AN INTRODUCTION TO

PARLIAMENT OF INDIA
RA1YA SABHASECRETARIAT
NEWDELHI
Cboa4togepto Noetyo
K bteaze stotee eI Cboa4togepto Noetyo, |asto||e4 |a
Iot||omeat eese, eae eI tbe gteotest I|getes |a
oat|eat la4|oa b|stety oa4 Ieea4et eI tbe Noetyoa
4yaosty,
wbe te|gae4 Item 121 8.C. te 296 8.C.
"bepbet4 bey~Cboa4togepto Noetyo
4teom|ag eI tbe la4|o
be wos te tteote."
AN INTRODUCTION TO
PARLIAMENT OF INDIA
AN INTRODUCTION TO
PARLIAMENT OF INDIA
Dr. Yogendra Narain
Secretary-General
Rajya Sabha (Council oI States)
RA1YA SABHA SECRETARIAT
New Delhi
May 2007
First Edition
Second Edition
Third Edition
Fourth Edition
1993
1995
2002
2007
Rajya Sabha Secretariat
Published by Secretary-General, Rajya Sabha, Parliament oI India, New Delhi
Printed at Goyal Stationers, 433 Old Subzi Mandi, Delhi-110 007. Ph.: 011-23855858, 24510101
CONT E NT 5
Page(s)
PREFACE (i)(ii)
INTRODUCTION 14
PARLIAMENT 514
President oI India 57
Rajya Sabha 89
Lok Sabha 1013
QualiIications Ior Membership 14
DisqualiIications Ior Membership 14
PRESIDING OFFICERS 1516
SECRETARY- GENERAL 17
ROLE OF PARLIAMENT 1819
THE TWO HOUSES : POWERS AND RELATIONSHIP 2026
Special Powers oI Rajya Sabha 2021
Special Powers oI Lok Sabha 21
Relationship oI the two Houses 2126
PREDOMINANCE OF PARLIAMENT IN LEGISLATIVE FIELD 2728
GENERAL WORKING OF PARLIAMENT 2931
Sessions 29
Arrangement oI Business 2931
PROCEDURAL INNOVATIONS IN PARLIAMENT 3233
Calling Attention 32
Short Duration Discussion 32
Special Mention and Rule 377 32
Submissions aIter Question Hour 33
THE COMMITTEE SYSTEM 3438
Standing Committees 3435
Department - related Standing Committees 3536
ClassiIication oI Committees 3738
PARLIAMENTARYFORUMS 3940
PARLIAMENT LIBRARY 41
TELEVISIONAND PARLIAMENT 42
INFORMATION TECHNOLOGYIN PARLIAMENT 43
RIGHT TO INFORMATIONAND PARLIAMENT 44
PARLIAMENT ESTATE 45
RAJYASABHAAND LOK SABHASECRETARIATS 46
ANNEXURE 47
he Parliament oI India is a Vice-President oI India and the Chairman,
magniIicent maniIestation oI the Rajya Sabha, Shri Bhairon Singh Shekhawat
democratic ethos oI our country. As has succinctly observed: T
the national legislature and repository oI the
'We are justiIiably proud oI our
constituent powers oI the Union, it occupies a
democracy. It is the story oI the success oI
central position in our democratic polity. Over
democracy in a populated nation which has
the years, Parliament has evolved as an
demonstrated to the world how complex
institution having multi-dimensional roles.
problems can successIully be addressed
Nurturing and encouraging participatory
within constitutional and democratic
democracy, our Parliament has been
Iramework. The success oI democracy
instrumental in ushering in social change and
is...to be measured by the extent oI welIare it
development through progressive legislations
promotes Ior our citizens.
and meaningIul debates on crucial issues
Parliament today has become an integral
Iacing the nation, thus, paving the way Ior
part oI our national liIe promoting diligently
good governance, which constitutes the basic
the cause oI the people. Evolving as the
principle oI our Constitution.
'Iulcrum oI our democracy' it has responded
The Iederal structure oI Indian polity rests
eIIectively to the new challenges, complex
on the principle oI parliamentary Iorm oI
needs and emerging trends oI the modern
government which makes the executive
times. Expansion oI committee system,
accountable to the legislature. The Parliament
televising and broadcasting oI parliamentary
oI India has three constituents, namely, the
proceedings and launching oI dedicated
President oI India, the Rajya Sabha (Council
channels oI the two Houses, are some such
oI States) and the Lok Sabha (House oI the
developments which indicate the adaptability
People). The President oI India is the
oI this institution in the rapidly changing
constitutional head oI the executive. There is a
world. They aIIirm its credibility as a truly
Council oI Ministers headed by the Prime
representative body which has been
Minister to aid and advise the President in the
Iunctioning progressively to bring people
exercise oI his Iunctions.
closer through eIIective use oI InIormation
Besides Iunctioning as the highest law-
and Communi cat i on Technol ogi es,
making body, Indian Parliament has also
while nurturing and promoting the core
Iunctioned as the 'grand inquest' and 'watch
ideal oI people's welIare enshrined in
dog' oI the nation. It has been proved that Ior a
our Constitution.
peaceIul and balanced development oI India
This booklet, titled An Introduction to there is no better substitute to parliamentary
Parliament of India is an attempt to acquaint democracy. Throwing light on this aspect the
P R E FACE
(i)
the lay reader with the organization and also Iorm part oI the book. Besides, the
