied Economic Research, Delhi
Prof (Dr.) Ravinder Kaur
Department of Humanities and Social Sciences, IIT, Delhi
The Inter State Council Secretariat (ISCS) provided full secretarial
assistance including technical and budgetary support to the Committee

CONTENTS

VOLUME – I
Prologue i
Approach and Methodology iv
Acknowledgements xii
List of Tables, Figures, Appendices xvii
Abbreviations xxix
Chapter 1 Developments in Andhra Pradesh-A Historical Background 1
Chapter 2 Regional Economic and Equity Analysis 63
Chapter 3 Education and Health 125
Chapter 4 Water Resources, Irrigation and Power Development 177
Chapter 5 Public Employment Issues 245
Chapter 6 Issues Relating to Hyderabad Metropolis 295
Chapter 7 Sociological and Cultural Issues 341
Chapter 8 Law & Order and Internal Security Dimensions 423
Chapter 9 The Way Forward 425

VOLUME – II
Appendices 1-173
Index 174

“In ages long past a great son of India, the Buddha, said that the only real victory was one in which all were equally victorious and there was defeat for no one. In the world today that is the only practical victory; any other way will lead to disaster”.
Pt. Jawaharlal Nehru speaking on „Disputes and Discord? in the United Nations General Assembly on October 3, 1960

Prologue
It has not been an easy task. The mandate for the Committee entailed voluminous research work and wide consultations with all stakeholders. During these consultations, the Committee discussed with political parties and concerned groups all events of a serious historical, political, economic, social and cultural significance pertaining to the state of Andhra Pradesh since the country?s independence. Essentially, the Committee, inter alia, was required to “examine the situation in the State of Andhra Pradesh with reference to the
demand for a separate State of Telangana as well as the demand for maintaining the present status of a United Andhra Pradesh ……. seek a range of solutions that would resolve the present difficult situation and promote the welfare of all sections of the people, to identify the optimal solutions for this purpose and to recommend a plan of action and a road map ………. and to make any other suggestions or recommendations that the Committee may deem appropriate”. Once the Committee began to investigate the issues in detail, the scope of the research became both wider and deeper. Although the Committee realized at the outset that for an issue of such magnitude with regional as well as national implications, it would be hard-pressed to
complete the task in the time allotted, it was equally conscious that any delay in the submission of the Report could only be detrimental to the cause and that delay may even provoke people?s emotions, possibly with serious consequences. The timely completion and submission of the Report was, therefore, given the highest priority by the Committee. We only hope that the efforts invested have done justice to the task at hand.

2. To look back, Andhra Pradesh was formed in 1956 as the first linguistic (Telugu) state with the merger of two different regions, with a majority of the people opting for integration and the rest, forming a sizable section, yearning for an independent identity for Telangana region. The formation of the state was somewhat conditional; brought about through the “Gentlemen?s Agreement”, the objective of which was to bring the less developed region of Telangana on par with the rest of the state. This goal, which looked achievable at the time, however, was not fully realized. Disaffection on both the Telangana and the Andhra sides came to a head in the late sixties and early seventies with both sides, at one point, wishing to go their separate ways. At that time, the Six Point Formula ushered in by Smt. Indira Gandhi, and agreed to by both sides, served to dissolve the tension and keep the state united. Subsequently, the state saw significant economic and social progress for over three decades. As a result, Andhra Pradesh today stands as
one of the front runners among the progressive states in the country. Indeed, it could arguably be said that this very progress has led Telangana to revive the demand for a separate state in order to gain greater political space and to bridge more rapidly the remaining, though diminishing, disparities. The resulting agitation which posed a serious law and order problem in the state in late 2009 – early 2010, eventually led to the constitution of this Committee.

3. The details of the approach and methodology followed by the Committee for completing the task are outlined later in this section of the Report while the comprehensive discussion on the subjects investigated has been covered in the subsequent portion. After preliminary meetings, and on examination of the memoranda received from various stakeholders and the general public, the areas needing research and investigation were identified by the Committee. These areas include Historical Background; Regional
Economic and Equity Analysis; Education and Health; Water Resources, Irrigation and Power Development; Issues relating to Hyderabad Metropolis; Public Employment; Sociological and Cultural issues; and last but not the least the Internal Security dimensions. Every effort was made to collect exact data and information on these subjects which was analysed thoroughly and as accurately as possible. The legal and Constitutional aspects and the framework required for various possible options for resolution of the issue have been highlighted in Chapter 9 of the Report titled “The Way Forward”.

