STATE GOVERNMENT
Our constitution provides for a Federal
Government, having separate system of administration for the Union and its
units, namely the States. The Constitution contains provisions for the government
of both.
The Constitution Makers had decided to
adopt the same pattern of Parliamentary system of Government in the States i.e.
a replica of Government at the Union. The only difference is that the
Constitutional Head of the Government in the State (i.e. Governor) is not
elected, either directly or indirectly, rather be is appointed by the President.
The Constitution lays down a uniform
structure for the State Government, in Part–VI of the Constitution, which is
applicable to all the states except the state of Jammu & Kashmir which has
a separate Constitution for the its State Government. Article 153 to 167 of
Indian Constitution deals with the State executive.
Articles
|
Provisions
|
Article 153-162
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The Governor
|
Article 163-164
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Council of Ministers
|
Article 165
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Advocate General for the
State
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Article 166-167
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Conduct of Government
Business
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The pattern of Government
in the States is the same as that for the Union, namely a Parliamentary System —
the executive had being a constitutional ruler who is to act according the
advice of Ministers responsible to the State Legislature.
STATE EXECUTIVE
GOVERNOR:
Article 153 states that
there shall be a Governor for each state. Same person can be appointed as
Governor for 2 or more states (7th amendment act 1956).
Article 154 states that the
executive power of the state is vested in him and is exercised by him either
directly or through officers subordinate to him.
IDIAN POLITY &
GOVERNANCE
Appointment & Tenure (Article 155 & 156):
•• Governor is the executive Head/Nominal Head of the State.
•• Governor of a State is appointed by the President.
•• Hold office during the pleasure of the President.
•• May resign by submitting his resignation to the President. Otherwise
the normal term of his office is 5 years.
•• Grounds for removal of the Governor are not mentioned in the
Constitution; however he must be involved in the gross deliquency like bribery,
treason or violation of the Constitution for such an action.
•• A President may transfer a Governor appointed to one State to
another State for rest of the term.
•• A Governor whose term has expired may be reappointed in the same
State or any other State.
Qualifications & Conditions for office (article
157 & 158) of Governor:
•• He must be –
1. . A citizen of India.
2. . Has attained 35 years of age.
3. . Not a member of parliament or state
legislature.
4. . Not hold any office of profit under the
government.
•• His emoluments, allowances and privileges are determined by
parliament by law.
•• The emoluments are charged on the Consolidated Fund of India and
cannot be diminished during his term of office.
•• If the same person acts as Governor of 2 or more states, the
Constitution provides that President may decide about the allocation of
emoluments of Governor among states proportion wise (Article 158(3A)).
Oath:
Article 159 says that the
Governor and every person discharging the functions of the Governor is to take
an oath or affirmation before the Chief Justice of the High Court of that state,
or in his absence, the senior-most judge of that court available.
Article 160 gives the
president the power to make such provision as he thinks fit for the discharge
of the functions of the Governor in any contingency not provided for in the
Constitution.
Executive Powers of Governor:
••
Article 166: All executive actions of the state are
to be taken in the name of the Governor. He acts as a representative of
President in the state. He has power to recommend President that the government
of the state cannot be carried on in accordance with the provisions of the
Constitution.
This leads to the imposition of President rule in the State under Article
356.
••
All major appointments in the state are made by the Governor – those of CM,
Ministers, and Advocate-General (and decide his remuneration), Chairman &
members of State Public Service Commission (PSC), State Election Commissioner
and Finance Commission. Members and Chairman of State PSC are however removed
by President.
••
He is the Chancellor of various universities in the state and appoints their
Vice-Chancellors.
Legislative Powers of Governor:
••
He is an integral part of the state legislature, though not a member of it, he
discharges some important legislative
functions.
••
He summons the house(s) of the legislature of state to meet at such a
time and place as he thinks fit.
••
He may prorogue the house(s) and dissolve
the legislative assembly.
••
He has right to reserve certain bills for the assent of the President [Article
200].
••
He nominates 1/6th of the members of Legislative Council having special
knowledge in literature, science, arts, cooperative movement and social
service.
••
He decides on the question of disqualification of a member of State Legislature
in consultation with Election Commission.
••
His most important power is the ordinance making power [Article 213].
••
But the Governor cannot issue an ordinance without the previous instructions
from the President in cases in which–
(a) Bill would have required his
previous sanction.
