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CBSE Class 11 Political Science★ 4-6 marks · CBSE Class 11 Political Science (Indian Constitution at Work) Chapter 5

Legislature

Parliament is where laws are made, the government is held accountable, and the people's voice finds expression. This chapter covers the structure of India's Parliament (Lok Sabha and Rajya Sabha), how a bill becomes a law, and Parliament's role in controlling the executive. CBSE Class 11 Political Science (Indian Constitution at Work) Chapter 5.

⏱ 22 min readMedium difficulty✓ Free · NCERT-aligned

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By the end of this chapter you'll be able to…

1Describe the composition, tenure, and method of election/nomination for Lok Sabha and Rajya Sabha
2Explain the functions of Parliament: law-making, financial control (budget), executive oversight (question hour, no-confidence), representation, and deliberation
3Distinguish a Money Bill from an Ordinary Bill and explain the different procedures for each
4Explain the Anti-Defection Law (10th Schedule, 52nd Amendment 1985): what it prevents and its limitations
5Critically evaluate Parliament's functioning: session frequency, disruptions, quality of debate, and reforms needed

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Why this chapter matters

Parliament is where India's laws are made and governments are held accountable. Yet India's Parliament meets for fewer days than any comparable democracy (~60–70 days/year vs UK's 150+) and much of that time is lost to disruptions. Understanding how Parliament works — how bills become laws, how Lok Sabha differs from Rajya Sabha, how the budget is passed — is civic literacy. Every debate about UAPA, farm laws, electoral bonds, or GST happened HERE.

Before you start — revise these

A 5-minute refresher here will save you 30 minutes of confusion below.

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Executive

PM and Cabinet must maintain Lok Sabha confidence — executive accountability to legislature

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Election and Representation

How MPs are elected — FPTP for Lok Sabha, STV for Rajya Sabha

Legislature

"Parliament is the temple of democracy. The people speak — through their representatives."

1. Chapter Overview

The LEGISLATURE (Parliament at the Union level) MAKES LAWS, HOLDS THE EXECUTIVE ACCOUNTABLE, and represents the people. This chapter covers the structure of Parliament (Lok Sabha + Rajya Sabha), the different types of BILLS, how a bill becomes a law, and Parliament's control over the EXECUTIVE through questions, debates, and no-confidence motions.

2. Why Do We Need a Parliament?

Law-making: The primary function. All legislation requires parliamentary approval.
Control over the executive: Government is accountable to Parliament (especially Lok Sabha). Questions, debates, motions.
Representation: MPs represent constituencies and communities.
Financial control: No tax can be levied, no money spent, without Parliament's approval.
Deliberation: National issues debated; public opinion shaped and reflected.

3. Structure of Parliament

Two Houses — Why Bicameral?

Lok Sabha (House of the People): LOWER House. Directly elected. Maximum 552 members (530 States + 20 UTs + 2 Anglo-Indian nominated — nomination discontinued in 2020). Currently 543 elected.
Rajya Sabha (Council of States): UPPER House. Indirectly elected by State Legislative Assemblies. Maximum 250 (238 elected + 12 nominated by President — arts, literature, science, social service). Currently 245.
Rajya Sabha represents the STATES (federal character). It is a PERMANENT HOUSE — unlike Lok Sabha, it cannot be dissolved. 1/3 of members retire every 2 years.

Lok Sabha vs Rajya Sabha

Aspect	Lok Sabha	Rajya Sabha
Members	Directly elected by people	Elected by State MLAs + 12 nominated
Term	5 years (can be dissolved earlier)	PERMANENT — 1/3 retire every 2 years
Money Bill	Can ONLY be introduced in Lok Sabha	Can delay for max 14 days (cannot reject)
No-Confidence	Can pass — government answerable	CANNOT pass no-confidence
Numbers	543 (as of 2026)	245
Presided by	Speaker	Vice-President (Chairman)

Why Do States Have Unequal Representation in Rajya Sabha?