Iunctioning oI the Parliament oI India. The present edition also includes useIul
revised edition presents an updated account oI inIormation which is illustrated through
the developments that have taken place with graphical charts, tables and annexure Ior easy
regard to the Iunctioning oI Indian Parliament and quick reIerence oI the readers. We hope
since the publication oI the last edition. Some that this publication would evoke the interest
important developments such as application oI those readers who are keen on knowing the
oI i nIormat i on and communi cat i on organizational structure and Iunctioning oI
t echnol ogi es (ICTs) i n Parl i ament , Indian Parliament at a glance.
constitution oI Parliamentary Forums, etc.,
New Delhi
May 2007
Dr. Yogendra Narain
Secretary-General
(ii)
opular democracy and representative oI votes and so on. Some oI the inscriptions
institutions are neither entirely alien adorning Committee Rooms and other places
to the Indian soil nor oI recent origin. in the Parliament House clearly indicate about P
The history oI democratic traditions in India, the Iunctioning oI democracy in ancient
in Iact, goes back to the Jedic period. The India. For instance, in the Rigveda, the unity
Jedas, the oldest Indian literature, abound oI purpose oI an assembly has been described
with reIerences to popular assemblies known thus :
as the Sabhas and the Samitis. Apart Irom
Meet together, talk together, let your
electing the king, these assemblies used to
minds think alike.
discuss and decide matters oI State.
Common be the counsel oI the
Discussions in these assemblies were Iree and
assembled.
a resolution passed by them was binding on
all and inviolable. In the post-Jedic period,
Common be the association;
the Republics which were known in popular
common be the purpose, associated
parlance as Ganarafya or Sangha were
be the desire.
Iunctioning as selI-governing institutions. In
those Sanghas rules oI
Parliamentary procedure
were in existence and many
oI those rules were akin to
the modern day procedures
Iollowed in Parliaments.
They had rules regarding
seating arrangement in an
Assembl y, movi ng oI
Motions including Censure
Mot i on, Res ol ut i ons ,
determining Quorum and
issuance oI Whip. These
assemblies Iollowed very
elaborate procedure oI
voting by ballot and had
rules relating to the counting
1
l NT R ODUCT l ON
Democrac must ln essence...
mean the art and sclence of
mobl|ltlng the entlre hslca|,
economlc and slrltua|
resources of a|| the
tarlous sectlons of the
eo|e ln the sertlce
of the common
good of a||.
urtfa vrata-ratr .
= -nrr =a rtaaa
:|< i-| /.|
"Woot too oluor orsoo uoos ls Iollowou
by otoors, woot oo uooostrotos by
octloo, toot oolo Iollow."
(oowou Glto, 3,2l}
Mahatma Gandhi (Father of the Nation)
Common be your intention; common That's no righteousness where there
be (the wishes oI) your heart.
is no truth,
Common be your thoughts so that
That's not the truth which leads one
there may be thorough union among
to deceit.
you.
Evolution oI modern democratic
The Manusmriti, another ancient
institutions in the country was a gradual
text, lays stress on truth and
process which stemmed Irom the Indian
righteousness which are to be
struggle against the British rule. In 1858, the
observedin an assembly. It ordains :
sovereignty oI India was assumed by the
One must not enter either an
British Crown Irom the East India Company
assembly hall
and the Iirst statute Ior the governance oI India
under the British Crown came to be known as
Or having entered he must
the Government oI India Act, 1858. The
speak there with all the
Indian Councils Act oI 1861, though
righteousness
introduced a small dose oI popular element by
For one who does not speak
providing that the Governor-General's
or one who speaks Ialsely
Executive Council would also consist oI
additional non-oIIicial members while
Does himselI in the equal
transacting legislative business but the Act
sin involve.
really did not lead to any kind oI
I n t he epi c
representative or deliberative body. The
Mahabharata, the role oI
Indian Councils Act, 1892 aimed at giving
elders in the assembly has
Iurther opportunities to the non-oIIicial and
been emphasized in these
native elements to participate in the work oI
words :
the Government. The Iirst attempt, however,
to introduce popular element was initiated by
That's not an assembly
the Morley-Minto ReIorms which were
where there are no elder
sought to be implemented through the Indian
men,
Councils Act, 1909. The Montagu-
Those are not elders who
ChelmsIord ReIorms led to the enactment oI
do not speak wi t h
the Government oI India Act, 1919 which was
righteousness,
certainly a landmark in the constitutional
2
Cno mosl nol onlor oilbor on
/ssomoly Holl,