4. At the end of the investigation, it began to appear that there was a case both for a separate Telangana as well as for keeping the state united. Some other options, particularly bringing into focus the issue of backwardness of Rayalaseema region and some other parts of the state, were also
suggested by different stakeholders and these too have been examined. After considering all aspects, the Committee found the balance tilting in favour of keeping the state united, though some valid and strong reasons that had continued to cause discontent in Telangana region since its merger indicated that the demand for separation was also not entirely unjustified. All these aspects have been discussed in detail in Chapter 9 of the Report and conclusions arrived at. The mandate given to the Committee having been
fulfilled, the Committee now hopes that the maturity of our governance system will lead to a rightful resolution of this contentious issue.

APPROACH AND METHODOLOGY

The Committee and its Terms of Reference
Pursuant to the Union Home Minister’s meeting with the eight recognized political parties of Andhra Pradesh on January 5, 2010, the Government of India constituted a Committee for consultations on the situation in Andhra Pradesh (CCSAP), with the following composition, vide Home Secretary’s d.o. letter dated February 3, 2010 (Appendix – AM.1), to hold wide ranging consultations with all sections of the people including all
the political parties and various groups , with a view to examine the demand for a separate State of Telangana as well as for maintaining the present status of a united Andhra Pradesh:

(1) Shri Justice B.N. Srikrishna,
Retired Judge, Supreme Court of India ….. Chairman

(2) Prof. (Dr.) Ranbir Singh,
Vice Chancellor, National Law University, Delhi ….. Member

(3) Dr. Abusaleh Shariff,
Senior Research Fellow,
International Food Policy Research Institute, Delhi1 …..Member

(4) Prof. (Dr.) Ravinder Kaur,
Professor, Department of Humanities and Social Sciences,
Indian Institute of Technology Delhi ….. Member

(5) Shri V.K. Duggal, IAS (Retd.),
Former Union Home Secretary ….. Member Secretary
The Chairman, the Member Secretary and the Members, accordingly,
joined the Committee on February 3, 2010. The Chairman was accorded the status of the sitting Supreme Court Judge and the Member Secretary, the rank of a Union Minister of State, vide Ministry of Home Affairs’ letter No. 1 Now Chief Economist/Senior Fellow, National Council of Applied Economic Research,
Delhi 12012/1/2009 – SR (Pt. – I) dated March 3, 2010, read with Ministry of Home Affairs’ letter No. IV/12013/9/2004 – CSR dated August 14, 2007. The three Members were appointed on Part-Time basis (Appendices – AM.2 and AM.3). The Terms of Reference of the Committee, as reproduced below, were notified vide d.o. letter No. 12012/1/2009 – SR dated February 12, 2010, of Special Secretary, Ministry of Home Affairs (Appendix – AM.4):-

(1) To examine the situation in the State of Andhra Pradesh with reference to the demand for a separate State of Telangana as well as the demand for maintaining the present status of a united Andhra Pradesh.

(2) To review the developments in the State since its formation and their impact on the progress and development of the different regions of the State.

(3) To examine the impact of the recent developments in the State on the different sections of the people such as women, children, students, minorities, other backward classes, scheduled castes and scheduled tribes.

(4) To identify the key issues that must be addressed while considering the matters mentioned in items (1), (2) and (3) above.

(5) To consult all sections of the people, especially the political parties, on the aforesaid matters and elicit their views; to seek from the political parties and other organizations a range of solutions that would resolve the present difficult situation and promote the welfare of all sections of the people; to identify the optimal solutions for this purpose; and to recommend a plan of action and a road map.

(6) To consult other organizations of civil society such as industry, trade, trade unions, farmers’ organizations, women’s organizations and students’ organizations on the aforesaid matters and elicit their views with specific reference to the all round development of the different regions of the State.

(7) To make any other suggestion or recommendation that the Committee may deem appropriate.