States with LARGER POPULATION have MORE Rajya Sabha seats
UP: 31 seats. Goa / Sikkim / Manipur: 1 seat each.
This is PROPORTIONAL to population — federalism reflects demographic reality

4. How a Bill Becomes a Law

Ordinary Bill (Non-Money Bill)

Introduction: in EITHER House (except Money Bill — Lok Sabha only)
Three Readings: debate, clause-by-clause discussion, voting
Passage: in the House where introduced
Second House: same process
If there is DISAGREEMENT: Joint Sitting of both Houses (summoned by President, presided by Speaker). Simple majority.
President's Assent: President can: (a) give assent → becomes Act, (b) withhold assent, (c) return for reconsideration (except Money Bill).
- If Parliament passes AGAIN (with or without changes): President MUST give assent.

Money Bill

Can ONLY be introduced in LOK SABHA (with President's prior recommendation)
Rajya Sabha: can DELAY for maximum 14 days. CANNOT reject or amend.
Speaker certifies whether a bill is a Money Bill (certification is FINAL)
Example of Money Bill: Union Budget.

5. Parliament's Control Over the Executive

Instruments of Control

Question Hour: First hour of every sitting. MPs ask questions; ministers MUST answer.
Zero Hour: Unstructured time after Question Hour for raising URGENT matters.
Calling Attention Motion: MP calls minister's attention to an urgent issue.
Adjournment Motion: Interrupts normal business to discuss a matter of URGENT PUBLIC IMPORTANCE.
No-Confidence Motion: Moved against the ENTIRE Council of Ministers. If passed → government RESIGNS. Only in LOK SABHA.
Censure Motion: Condemns a specific minister or policy. Does NOT require resignation.
Budget discussion and approval: The executive CANNOT spend money without Parliament's approval.

6. Exam Focus

Two Houses — difference in composition, election, powers (Money Bill, no-confidence)
How a bill becomes a law (stages)
Money Bill — special procedure (Lok Sabha only, RS max 14 days)
Parliament's instruments of control over the executive (Question Hour, No-Confidence, etc.)
Rajya Sabha's role — permanent house, represents states

7. Common Mistakes

Rajya Sabha is equally powerful to Lok Sabha — NO. Lok Sabha is MORE POWERFUL in key ways: Money Bills (exclusive introduction; RS can't reject), No-Confidence motions (RS can't pass them), Joint Session (Lok Sabha with 543 members dominates RS with 245). The government is accountable to the LOK SABHA.
The President can refuse to give assent to any bill indefinitely — This would be UNCONSTITUTIONAL. If Parliament passes a bill again (ordinary bill, after reconsideration), the President MUST assent. The president's 'pocket veto' is limited — it is NOT an absolute veto.

8. Conclusion

Parliament is where Indian democracy breathes:

LEGISLATION: From bill to Act — a deliberative process involving both Houses and the President
ACCOUNTABILITY: The government faces Question Hour, debates, and no-confidence motions. It CANNOT govern without Parliament's trust.
REPRESENTATION: 543+245 voices for 1.4 billion people. Direct (Lok Sabha) and indirect (Rajya Sabha) representation.
THE BUDGET: The purse strings are Parliament's STRONGEST power over the executive.

The Parliament is not just a building in New Delhi. It is the institutional expression of 'We, the People of India.'

Key formulas & results

Everything you need to memorise, in one card. Screenshot this for revision.

Lok Sabha (House of the People)

Maximum seats: 552 (530 state + 20 UT + 2 nominated Anglo-Indian REMOVED by 104th Amendment 2020) → now max 543 elected + President can nominate 2 if community not represented | Current strength: 543 | Term: 5 years (can be dissolved earlier) | Presided by Speaker (elected by Lok Sabha members)

Lok Sabha is the LOWER HOUSE but MORE POWERFUL on financial matters. Money Bills, no-confidence motions, budget — Lok Sabha dominates. Government's existence depends on Lok Sabha majority.

Rajya Sabha (Council of States)

Maximum seats: 250 (238 elected by state assemblies + 12 nominated by President for expertise in art/science/literature/social service) | Current strength: 245 | PERMANENT HOUSE — never dissolved; 1/3 members retire every 2 years | Presided by Vice-President (ex-officio Chairman)

Rajya Sabha represents STATES. It gives a voice to states in Central legislation. Key special powers: Art 249 (enable Parliament to legislate on State List for national interest), Art 312 (create All-India Services by 2/3 vote).