Cr bovinq onloroo bo mosl
soo| lboro wilb
oll lbo riqblooosnoss.
For ono wbo ooos nol soo| or
ono wbo soo|s olsoly,
Doos bimsol in lbo ogool
sin involvo.
[Mono}
An inscription inside a dome of Parliament House
National Emblem
3
history oI India. This Act introduced
bicameralism Ior the Iirst time. In the
provinces, 'dyarchy' was introduced
which aimed at introducing responsible
Government in the provinces. The
Government oI India Act, 1919,
however, could not Iully meet the
aspirations oI the people oI India. As a
result, aIter a lot oI deliberations the
Government oI India Act, 1935 came
into being which introduced Iederation
and the provincial autonomy. Under the
Act the Central Legislature was still
made bicameral. It also had a provision
oI distribution oI legislative power
between the Centre and the provinces.
The Indian Independence Act, which
came into being in 1947, resulted in the
amendment oI the Government oI India
Act, 1935. It led to the abolition oI the
responsibility oI the British Government
and Parliament Ior administration oI
India. It also made the Governor-
General and Governors oI provinces as
constitutional heads.
AIter independence, a Iull-Iledged
parliamentary system oI government
with modern institutional Iramework
w a s e s t a b l i s h e d i n I n d i a .
A Constituent Assembly was entrusted
la4|o, tbot |s 8botot,
sbo|| be o 0a|ea eI totes.
Ktt|t|e 1(1j
Preamble to the Constitution of India
India Gate
THE PEOPLE OF INDIA, having solemnly
resolved to constitute India into a SOVEREIGN SOCIA-
LIST SECULAR DEMOCRATIC REPUBLIC and to
secure to all its citizens :
JUSTICE, social, economic and political;
LIBERTY of thought, expression, belief, faith and
worship;
EQUALITY of status and of opportunity;
and to promote among them all
FRATERNITY assuring the dignity of the individual
and the unity and integrity of the Nation;
IN OUR CONSTITUENT ASSEMBLY this twenty-
sixth day of November, 1949, do HEREBY ADOPT,
ENACT AND GIVE TO OURSELVES THIS
CONSTITUTION.
WE,
with the task oI Iraming the Constitution Ior The Constitution Iramed by the
Iree India. Stalwarts oI Ireedom-struggle and Constituent Assembly was adopted on
veteran statesmen, eminent persons Irom 26 November 1949 and it came into Iorce on
various walks oI liIe, including legal 26 January 1950. The Iirst General Elections
luminaries and constitutional experts were its were held in the year 1952 under the new
members. Most oI them have had Iirst-hand Constitution. Until then, Irom 1950 to 1952,
knowledge oI the working oI quasi- the Constituent Assembly itselI Iunctioned as
parliamentary institutions in British India. the Provisional Parliament. The two Houses oI
The Iounding Iathers, in their collective Parliament came into being in 1952.
wisdom decided, aIter intensive deliberations,
to adopt a parliamentary Iorm oI government
Ior India.
4
Ny aet|ea eI 4emettoty |s tbot ea4et
|t tbe weokest sbee|4 bove tbe some
eppettea|ty os tbe stteagest.
Nobotmo 0oa4b|
Tricolour formation of School Children at Republic Day Parade
A painting titled 'Transfer of Power' by V.S. Kulkarni installed in Parliament House Annexe
5
arliament consists oI the President vested in the President which is exercised by
and t he t wo Houses known him either directly or through oIIicers
Prespectively as the Council oI States subordinate to him in accordance with the
(Rajya Sabha) and the House oI the People provisions oI the Constitution. The supreme
(Lok Sabha). command oI the deIence Iorces oI the Union is
also vested in the President. The President
President of India
appoints the Prime Minister and other
Ministers on the advice oI the Prime Minister.
The President oI India is elected by the
He also appoints important constitutional
members oI an electoral college consisting oI
Iunctionaries such as Governors, Judges oI the
the elected members oI both Houses oI
Supreme Court and High Courts, Attorney-
Parliament and the elected members oI the
General oI India, Comptroller and Auditor-
Legislative Assemblies oI the States and
General oI India, Chairmen and members oI
Union Territories Ior a term oI Iive years
the Finance Commission and oI the Union
commencing Irom the date on which he enters
Public Service Commission, ChieI Election
upon his oIIice. He is the head oI the executive
Commi s s i oner and ot her El ect i on
and also a constituent part oI Parliament. He
Commissioners.
perIorms a number oI important executive as
well as legislative Iunctions.
As constituent part oI Parliament, the
President perIorms certain important
The executive power oI the Union is
PAR L l AME NT
Lok Sabha (House of the People)
Composition: 545 Members;
543 elected representatives oI
people; and 2 Members nominated
by President oI India Irom the
Anglo-Indian community.