The Committee was mandated to submit its Report by December 31, 2010.
The first meeting of the Committee was held in Delhi on February 13, 2010.

The Basic Approach
The first task before the Committee was to decide its approach and methodology to fulfil the mandate given by the Government. While working out the approach and methodology for its study, the Committee kept in mind the Terms of Reference as mentioned above. After exhaustive internal discussions, and going by the sensitive nature of the subject, the Committee decided to adopt a participatory and consultative approach for the completion of its task. Besides, the Gazette Notification No. 12012/1/2009 – SR (Pt –I) dated May 4, 2010 (Appendix – AM.5) had also given clear support to this procedure, while at the same time specifying its working parameters. The Notification, inter alia, stated:
“The Committee will devise its own procedure for the discharge of its functions, and the Committee may, if it deems it necessary to do so, have investigation or examination of such matters and by such persons as it may consider appropriate. The Ministries and Departments of the Government of India shall furnish such information and documents and provide assistance as may be required by the Committee from time to time.”
To enable the Committee to carry out its mandate, Ministry of Home Affairs, Vide its letter No. 12012/1/2009 – SR dated March 16, 2010 (Appendix – AM.6), sanctioned a complement of 28 officers and staff. In
addition, Ministry of Home Affairs, vide its Office Memorandum No. 12012/1/2009 – SR dated March 11, 2010, read with its Office Memorandum of even number dated March 12, 2010 (Appendices – AM.7 and AM.8),
conveyed that Inter-State Council Secretariat (ISCS) will provide full secretarial assistance, including technical and budgetary support, to the Committee. For the first few weeks, the Committee worked with a skeleton staff and minimal secretarial assistance and as such it took some time to set up the necessary office infrastructure. This period was, however, used to collect and study the existing material related to the State of Andhra Pradesh with particular regard to the Terms of Reference. The basic approach having been decided, the Committee evolved the following methodology to achieve its mandated task:-

(a) To start with, to invite the views and the suggestions from the members of the public as well as other stakeholders by issuing a Public Notice in the National and State print media.

(b) To hold consultations with various political parties and other identified groups.

(c) To commission analytical and empirical studies on complex and vital issues having significant bearing on the subject through subject matter Experts as well as Academic and Research Institutions of repute.

(d) To undertake field visits to districts and villages to get first hand understanding of the problems at the grass roots level.

(e) To hold one-to-one in depth discussions with eminent personalities such as intellectuals, senior politicians, retired bureaucrats, legal luminaries, etc.

(f) To collect all needed information and data from the Government of Andhra Pradesh, Ministries and Departments of the Government of India and other concerned institutions.

(g) To carry out internal analysis and assessment of the issues based on the feedback and inputs received through above procedure.

(h) And finally, based on the extensive research and consultations, to dedicate the last about 2-3 months of the tenure of the Committee for preparation and submission of the Report to the Government. It may thus be seen that the work of the Committee, according to the methodology decided as above, was to be broadly completed into two phases. While the first phase included building of the complete information bank
pertaining to the subject, the second phase included internal analysis of the issues and preparation and submission of the Report to the Government.

The details of the approach and methodology adopted and the work plan of the Committee are briefly discussed in the following Paragraphs.

The Public Notices
Given the scope of the work assigned and its significance, a Public Notice (Appendix – AM.9) was published on February 20, 2010, in 5 major English newspapers of Delhi and 32 Telugu, English, Urdu and Hindi newspapers of Andhra Pradesh, covering all its regions, inviting the views and the suggestions from the political parties and groups representing different interests including individuals, organizations, institutions and associations on the various issues as mentioned in the Terms of Reference, within 30 days of the publication of the Notice. The underlying idea for the issue of a Public Notice was to consult all sections of the people, especially the political parties, industry, trade, trade unions, farmers’ organizations, women’s organizations, students’ organizations, representatives of minorities etc. and to elicit their views and the suggestions in the matter. In addition to the above, Member
Secretary also wrote semi-officially to the leaders in-charge of the eight recognized political parties of Andhra Pradesh, on February 18, 2010, and forwarded to them an advance copy of the Public Notice (Appendix –AM.10). While the above time limit of 30 days stipulated in the Public Notice published on February 20, 2010, was to expire on March 21, 2010, requests had been received by the Committee for extension of the date for submission of the responses on the ground that some more time was required as the
issues involved required in-depth study and examination. A second Public Notice (Appendix – AM.11) was, accordingly, brought out on March 22, 2010, in the same 37 newspapers in which the first Public Notice had been published, extending the time limit for submission of the responses upto April 10, 2010. There was overwhelming response to the two Public Notices from the various sections of society, including the political parties, and a very large number of Memoranda / Representations were received. A third Public Notice
(Appendix – AM.12) was published in the same 37 newspapers on December 28, 2010, thanking all the stakeholders for their help and cooperation as well as for their well-considered views and suggestions.