Money Bill vs Ordinary Bill

Money Bill (Art 110): deals with taxation, appropriation, borrowing, Consolidated Fund — can be introduced ONLY in Lok Sabha; certified by Speaker; Rajya Sabha can suggest changes but NOT amend/reject; if not returned in 14 days, deemed passed. | Ordinary Bill: can be introduced in either House; Rajya Sabha has EQUAL power; deadlock resolved by joint session (Art 108) where Lok Sabha's larger membership usually prevails.

Whether a bill is a 'Money Bill' is certified by the SPEAKER of Lok Sabha — the Speaker's decision is FINAL (not subject to judicial review per SC). Controversial: Aadhaar Act 2016 was certified as Money Bill — critics said it was misuse to bypass Rajya Sabha.

Anti-Defection Law (10th Schedule, 52nd Amendment 1985)

A legislator is disqualified if: (i) voluntarily gives up party membership | (ii) votes/abstains contrary to party direction in Parliament without permission | NOT disqualified if: split of more than 2/3 of party members | Original party merges with another party (merger requires 2/3 members)

Presiding officer (Speaker/Chairman) decides disqualification — but Speaker is usually a ruling party member, creating conflict of interest. Supreme Court can review Speaker's decision but with deference.

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Common mistakes & fixes

These are the exact errors that cost students marks in board exams. Read them once, save yourself the trouble.

WATCH OUT

✗ Saying Rajya Sabha has equal powers with Lok Sabha in all matters

✓ Rajya Sabha has REDUCED powers on FINANCIAL MATTERS — Money Bills can only be introduced in Lok Sabha; Rajya Sabha can only suggest (not amend) and must return in 14 days. On ORDINARY BILLS, Rajya Sabha is equal — it can block or amend. In practice, joint session resolves Lok Sabha-Rajya Sabha deadlock — and Lok Sabha's 543 members overwhelm Rajya Sabha's 245.

WATCH OUT

✗ Thinking Rajya Sabha can be dissolved

✓ Rajya Sabha is a PERMANENT HOUSE — it is NEVER dissolved. One-third of its members retire every 2 years (members serve 6-year terms). When Lok Sabha is dissolved, Rajya Sabha continues — maintaining continuity of Parliament. This is the MAJOR structural difference between the two houses.

WATCH OUT

✗ Saying the Anti-Defection Law prevents all floor-crossing

✓ The Anti-Defection Law (10th Schedule) prevents individual defection — one MP cannot cross the floor alone. However, it ALLOWS: (i) split by 2/3+ of party members (removed in 2003 — now NO split exemption); (ii) merger of party with another if 2/3 agree. After 2003 amendment removing 'split' exemption, even a group of defectors can be disqualified unless 2/3 of the ORIGINAL party merges.

WATCH OUT

✗ Saying Question Hour and Zero Hour are the same

✓ Question Hour (first hour, 11 AM): MPs ask questions that were submitted in advance; Ministers must answer them — creates formal ministerial accountability record. Zero Hour (immediately after Question Hour, 12 noon): UNSCHEDULED — MPs raise urgent matters without prior notice. Zero Hour is a parliamentary convention, not a constitutional provision. Ministers are not obligated to answer during Zero Hour.

NCERT exercises (with solutions)

Every NCERT exercise from this chapter — what it covers and how many questions to expect.

Chapter Ex s

Chapter Exercises

Lok Sabha vs Rajya Sabha composition; functions of Parliament; Money Bill vs Ordinary Bill procedure; Anti-Defection Law; Question Hour/Zero Hour; joint session; Speaker's role

Questions

Practice problems

Try each one yourself before tapping "Show solution". Active recall > rereading.

Q1EASY· Lok Sabha vs Rajya Sabha

Compare Lok Sabha and Rajya Sabha across FOUR parameters: method of election/nomination, maximum strength, tenure, and powers regarding Money Bills.