Term: Five years.
Subject to dissolution by President
oI India.
Rajya Sabha (Council of States)
Composition: 245 Members;
233 representing States/UTs and
12 nominated by President oI India.
Term: Apermanent body not
subject to dissolution. However, one
third oI members retire biennially
aIter completing a term oI six years.
President of India
Elected by members oI an
electoral college consisting oI
the elected members oI both
Houses oI Parliament and
Legislative Assemblies oI
States/UTs.
Term: Five Years.
Subject to impeachment
by Parliament
Parliament House
parliamentary Iunctions, such as summoning mentioned in his Address on the basis oI a
and proroguing the Houses, summoning the Motion oI Thanks. He may send messages to
joint sittings oI both Houses in the event oI either House oI Parliament whether with
disagreement, addressing either House oI respect to a Bill pending in Parliament or
Parliament or both Houses oI Parliament or otherwise, and a House to which any such
both Houses assembled together, and message is sent considers the matter required
dissolving the Lok Sabha. At the by the message.
commencement oI the Iirst session aIter each
In the sphere oI law-making, a Bill does
General Election to the House oI the People
not become an Act unless it receives the assent
and at the commencement oI the Iirst session
oI the President. When a Bill is passed by the
oI each year, the President addresses both
two Houses oI Parliament, it is presented to the
Houses oI Parliament assembled together and
President who declares either that he assents to
inIorms Parliament oI the causes oI its
the Bill or that he withholds his assent
summon. Rules oI Procedure oI both Houses
thereIrom. He may also, iI it is not a Money
have made provision Ior discussion oI matters
Bill, return the Bill to the Houses Ior
reconsideration with or without a message
suggesting reconsideration oI the Bill or any
speciIic provision thereoI. II, however, the
Bill so returned by the President is passed
again by the Houses with or without
amendment, the President cannot withhold
his assent thereIrom. When Parliament is
not in session, the President may, on being
satisIied that circumstances exist which
render it necessary Ior him to take
immediate action, promulgate Ordinances.
An Ordinance promulgated by the President
has the same Iorce oI law. It has to be laid
beIore both Houses oI Parliament. The
Ordinance ceases to operate at the
expiration oI six weeks Irom the reassembly
oI Parliament or iI beIore the expiration oI
6
Ibete sbo|| be o Ites|4eat eI
la4|o.
Ktt|t|e 52
Presidential Convoy
Rashtrapati Bhawan (President House)
that period resolutions disapproving it are provisions oI the Constitution, reports oI the
passed by both Houses, upon the passing oI the Auditor-General, Finance Commission,
second oI those resolutions. The President Union Public Service Commission, etc. are
mayat anytime, withdrawan Ordinance. submitted to the President who then causes
them to be laid beIore each House oI
Under the Constitution, a Money Bill
Parliament.
cannot be introduced or moved in the Lok
Sabha except on the recommendation oI the Although, the Constitution vests a whole
President. ABill which involves expenditure range oI executive, legislative and other
Irom the Consolidated Fund oI India cannot be powers in the President, in actual practice, he
passed by either House oI Parliament unless exercises these Iunctions in accordance with
the President has recommended to that House the advice tendered by the Council oI
the consideration oI the Bill. As per the Ministers with the Prime Minister at its head.
7
1be eecu|ive ower o| |be Union sboII
be ves|ed in |be residen| ond sboII be
eercised by bim ei|ber direc|Iy or
|brouqbo||icers subordino|e |o bim.
Ar|icIe 58(1)
Mughal Garden of Rashtrapati Bhawan
Darbar Hall of Rashtrapati Bhawan Ashoka Hall of Rashtrapati Bhawan
Rajya Sabha
chosen in accordance with laws enacted by
The Council oI States (Rajya Sabha)
Parliament. Twelve members nominated by
consists oI not more than two hundred and
the President are Irom amongst the persons
IiIty members, out oI which two hundred and
having special knowledge or practical
thirty-eight members represent the States and
experience in respect oI such matters as
Union territories and twelve members are
literature, science, art and social service. The
nominated by the President. The Fourth
actual strength oI Rajya Sabha, at present, is
Schedule to the Constitution provides Ior
two hundred and Iorty-Iive.
allocation oI seats to various States and Union
territories. The representatives oI the States The Rajya Sabha is a permanent body
are elected by the elected members oI State and is not subject to dissolution. However,