The Studies
As some highly complex and technical subjects, having bearing on the mandate given to the Committee, were involved, approval of the Ministry of Home Affairs was sought and obtained to commission studies on such issues. The following four studies were, accordingly, awarded with a view to facilitate the task of the Committee:-
(1) Study on “Issues relating to Water Resources and Irrigation in Andhra Pradesh” – to Shri A.D. Mohile, former Chairman of the Central Water Commission (CWC).

(2) Study on “Issues relating to Power Sector in Andhra Pradesh” – to Shri V. B. Gupta, former Chief Engineer of the Central Electricity Authority (CEA).

(3) Study on “Issues relating to discrimination, if any, in the matters of employment in the Government of Andhra Pradesh and reservation in educational institutions in respect of Telangana region, pursuant to
constitutional provisions under Article 371D, G.O. 610 and various other assurances / agreements on this subject” – to Shri Mukesh Kacker, IAS (Retd.), Director General, Institute for Regulation and Competition, New
Delhi.

(4) Study on “Issues relating to Greater Hyderabad” – to the Centre for Policy Research (CPR), New Delhi.
The Terms of Reference for the above studies were decided after detailed discussion. The domain of the studies was limited to technical, financial, legal, constitutional, social and economic aspects only, within the
overall ambit of the Terms of Reference of the Committee. The selection of the Experts / Institutions to conduct the studies was made based on their repute and expertise in the relevant fields. The progress of the work of the experts was constantly monitored and before the submission of final reports, the draft reports were examined and evaluated by the Committee and comments, wherever considered necessary, conveyed to ensure that all relevant issues had been analyzed and included.

The Consultations
Consultations with the various groups were broadly done in two phases. In the first phase, consultation process started immediately after the publication of the first Public Notice on February 20, 2010, when the political parties, concerned groups and individuals started handing over their respective Memoranda / Representations to the Committee. Brief consultations, as such, took place at that time with these groups / individuals at the level of Member Secretary at Delhi. In the second phase, formal meetings were organized with the various political parties and other groups, starting with the first meeting at Delhi, on April 16, 2010. After that, consultations were held mostly in Hyderabad with over one hundred groups, comprising political parties and other social and economic groups etc. A list of meetings of the Committee held in Delhi / Hyderabad with different political parties / groups / organizations is at Appendix – AM.13. These consultations
proved to be a great source of information and afforded very useful insights into the issues involved.
The Field Visits The Committee or its Members individually visited all the 23 districts of the State and several villages to get a first hand feel at the ground level.
These visits were well organized. During its visit to the districts / villages, the Committee received utmost support and cooperation from the political parties and the general public. The information received from them was immensely useful to the Committee. The Meetings of the Committee / Members The Committee had, right in the beginning, decided that as far as possible it would formally meet at least twice a month. In all, the Committee, since its constitution in February, 2010, met 34 times (Appendix – AM.14). As a procedure, between the meetings of the Committee, the Member Secretary held issue based meetings with the Members, whenever required, to arrive at preliminary conclusions. The conclusions reached in these discussions were placed before the full Committee for approval in its subsequent meeting. The Report Internal analysis and assessment of the issues involved was carried out by the Committee based on the feedback and inputs received through the above procedure. The Committee has, thereafter, prepared the Report and
submitted the same to the Government. The Committee has the satisfaction of having completed its task competently and professionally in a most desirable manner and in making the Report as exhaustive as possible within the given timeframe.

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