▶ Show solution

| Parameter | Lok Sabha | Rajya Sabha |
|---|---|---|
| **Method of election** | Direct election by voters through FPTP system in single-member constituencies | Indirect election by elected members of STATE LEGISLATIVE ASSEMBLIES through STV (Proportional Representation) + 12 members nominated by President |
| **Maximum strength** | 543 elected (+ 2 Presidential nominees if community not represented) | 250 (238 elected + 12 nominated by President for expertise in arts/science/social service) |
| **Tenure** | 5 years from first sitting (can be dissolved earlier by President on PM's advice). NOT a permanent house. | Permanent — NEVER dissolved. Members serve 6-year terms; 1/3 retire every 2 years |
| **Money Bills** | Money Bills can be introduced ONLY in Lok Sabha. Rajya Sabha has NO power to reject or amend. Can only suggest changes; if not returned in 14 days, deemed passed. | Rajya Sabha's role is ADVISORY only on Money Bills — can suggest changes but cannot reject. Its suggestions can be accepted or rejected by Lok Sabha. NO real power on financial legislation. |

Q2MEDIUM· Legislative Process

Explain the process by which an Ordinary Bill becomes law in India. At which stages can the Rajya Sabha delay or block a bill? What happens if both Houses cannot agree?

▶ Show solution

**Ordinary Bill: Process**

*Stage 1 — Introduction*: Bill may be introduced in EITHER house by a minister (government bill) or private member. Three readings in the house of introduction: First Reading (formal introduction, title read), Second Reading (general discussion + committee stage + clause-by-clause consideration), Third Reading (final vote on bill as a whole).

*Stage 2 — Second House*: If passed by the first house, the bill goes to the OTHER house. Same three-reading process. The second house may: (a) Pass the bill as is → bill proceeds to President; (b) Pass with amendments → returned to first house; (c) Reject the bill; (d) Take no action for 6+ months.

*Rajya Sabha's power to delay/block*:
- In situations (c) or (d) above, there is a DEADLOCK between the houses.
- In situation (b) — the first house can accept amendments or reject them — potentially creating a deadlock.
- Rajya Sabha can delay a bill by up to 6 months (treating it as 'no action') before a joint session can be called.
- Rajya Sabha CANNOT permanently block — it can only delay.

*Stage 3 — Joint Session (Art 108)*:
If both houses cannot agree, the President may (not 'shall') call a joint session of BOTH houses. In the joint session: Lok Sabha's 543 members + Rajya Sabha's 245 = 788 members vote together. Lok Sabha's larger membership means its position almost always prevails. Three joint sessions have been held in India's history: Dowry Prohibition Bill (1961), Banking Service Commission Act (1978), Prevention of Terrorism Bill (2002).

*Stage 4 — Presidential Assent*: After both houses pass the bill, it goes to the President, who can: (a) Give assent → becomes law; (b) Return for reconsideration ONCE (not for Money Bills); (c) 'Pocket veto' — sit on it (no time limit for ordinary bills). If Parliament re-passes after return, President MUST sign.

Q3HARD· Parliamentary Accountability

Parliament is constitutionally supreme, yet India's Parliament is often criticised for poor functioning — short sessions, disruptions, low-quality debates. Explain the instruments of parliamentary accountability (Question Hour, Committees, No-Confidence) and critically evaluate whether Parliament is effectively holding the government accountable.

▶ Show solution

**Instruments of Parliamentary Accountability**:

*1. Question Hour (11 AM–12 PM every sitting day)*:
- MPs submit questions in advance; ministers must answer. Three types: Starred (oral answer + supplementaries), Unstarred (written answer), Short Notice (urgent).
- Effectiveness: Forces ministers to prepare; creates a public record of government position; supplementary questions probe beyond prepared answers.
- Limitation: Only ~20 starred questions can be answered orally per day out of hundreds submitted. Government ministers sometimes give evasive answers. During COVID (virtual sessions), Question Hour was initially suspended.

*2. Zero Hour (12 PM onwards)*:
- Unscheduled: MPs raise urgent matters. No notice required, ministers not obligated to respond.
- Effectiveness: Raises urgent issues immediately. But no formal accountability mechanism.

*3. Parliamentary Committees (Standing + Select)*:
- 24 Departmentally Related Standing Committees scrutinise ministries' budgets, bills, and policy.
- PAC (Public Accounts Committee): examines CAG reports; identifies wasteful/fraudulent government expenditure. Traditionally chaired by OPPOSITION leader — symbolically important.
- Effectiveness: Most detailed scrutiny happens in committees, away from floor disruptions. Key bills (FRBM, IT Act, Aadhaar) were examined by committees.
- Limitation: Government often bypasses committee scrutiny by using 'urgent' route for major bills (CAA passed in 3 days, 2019).