Assemblies in accordance with the system oI one-third oI its members retire biennially. A
proportional representation by means oI the member who is elected Ior a Iull term retains
his membership Ior six years. He is eligible single transIerable vote. The representatives
oI the Union territories in Rajya Sabha are Ior re-election.
8
there sha|| |e a rar|iameat ar the 0aiaa whith
sha|| taasist a the rresieat aa twa 8aeses ta
|e kaawa resettive|y as the caeati| a !tates
aa the 8aese a the rea|e.
krtit|e 1
Side view of Rajya Sabha Chamber
Rajya Sabha Chamber
9
the caeati| a !tates sha|| taasist a -
[ a} twe| ve mem|ers ta |e aami aate |y
t h e r r e s i e a t i a a t t a r a a t e wi t h t h e
ravisiaas a t|aese [1}, aa
[|} aat mare thaa twa heare aa thirty-eiqht
rereseatatives a the !tates aa a the 0aiaa
territaries.
krtit|e [1}
Side view of Rajya Sabha Chamber
Side view of Rajya Sabha Chamber
No. of Seats`
0 5 10 15 20 25 30 35
Puducherry
Sikkim
Nagaland
Mizoram
Tripura
Meghalaya
Manipur
Arunachal Pradesh
Goa
Delhi
Uttarakhand
Himachal Pradesh
Jammu & Kashmir
Haryana
Chhattisgarh
Jharkhand
Punjab
Assam
Kerala
Orissa
Rajasthan
Gujarat
Madhya Pradesh
Karnataka
Bihar
West Bengal
Tamil Nadu
Andhra Pradesh
Maharashtra
Uttar Pradesh
S
t
a
t
e
s
/
U
T
s
1
1
1
1
1
1
1
1
1
3
3
3
4
5
5
6
7
7
9
10
10
11
11
12
16
16
18
18
19
31
Allocation of Seats in Rajya Sabha
*Besides, there are twelve members nominated by the President of India.
Lok Sabha
constituencies specially earmarked Ior them
all over the country. The Representation oI the
The House oI the People (Lok Sabha)
People Act makes provision Ior allocation oI
consists oI Iive hundred and IiIty-two
seats to various States and Union territories.
members out oI which Iive hundred and thirty
The actual strength oI the Lok Sabha at
are directly elected Irom territorial
present is Iive hundred and Iorty-Iive which
constituencies in the States and twenty Irom
includes the Speaker and the two nominated
the Union territories. Two members are
members. As already stated, the Iirst Lok
nominated by the President Irom the Anglo-
Sabha under the Constitution was constituted
Indian community. Seats are also reserved in
aIter the General Elections held in 1952. The
the Lok Sabha Ior the Scheduled Castes and
Lok Sabha, unless sooner dissolved continues
Ior Iive years Irom the date appointed Ior its the Scheduled Tribes who are elected Irom
First Lok Sabha
17 April 1952 4 April 1957
Second Lok Sabha
5 April 1957 31 March 1962
Third Lok Sabha
2 April 1962 3 March 1967
10
Exterior view of Parliament House
Lok Sabha Chamber
Iirst meeting. However, while a Proclamation months aIter the Proclamation has ceased to
oI Emergency is in operation, this period may operate.
be extended by Parliament by lawIor a period
Both Houses held their Iirst sitting on
not exceeding one year at a time and not
13 May 1952.
extending in any case beyond a period oI six
11
Fourth Lok Sabha Fifth Lok Sabha
Sixth Lok Sabha
23 March 1977 22 August 1979 15 March 197118 January 1977 4 March 1967 27 December 1970
!e|[ett ta the ravisiaas a artit|e 111, the 8aese a the
rea|e sha|| taasist a -
[a} aat mare thaa ive heare aa thirty mem|ers thasea |y
irett e|ettiaa ram territaria| taastiteeaties ia the !tates,
aa
[|} aat mare thaa tweaty mem|ers ta rereseat the 0aiaa
territaries, thasea ia seth maaaer as rar|iameat may |y |aw
ravie.
krtit|e 1[1}
A Tableau at Republic Day Parade depicting the success of
Parliamentary democracy in India.
* Besides, there are two members from Anglo-Indian community nominated by the President of India.
Allocation of Seats in Lok Sabha
80
48
42
42
40
39
29
28
26
25
21
20
14
14
13
11
10
7
6
5
4
2
2
2
2
2
1
1
1
1
1
1
1
1
1
0 10 20 30 40 50 60 70 80 90
Uttar Pradesh
Maharashtra
Andhra Pradesh
West Bengal
Bihar
Tamil Nadu
Madhya Pradesh
Karnataka
Gujarat
Rajasthan
Orissa
Kerala
Assam
Jharkhand
Punjab
Chhattisgarh
Haryana
Delhi
Jammu & Kashmir
Uttarakhand
Himachal Pradesh
Goa
Arunachal Pradesh
Manipur
Meghalaya
Tripura
Mizoram
Nagaland
Sikkim
A& N Islands
Chandigarh
Dadra & N. Haveli
Daman & Diu
Lakshadweep
Puducherry
S
t
a
t
e
s
/
U
T
s
No. oI Seats*
the 8aese a the rea|e, ea|ess saaaer issa|ve, sha|| taatiaee ar ive years ram the ate
aaiate ar its irst meetiaq aa aa |aaqer aa the exiratiaa a the sai eria a ive years sha|| aerate
as a issa|etiaa a the 8aese:
rravie that the sai eria may, whi|e a rrat|amatiaa a lmerqeaty is ia aeratiaa, |e exteae
|y rar|iameat |y |aw ar a eria aat exteeiaq aae year at a time aa aat exteaiaq ia aay tase |eyaa a
eria a six maaths ater the rrat|amatiaahas tease ta aerate.
krtit|e 1[z}
Interior of Lok Sabha Chamber
12
Seventh Lok Sabha
10 January 1980
31 December 1984
Eighth Lok Sabha
31 December 1984
27 November 1989
Ninth Lok Sabha
2 December 1989
13 March 1991
General Elections to Lok Sabha