(b) R equired to be reserved under the
Constitution for the assent of the President.
••
The ordinances have to be approved by the state legislature, in the same way as
the Parliament does in case of Presidential ordinances.
••
The scope of the ordinance making power of the Governor is co-extensive with
the legislative powers of the State Legislature and is confined to the subjects
mentioned in state List and Concurrent List.
••
Submission of reports from Auditor General, State Public Service Commission,
State Finance Commission, etc. before the Legislature.
Discretionary powers of governor:
••
Discretion of the Governor is wider than that of the President. Article 163 (2)
provides that as to the question of matter of discretion, it is the Governor
himself who decides which matter falls in his discretion. And his action based
on such discretion shall not be called in question.
••
Though in most of the matters he has to act on the advice of Council of Ministers,
but there are some matters in which he can act according to his discretion.
••
He selects the CM if no party has clear-cut majority.
••
Dismissal of Ministry if he is convinced that it has lost majority support. But
SC in S.R. Bommai Vs UOI (1994) case directed that his opinion must not be
subjective and compulsory floor-testing must be done.
••
Dissolving the Legislative Assembly.
••
Submission of report to the President regarding failure of constitutional
machinery in the State.
••
Reservation of certain bills for the consideration of the President (Article
200). He must reserve the bill that endangers the position of high court. In
addition, he can also reserve the bills that are against the provisions of
Constitution, are against larger national interest or DPSP and those which deal
with compulsory acquisition of property under Article 31A.
Financial Powers of Governor:
••
A money bill cannot be introduced in the Legislative Assembly of the State
without the recommendation of the Governor.
••
No demand of grants can be made except on the recommendation of the Governor.
••
The Governor is required to cause to be laid before the house or houses of the
legislature “annual financial statements”, that is “Budget” [Article 202].
••
He constitutes a finance commission after every five years to review the
financial position of the panchyats and the municipalities.
Judicial powers of governor:
••
Governor appoints judges of the courts below HC.
••
He is consulted by the President before appointing judges of the HC.
••
Under Article 161 he can grant pardons, reprieves, remission of punishment to
the persons convicted under state laws. However he has no power to pardon a
sentence of death or remit sentence by the court martial (military court).
Other Powers:
The Governor receives the report
of the Auditor General and places it before the State Legislature. He places the report of the state Public Service Commission
along with the observations of the Council of Ministers before the State Legislature.
Comparison b/w President and Governor
President
|
Governor
|
The President is not only the Head of
the State and the Government, he is also the Commander-in-Chief of
the Armed Forces.
|
Each state has its own laws and the
Governor, who looks after internal governance of every state. He finalises
the budget of the state and also appoint judges in the
Courts.
|
The President cannot function without
the aid and advise of the Council of Ministers.
|
Governor can exist without the aid
and advice of the Council of Ministers.
|
The President can grant pardon,
reprieve, respite, suspension, remission of commutation in respect to
punishment or sentence by a Court Martial.
|
Governor can suspend, remit or
commute a death sentence. The Governor does not enjoy power of pardoning a
death sentence.
|
Every Ordinary Bill, after it is
passed by both the houses of the Parliament is presented to the President for
his
assent.
|
Every Ordinary bill after it is
passed by the Legislative
Assembly in case of a Unicameral Legislature
or both the Houses in case a Bicameral Legislature either in the first
instance or in the second instance is presented to the
Governor for his assent.
|
Every Money Bill after it is passed
by both the House of the Parliament is presented to the President for his
assent.
|
Every Money Bill after it is passed
by the State Legislature is presented to the Governor for his
assent.
|
A President needs no instructions for
making
an ordinance
|
Governor can make an ordinance
without the instructions from the President in certain cases.
|
Chief Minister
The Governor is assisted in the
discharge of his functions by a Council of Ministers headed by the Chief
Minister. He is the Real Executive Authority
(de facto executive). The Chief Minister is appointed by the Governor. Generally, the leader of the majority party in the State
Assembly is appointed Chief Minister, who holds position identical to that of
the Prime Minister at the Centre. He enjoys a term that runs parallel to that
of the State Legislature i.e., five years. However, if the term of the State
Legislature is extended, the tenure of the Chief Minister is also extended. The
Chief Minister recommends to the Governor the names of persons to be appointed
as members of the Council of Ministers, and allocates portfolios among them. He
can ask any minister to resign from the Council or drop him from the Council by
reshuffling it. He coordinates the working of various ministers and ensures
that the Council works as a team.