*4. No-Confidence Motion (Art 75)*:
- If majority of Lok Sabha members vote against the government, the entire Cabinet must resign.
- Most powerful accountability instrument. Used 27 times in India's history; succeeded 3 times (Morarji Desai 1979, V.P. Singh 1990, Vajpayee 1999).
- Limitation: Coalition governments survive by securing enough coalition partners; loyalty is maintained through ministerial posts, not policy performance.

*5. Budget and Financial Accountability*:
- Union Budget requires Parliament's approval. Demands for Grants allow MPs to 'cut' specific expenditure items — though cut motions rarely pass, the debate is informative.
- CAG report after expenditure → PAC scrutiny → action taken reports.

**Critical Evaluation**:

*Weaknesses*:
(i) **Declining session days**: India's Parliament met for ~66 days in 2022 vs ~120 days in 1950s. UK Parliament meets 150+ days. Less time = less scrutiny.
(ii) **Disruptions**: Proceedings washed out by opposition protests. 2021 Monsoon Session: 20% productivity in Lok Sabha. Lost Question Hour = lost accountability.
(iii) **Anti-defection**: MPs who must vote with party cannot use Parliamentary debates to genuinely represent constituents — they will vote as the party directs regardless.
(iv) **Money Bills bypass**: Certifying controversial bills as Money Bills (Aadhaar 2016, Finance Act 2017 inserting 40+ amendments) bypasses Rajya Sabha — reduces legislative scrutiny.
(v) **Executive dominance**: Whip system + coalition management means MPs rarely vote against party line. Parliament debates more than it decides.

*Strengths that remain*:
- Opposition parties can use Question Hour, Zero Hour, and media coverage of Parliament to communicate government failures to the public.
- CAG + PAC combination still creates financial accountability.
- Parliamentary debates (even when disrupted) create a legal record used by courts.
- Select Committees do genuine scrutiny when allowed to function.

**Conclusion**: India's Parliament is constitutionally sovereign but practically weakened by short sessions, party discipline undermining MP independence, and executive dominance. Reform priorities: mandatory 120+ sitting days, committee scrutiny for all major bills, and Speaker appointment by consensus (not ruling party alone) to restore Parliament's role as a genuine accountability forum.

5-minute revision

The whole chapter, distilled. Read this the night before the exam.

•Lok Sabha: 543 elected (FPTP), 5-year term (dissolved), Speaker presides, real financial power, no-confidence target
•Rajya Sabha: 238 elected by state assemblies (STV) + 12 nominated, permanent (1/3 retire every 2 years), VP is chairman, represents states, special powers: Art 249 (State List legislation) + Art 312 (All India Services)
•Money Bill: only Lok Sabha introduction, Speaker certifies, Rajya Sabha advisory (14 days), no joint session needed
•Ordinary Bill: either house, same 3 readings, joint session (Art 108) if deadlock — 3 joint sessions in India's history
•Anti-Defection (10th Schedule, 1985): voluntary party departure + voting against party direction = disqualification. Speaker/Chairman decides. No 'split' exemption since 2003.
•Parliamentary accountability tools: Question Hour (formal, starred/unstarred), Zero Hour (urgent, informal), Committees (PAC, Standing), No-Confidence motion

CBSE marks blueprint

Where the marks come from in this chapter — so you can plan your prep.

Typical chapter weightage: 4-6 marks

Question type	Marks each	Typical count	What it tests
Short Answer (SA-II)	4	1	Compare Lok Sabha vs Rajya Sabha; explain Money Bill procedure; describe Anti-Defection Law; explain Question Hour vs Zero Hour
Long Answer (LA)	6	1	Evaluate Parliament's accountability functions; explain Ordinary Bill procedure; compare Lok Sabha and Rajya Sabha powers; analyse Anti-Defection Law

Prep strategy

Lok Sabha vs Rajya Sabha comparison table is a guaranteed 4-mark question. Memorise 5 parameters: election method, maximum strength (543 vs 250), tenure (5 years vs permanent), Money Bill powers (Lok Sabha dominant), and special powers (Rajya Sabha: Art 249, Art 312). Write this as a table in your exam.
Money Bill vs Ordinary Bill: the key procedural differences are (1) introduction (Money: only Lok Sabha; Ordinary: either house); (2) Rajya Sabha role (Money: advisory only; Ordinary: full equal power); (3) deadlock resolution (Money: Rajya Sabha has 14 days, then deemed passed; Ordinary: joint session). These 3 differences cover all exam questions.
Anti-Defection: 10th Schedule, 52nd Amendment 1985, Speaker decides, 2003 removed 'split' exemption. Cases of disqualification (recent examples: Goa, Karnataka) show this in action. Include the Speakership conflict-of-interest as a limitation.