October 1951 - February 1952
24 February 14 March 1957
19 February 25 February 1962
17 February 21 February 1967
1 March 10 March 1971
16 March 20 March 1977
3 January 6 January 1980
24 December 28 December 1984

22 November 26 November 1989
20 May 15 June 1991

27 April 30 May 1996
16 February 23 February 1998
5 September - 6 October 1999
20 April 10 May 2004
First Lok Sabha

(1951-52)

Second Lok Sabha

(1957)

Third Lok Sabha

(1962)

Fourth Lok Sabha

(1967)

Fifth Lok Sabha

(1971)


Sixth Lok Sabha

(1977)



Seventh Lok Sabha

(1980)


Eighth Lok Sabha

(1984)


Ninth Lok Sabha

(1989)

Tenth Lok Sabha

(1991)

Eleventh Lok Sabha

(1996)

Twelfth Lok Sabha

(1998)

Thirteenth Lok Sabha
(1999)

Fourteenth Lok Sabha
(2004)
13
Tenth Lok Sabha
Eleventh Lok Sabha Twelfth Lok Sabha
10 March 1998 26 April 1999 15 May 1996 4 December 1997 20 June 1991 10 May 1996
than an oIIice declared by
Qualifications forMembership
Parliament by lawnot to disqualiIy
In order to be chosen as a member oI
its holder;
Parliament a person (a) must be a citizen oI
(b) iI he is oI unsound mind and stands
India, (b) must not be less than twenty-Iive
so declared by a competent court;
years oI age in the case oI Lok Sabha and not
less than thirty years oI age in the case oI Rajya
(c) iI he is an undischarged insolvent;
Sabha.
(d) iI he is not a citizen oI India or has
voluntarily acquired the citizenship
Disqualifications forMembership
oI a Ioreign State; and
The Iollowing grounds could
(e) iI he is so disqualiIied by or under
disqualiIy a person Ior being chosen and Ior
any law made by Parliament or the
beinga Member oI Parliament:
Tenth Schedule oI the Constitution.
(a) iI he holds any oIIice oI proIit other
Main Entrance to Parliament House Celebrating Golden Jubilee of Indian Parliament
14
Thirteenth Lok Sabha
Fourteenth Lok Sabha
10 October 1999 6 February 2004 22 May 2004 Till date
P R E 5 l Dl NG OF F l CE R 5
ach House has its own Presiding
OIIicer who enjoys ample authority
Eand powers under the Constitution
and the Rules oI Procedure. The Presiding
OIIicer is the custodian oI the rights and
privileges oI the House, its Committees and
Members. It is through him that the decisions
oI the House are communicated to individuals
and authorities outside; he issues warrants to
execute the order oI the House, wherever
necessary. Within the precincts oI the House,
his authority is supreme. His conduct cannot
be discussed except on a substantive motion.
The Vice-President oI India is the ex
officio Chairman oI Rajya Sabha and presides
over its sittings, and in his absence the Deputy
Chairman. The Vice-President oI India is
elected by the members oI an electoral college
consisting oI members oI both Houses oI
Parliament in accordance with the system oI
proportional representation by means oI the
single transIerable vote.
Chairman : The Vice-President
oI India is ex offcio Chairman
oI Rajya Sabha. He is elected by
an electoral college consisting
oI members oI both Houses oI
Parliament Ior Iive years.
Deputy Chairman : Elected by
members oI Rajya Sabha Irom
amongst themselves. He remains
in oIIice till the expiry oI his term
as a member.
Panel of Vice-Chairmen :
Consists oI 6 members oI
Rajya Sabha nominated by the
Chairman to preside over the
House in the absence oI
Cha i r ma n a nd De put y
Chairman.
15
Preslolng Ottlcers ot Pajya Sabba Preslolng Ottlcers ot Pajya Sabba
the vite-
rresieat a
Iaia sha|| |e
ex aitia
chairmaa a the
caeati| a !tates.
krtit|e [1}
Chairman's Chair in
Rajya Sabha Chamber
The Deputy Chairman is
elected by the members oI Rajya
Sabha Irom amongst themselves.
In the absence oI both, one oI the
six members nominated by the
Chairman on the 'Panel oI the
Vice-Chairmen' presides.
When the Vice-President
acts as or perIorms the duties oI
the President oI India, the duties
oI the Chairman oI the Rajya
Sabha are perIormed by the
Deputy Chairman. In the Lok
Sabha, the Speaker presides over
its sittings and in his absence the
Deputy Speaker. Both oI them
are elected Irom amongst its
members. In the absence oI
both, one oI the members
nominated by the Speaker on the
'Panel oI Chairmen' presides.
Speaker : Elected by members oI
Lok Sabha Irom amongst
themselves and remains in oIIice
till a new House is constituted
through general elections.
Deputy Speaker : Elected by
members oI Lok Sabha Irom
amongst themselves and remains
in oIIice till the dissolution oI
Lok Sabha.
Panel of Chairmen : Consists
oI 10 members oI Lok Sabha
nominated by the Speaker to
preside over the House in the
absence oI Speaker and
Deputy Speaker.
16
Preslolng Ottlcers ot Lok Sabba Preslolng Ottlcers ot Lok Sabba
the 8aese a the rea|e sha||, as saaa as may |e, thaase
twa mem|ers a the 8aese ta |e resettive|y !eaker