The Chief Minister is the link between
the Governor and the Council of Ministers and keeps the former informed of all decisions
of the Council. The Chief Minister takes active part in the deliberations of
the State Legislature.
He makes all important policy
announcements on the floor of the legislature and defends the policies of his
government in the house. He can recommend dissolution of the Legislative Assembly
to the Governor even before the expiry of its term. Generally this advise is
accepted by the Governor.
Council of Ministers (COM)
••
Article 163 (1) provides that there should be COM with Chief Minister as the
head to aid and advise the Governor in exercise of his functions.
••
The real executive authority of the state is vested in the COM, the Governor,
however is not bound to act by the advice of COM in all cases, as he can
exercise his discretionary powers.
••
Any person may be appointed as a minister, but he ceases to be a minister if he
doesn’t become a member of the state legislature within 6 months (Article 164).
••
Salaries and allowances of ministers are governed by laws made by the state
legislature.
••
Ministry which loses the confidence of the legislative assembly should resign.
The Governor may choose to dismiss the ministry if it does not resign and ask
the leader of opposition to constitute an alternative ministry, or if he feels
that no stable ministry can be formed, recommend President’s rule in the State.
••
Like at the Centre, in the states too, the Council of Ministers consists of
three categories-cabinet ministers, Ministers of State, & Deputy Minister.
••
Article 164 states that the com is collectively responsible to Legislative
Assembly of state.
••
The Ministers hold office till the pleasure of the Governor but, the Ministers
can be removed only on the advice of
CM. Thus the CM can hold Ministers
individually responsible by removing them in case of non-performance.
Functions of Chief Minister & COM:
The Constitution does not assign any
formal powers to the Council of Ministers. However, in practice it has a wide range
of functions. It formulates the policy of the Government and implements it. It
assists the Governor in making all the important appointments. Most of the
important bills are introduced in the legislature by members of the Council of
Ministers.
It formulates the State budget and
submits it to the Legislature for its approval. It can present supplementary
demands for grants whenever necessary. It also plays an important role in
preparing and implementing State Plans.
Advocate General (Article 165):
••
He is an official of State, corresponding to the Attorney-General of India (Art
76).
••
He advices government of state upon legal matters.
••
Appointed by the Governor, and holds office during his pleasure.
••
A person qualified to be a judge of a HC can be appointed as an Advocate
General.
••
His remuneration is determined by the Governor.
••
He can speak and take part in the proceedings of the Legislature of the State
but he has no right to vote in it. (Article – 177).
STATE LEGISLATURE (Part VI, Art. 168-212):
•• Legislature of every State consists of Governor and House (state
legislative assembly) or Houses (state legislative assembly and council).
•• At present, only 7 states - Maharashtra, Karnataka, Telangana,
Bihar, U.P, Andhra Pradesh, J&K have a bicameral (consisting of 2 houses)
Legislature.
•• The above list is not permanent in the sense that the
Constitution provides for the abolition of the Second Chamber in a state where
it exists as well as for the creation of such a chamber in a state where there
is none at present, by a simple procedure which does not involve an amendment of
the Constitution. The procedure involves a resolution at the Legislative
Assembly of the state concerned passed by a majority of the total membership of
the Assembly not being less than two-thirds of the members actually present and
voting, followed by an Act of Parliament (Article 169).
·
In bicameral
legislature there are two houses i.e. Legislative Assembly (Lower house) &
Legislative Council (Upper house) whereas in Unicameral legislature there is
only one house i.e. Legislative Assembly. Members of Legislative Assembly are
directly elected while members of Legislative Council are indirectly elected.
·
The max. strength
in Legislative assembly (LA) is 500 whereas in Legislative council (LC) max.
strength is 1/3rd of the total strength of Legislative Assembly.
·
Min. strength of
LA is 60 and min. strength of LC is 40.
·
Term of LA is 5
years while the LC is permanent house. However, 1/3rd members of LC
retire after every 2 years.
Legislative Assembly (Vidhan Sabha):
••
It is the lower and popular house of the State. Members are chosen by direct
election on the basis of adult suffrage from territorial constituencies
(Article 170).