Where this shows up in the real world

This chapter isn't just an exam topic — it lives in the world around you.

Aadhaar Money Bill Controversy (2016)

The Aadhaar (Targeted Delivery of Financial and Other Subsidies, Benefits and Services) Act 2016 was certified as a Money Bill by Lok Sabha Speaker Sumitra Mahajan. This bypassed Rajya Sabha scrutiny — where the government lacked a majority. Critics argued Aadhaar contained provisions (biometric database, linking to services) that had nothing to do with money or appropriation. The SC upheld the Speaker's certification (4:1) but Justice D.Y. Chandrachud dissented sharply — calling it a 'constitutional fraud.' This controversy directly tests this chapter's definition of a Money Bill.

No-Confidence Motion Against Vajpayee (1999)

The most dramatic no-confidence motion in Indian history: Vajpayee's NDA government lost by ONE vote (269:270) in April 1999 after AIADMK withdrew support. This triggered dissolution of Lok Sabha and fresh elections. It is the clearest demonstration of Collective Responsibility — the entire Cabinet resigned because of one vote. It shows the theory in this chapter operating in real politics.

Exam strategy

Battle-tested tips from teachers and toppers for this chapter.

For Money Bill questions: the key procedural chain is — introduced in Lok Sabha → Speaker certifies → Rajya Sabha gets 14 days (can suggest, not amend/reject) → if not returned, deemed passed → President's assent. Write this as a flowchart in your exam answer
For 'functions of Parliament' questions: always give FIVE distinct functions — law-making, financial control (budget approval), executive accountability (Question Hour, no-confidence), representation, and deliberation. Don't merge law-making and financial control; they are separate functions
Anti-Defection Law criticism: the CONFLICT OF INTEREST in Speaker deciding disqualification is the most important analytical point. Include it in every Anti-Defection answer — it shows you understand the gap between the law's intent (prevent floor-crossing) and its implementation weakness (partisan Speaker)

Going beyond the textbook

For olympiad aspirants and curious learners — topics that build on this chapter.

Study the debate on 'simultaneous elections' (One Nation One Election) — holding Lok Sabha and state elections together. Arguments for: reduced election expenditure, stable governance periods, policy continuity. Arguments against: violates federalism (state elections have independent mandates), concentrates power in national narratives, difficult to implement (how to handle dismissed state governments?). Research the Law Commission's 2018 report
Compare India's Parliament with the UK's Westminster model (from which it was borrowed): key differences include India's written constitution (which limits Parliament; UK has parliamentary sovereignty), India's multi-party coalition norm (UK has two-party system), and India's Rajya Sabha (which is stronger than UK's House of Lords)

Where else this chapter is tested

CBSE board isn't the only one — other exams test this chapter too.

CBSE Class 11 BoardHigh

CUET Political ScienceHigh

UPSC Prelims + Mains (GS-2: Polity)Very High

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Questions students ask

The real ones — pulled from the Q&A community and tutor sessions.

A Government Bill is introduced by a minister on behalf of the Cabinet — it has Cabinet backing, ministry drafting, and guaranteed parliamentary time. It almost always passes (ruling party has majority). A Private Member Bill is introduced by any MP who is NOT a minister — it represents individual MP initiative. Private Member Bills have lower priority and often don't get debated. Very few private member bills have become law in India's history — one famous exception: the Dowry Prohibition Act (originally a private member bill). Most major legislation is through government bills.

A joint session (Art 108) is convened by the President when both Houses cannot agree on an Ordinary Bill. Both Lok Sabha and Rajya Sabha meet together and vote — Lok Sabha's larger membership (543 vs 245) means its position prevails. Has been used 3 times: (1) Dowry Prohibition Bill, 1961; (2) Banking Service Commission (Repeal) Act, 1978; (3) Prevention of Terrorism Act (POTA), 2002. The last joint session was in 2002. It is rarely used because governments prefer to negotiate with Rajya Sabha rather than expose the 'steamrolling' optics of a joint session.

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