aa 0eety !eaker therea aa, sa atea as the aite a
!eaker ar 0eety !eaker |etames vataat, the 8aese
sha|| thaase aaather mem|er ta |e !eaker ar 0eety
!eaker, as the tase may |e.
krtit|e 1
Speaker's Chair in Lok Sabha Chamber
part Irom the Presiding OIIicer(s),
anot her I unct i onar y whose
Acont ri but i on t o t he smoot h
Iunctioning oI the House is no less signiIicant
is the Secretary-General oI the House.
The Secretary-General is appointed by
the Chairman in case oI Rajya Sabha and by
the Speaker in case oI Lok Sabha and holds a
rank equivalent to the highest civil servant oI
the Union Government i.e. Cabinet Secretary.
He works silently, with near anonymity and
assists the Presiding OIIicers in settling points
oI procedure by giving them detached advice
and helps them by oIIering his wise counsel
and expert opinion on contentious issues. He
is readily available to Presiding OIIicers as
also to the members oI the House alike,
irrespective oI their party aIIiliations. Though
a witness to the proceedings oI the House, he
does not participate in them. The only occasion
when the Secretary-General speaks is when he
reports messages Irom the other House about
Bills or any other matter. All notices under the
rules are required to be addressed to Secretary-
General who is also the custodian oI records oI
the House and causes to be prepared Iull report
oI the proceedings oI the House and also issues
the List oI Business oI the House Ior the day.
5 E CR E TARY- GE NE R AL
17
Exterior of Parliament House
arliament oI India has the cardinal
Iunctions oI legislation, control oI
Pexecutive and ventilation oI people's
grievances. The primary Iunction oI
Parliament is to legislate but in initiating
legislation Parliament plays a limited role.
The legislative proposals are introduced
mostly by the Government in order to IulIil the
promises Ior which it has received the mandate
oI the people. Parliament, being the highest
elected body, gives Iinal approval to such
proposals aIter discussing them Iully and
suggesting modiIications, wherever Ielt
necessary. Without the approval oI Parliament,
no Bill can reach the statute book.
exercises check over the executive is through
its control over Iinances. Parliament approves
the 'Budget' oI the nation aIter discussion and
voting on Demands Ior Grants relating to
individual Ministries. Lok Sabha has power to
assent or reIuse to give assent to, any Demand
or even to reduce the amount oI any Grant
s ought by t he Gover nment . Such
parliamentary control over Iinance helps in
securing administrative accountability also.
While approving the Budget, not only the
principles underlying it, but the policies and
administrative Iunctioning oI the Ministries
and Departments are also discussed.
Parliament perIorms another important
Parliament also exercises control over Iunction oI highlighting people's grievances.
the executive. The control is exercised by it at Various procedural devices available to
diIIerent levels. The Constitution provides that members oI Parliament aIIord ample
the Council oI Ministers shall be collectively opportunities Ior ventilating people' s
responsible to Lok Sabha. In other words, the grievances and seeking solutions to them. For
Government oI the day has to go, iI a Motion example, members make use oI Questions
oI No-ConIidence is passed by Lok Sabha. (Starred, Unstarred and Short Notice), HalI-
Another method by which Parliament an-hour Discussions, Short Duration
To control
the
executive
including
Iinancial
control
AIorum to
seek
inIormation
R OL E OF PAR L l AME NT
18
rar|iameat is aat aa|y a |eqis|ative |et a e|i|erative |ay.
!a ar as its e|i|erative eattiaas are taaterae it wi|| |e
aea ta es ta make very va|ea||e taatri|etiaas, aa it wi||
eea aa aer wark whether we [estiy ar a aat [estiy
this twa-cham|er systemwhith is aawaa iateqra| art a
aer caastitetiaa.
0r. !arvea||i kahakrishaaa
Iirst chairmaa a ka[ya !a|ha
Exterior of Parliament House
Discussions, various types oI Motions and
Resolutions and Special Mentions (Matters
raised under Rule 377 in Lok Sabha). In
addition, in the Lok Sabha, members may
move Adjournment Motions, No-ConIidence
Motions and Cut Motions. Apart Irom these
signiIicant devices, Motion oI Thanks on the
President's Address, the Budget, Demands Ior
Grants oI various Ministries and Departments
(in Lok Sabha) and discussion on the
proposals to raise Iunds to meet the
expenditure provide Iurther opportunities not
only to ventilate people's grievances but also
to review or assess the perIormance oI
administration.
Parliament also provides the Council oI
Ministers. The Ministers are drawn Irom both
Houses oI Parliament. AMinister who is not a
member oI Parliament cannot continue in