••
The number of members varies between 60 and 500. However certain States like
Sikkim, Goa, Mizoram and Arunachal Pradesh have less than 60 members.
••
The Governor may nominate one Anglo-Indian to the house.
••
The reservation of seats has been provided for SCs and STs on the basis of
their population.
••
According to Article 172, duration of assembly is normally 5 years. But it may
be dissolved earlier by the Governor.
••
Its term may also be extended by one year at a time by parliament during
national emergency, though this can in no case be extended beyond 6 months
after the proclamation has ceased to operate.
Legislative Council (Vidhan Parishad) (Article 169):
••
It is the upper house.
••
Parliament may by law create or abolish Legislative Council.
••
It can be created, if the Legislative Assembly of the state passes a resolution
to the effect by special majority.
••
It is not an amendment to the Constitution and therefore it can be passed like
an ordinary piece of legislation.
••
Article 171 contains various categories of members. According to this:
·
. 1/3rd of its members are elected by legislative assembly.
·
. 1/3rd by local bodies.
·
. 1/6th nominated by the Governor.
·
. 1/12th are elected by teachers.
·
. 1/5th by university graduates.
••
The maximum strength of Legislative Council can be 1/3rd of the total
membership of Legislative Assembly, but in no case less than 40.
••
Parliament has the final power to decide about its composition.
••
It is not subject to dissolution. But 1/3rd of its members retire on the expiry
of every 2nd year.
Qualifications:
••
Article 173 mentions the qualifications of members as:-
1. . A citizen of India.
2. . Not less than 25 years of age for legislative assembly and
not less than 30 years of age for Legislative Council.
3. . Possesses such other qualifications as may be prescribed by
the Parliament.
4. . Not hold any office under the Union or state government.
••
Article 190: No person shall be a member of both
houses of State Legislature and if anyone gets elected to both
Houses, he has to vacate one seat.
••
No person can become a member of legislature of 2 or more states.
Disqualifications for memberships:
••
The disqualifications for memberships of a State Legislature as laid down in
Article-191 of the Constitution are analogous to the disqualifications for
membership of either House of Parliament (Article-102).
The State of Jammu and Kashmir:
The State of Jammu and Kashmir holds a
special position under the Constitution of India. Though it is one of the
states specified in the First Schedule and forms a part of the territory of
India as defined in Article 1, all the provisions of the Constitution of India
relating to the States do not apply to Jammu and Kashmir. The state alone of
all the states of the Indian Union has its own Constitution.
The Article 370 in Part XXI of the
Constitution grants a special status to state of Jammu and Kashmir. Accordingly, all the provisions of the Constitution of India
do not apply to it. It is also the only state in the Indian Union which has its
own separate state Constitution.
The
‘Instrument of Accession of Jammu and Kashmir to India’ was signed by
Pandit Jawaharlal Nehru and Maharaja Hari Singh on 26 October 1947. Under this,
the state surrendered only three subjects (defence, external affairs and communications)
to the Dominion of India, the Government of India made a commitment that ‘the
people of this state, through their own Constituent Assembly, would determine
the internal Constitution of this state and the nature and extent of the
jurisdiction of the Union of India over the state, and until the decision of
the Constitution of India could only provide an interim arrangement regarding
the state.
In pursuance of this commitment,
Article 370 was incorporated in the Constitution of India. It clearly states
that the provisions with respect to the state of J & K are only temporary and
not permanent. It became operative on 17 November 1952, with the following
provisions:
In pursuance of the provisions of
Article 370, an executive order was issued by the President on the
constitutional position of the state and its relationship with the Union. At present,
it is as follows:
1. Jammu and Kashmir is a constituent
state of the Indian Union and has its place in Part I and Schedule I of the Constitution
of India (dealing with the Union and its Territory). But its name, area or
boundary cannot be changed by the Union without the consent of its legislature.
2. The state of J & K has its own
Constitution. Hence, Part VI of the Constitution of India (dealing with state
government) is not applicable to this state. The very definition of ‘state’
under this part does not include the state of J & K.
3. Parliament can make laws in relation
to the state on most of the subjects enumerated in the Union List and on a good
number of subjects enumerated in the Concurrent List. But, the residuary power
belongs to the state legislature except in few matters like prevention of
activities involving terrorist acts, questioning or disrupting the sovereignty
and territorial integrity of India. Further, the power to make laws of
preventive detention in the state belongs to the state legislature. This means
that the preventive detention laws made by the Parliament are not applicable to
the state.
4. Part III (dealing with Fundamental
Rights) is applicable to the state with some exceptions and conditions. The
fundamental right to property is still guaranteed in the state.
5. Part IV (dealing with Directive
Principles of State Policy) and Part IV A (dealing with Fundamental Duties) are
not applicable to the state.
6. A National Emergency declared on the
ground of internal disturbance will not have effect in the state except with
the concurrence of the state government.
7. The President has no power to
declare a financial emergency in relation to the state of J & K.
Constitution of Jammu and Kashmir
The Constitution of Jammu and
Kashmir was adopted on November 17, 1957 and came into effect from January 26, 1957.
Some of its important provisions are
considered here.
The Legislative Assembly consists of
100 numbers elected directly from territorial constituencies of the state and two
women members nominated by the Governor. Twenty-four seats are to remain vacant
till filled by representatives of people in Pakistan occupied Kashmir (PoK).
The Legislative Council consists of 36
members, 11 of whom are elected by the Assembly from among the people of
Kashmir provided that of the members elected at least one shall be a resident
of Tehsil Ladakh and at least one a resident of Tehsil Kargil, and 11 elected
by the Assembly from people of Jammu. The remaining 14 members are elected by
various electorates, such as municipal councils and such other local bodies.
The High Court of the state consists of
a Chief Justice and two or more other Judges. Every Judge is to be appointed by
the President after consultation with the Chief Justice of India and the
Governor.
The official language of the State is
Urdu, but English will continue to be used for official purpose unless the
State Legislature provides otherwise. And no amendment can be made to change
any provision regarding the relationship of the state with the Union of India.
••
There will be a Public Service Commission for the State. The Commission along
with its Chairman will be appointed by the Governor.
••
The State Constitution may be amended by introducing a Bill in the Legislative
Assembly and getting it passed in each House by a majority of not less that
two-third of total membership of that House.
Administration of Scheduled Areas:
Article 244 in Part X of the
Constitution envisages a special system of administration for certain areas
designated as ‘Scheduled areas’ and ‘tribal areas’.
The Constitution has made special
provision for the administration of Scheduled Areas in a state other than
Assam, Meghalaya, Tripura and Mizoram. The right to declare any area as a
Scheduled Area rests with the President and is subject to legislation by the
Parliament.
The Constitution contains special
provisions regarding the administration of Scheduled Areas, which are contained
in the Fifth Schedule.
The Union Government can also give
directions to the respective State regarding administration of the Scheduled
Areas.
The Governor of the state, where such
areas are located, has to submit reports to the President regarding the
administration of such areas annually or whenever required by the President.
To take care of the welfare and
advancement of the Scheduled Tribes in the State, a Tribes Advisory Council is
constituted.
In addition, the Governor can also take
certain steps to protect the interests of the Scheduled Tribes. Thus, he can
direct that a particular Act of Parliament or state legislature shall not apply
to the Scheduled Area. He can make regulations prohibiting or restricting
transfer of land, allotment of land and money lending. However, all these
actions of the governor need prior approval of the President.
Tribes Advisory Council:
The Constitution of India provides for
a Tribes Advisory Council (TAC) in each State having Scheduled areas and if the
president so directs, also in any State having Scheduled Tribes but not
Scheduled areas. TAC shall consists of not more than 20 members of whom
three-fourths shall be the representatives of the Scheduled Tribes in the
Legislative Assembly of the State.
The Governor makes rules prescribing or
regulating as the case may be (i) the number of members of the Council, the mode
of their appointment and the appointment of the Chairman of the Council and of
the officers and servants thereof; (ii) the conduct of its meetings and its
procedure in general; and (iii) all other incidental matters.
Tribal Areas:
These areas are located in the states
of Assam, Meghalaya, Mizoram and Tripura and have been specified in the Sixth
Schedule of the Constitution.
Though these areas fall within the executive authority of the state, provision
has been made for the creation of district councils and regional councils for
the exercise of certain legislative and judicial powers in these areas. The district and regional councils
are empowered to make laws in certain fields such as management of forests,
marriage and social customs, inheritance of property, etc. These councils can also impose certain taxes and collect
land revenue.
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