oIIice beyond six months unless within this
period he gets himselI elected to either House
oI Parliament.
19
Circular Garden of Rashtrapati Bhawan
k Miaister wha ar aay eria a six taasetetive
maaths is aat a mem|er a either 8aese a
rar|iameat sha|| at the exiratiaa a that eria
tease ta |e a Miaister.
krtit|e 1[}
Circular Fountain in Rashtrapati Bhawan
ut Ior a Iewexceptions, both Houses territory oI India. Such a resolution remains
oI Parliament enjoy similar powers in Iorce Ior a maximum period oI one year but
Band status under the Constitution. In this period can be extended by one year at a
certain spheres, however, each House has been time by passing a Iurther resolution.
given some special powers which are not
Again, under article 312 oI the
available to the other. Distribution oI such
Constitution, iI Rajya Sabha passes a
powers is based mainly on the nature and
resolution by a majority oI not less than two-
composition oI the House.
thirds oI the members present and voting
declaring that it is necessary or expedient in
Special Powers of Rajya Sabha
the national interest to create one or more All
Rajya Sabha which represents the States,
India Services common to the Union and the
enjoys certain special powers under the
States, Parliament has the power to create by
Constitution. Article 249 oI the Constitution
lawsuch services.
provides that Rajya Sabha may pass a
Under the Constitution, President is
resolution, by a majority oI not less than two-
empowered to issue Proclamations in the
thirds oI the members present and voting, to
event oI national emergency (article 352), in
the eIIect that it is necessary or expedient in the
the event oI Iailure oI constitutional
national interest that Parliament should make a
machinery in a State (article 356), or in the
law with respect to any matter enumerated in
the State List. Then, Parliament is empowered
to make a law on the subject speciIied in the
resolution Ior the whole or any part oI the
case oI Iinancial emergency (article 360).
Normally, every such Proclamation has to be
approved by both Houses oI Parliament within
THE TWO HOU5E5 :
POWER5 AND RELATl ON5Hl P
To pass a resolution under article
249 oI the Constitution enabling
Parliament to legislate on any
subject enumerated in the State
List.
To pass a resolution under article
312 oI the Constitution enabling
Parliament to create one or moreAll
India Services common to the Union
and the States.
II a proclamation is issued Ior imposing
national emergency (article 352) or
Iailure oI Constitutional machinery in a
State (article 356) or Iinancial
emergency (article 360), at a time when
Lok Sabha has been dissolved then the
proclamation remains eIIective even iI
it is approved by Rajya Sabha alone.
20
Exterior of Central Hall of Parliament House
a st i pul at ed peri od. Under cert ai n
circumstances, however, Rajya Sabha enjoys
special powers in this regard. II a
Proclamation is issued at a time when Lok
Sabha has been dissolved or the dissolution oI
Lok Sabha takes place within the period
al l owed Ior i t s approval , t hen t he
Proclamation can remain eIIective iI a
resolution approving it, is passed by Rajya
Sabha.
Special Powers of Lok Sabha
Lok Sabha enjoys special powers in
regard to the 'collective responsibility' oI the
Government and in Iinancial matters. The
Constitution provides that the Council oI
Ministers shall be collectively responsible to
the House oI the People (Lok Sabha). The
power to control the purse also lies with Lok
Sabha. A Money Bill has to be introduced
only in Lok Sabha. Similarly, Demands Ior
Grants oI the various Ministries are also made
to, discussed and voted in Lok Sabha.
Rajya Sabha has to return such a Bill to Lok
Sabha within a period oI Iourteen days Irom its
receipt. II it is not returned to Lok Sabha
within that time, Bill is deemed to have been
passed by both Houses at the expiration oI the
said period in the Iorm in which it was passed
by Lok Sabha. Again, Rajya Sabha cannot
amend a Money Bill directly; it can only
recommend amendments in such a Bill. Lok
Sabha may either accept or reject all or any oI
the recommendations made by Rajya Sabha.
II Lok Sabha accepts any oI the recommen-
dations made by Rajya Sabha, the Bill is
deemed to have been passed by both Houses
with the amendments so recommended and
accepted.
II, however, Lok Sabha does not accept
any oI the recommendations oI Rajya Sabha,
the Money Bill is deemed to have been passed
by both Houses oI Parliament in the Iorm in
which it was passed by Lok Sabha without any
oI the amendments recommended by Rajya
Sabha.
Apart Irom a Money Bill, certain other
categories oI Financial Bills also cannot be Relationship of the two Houses
introduced in Rajya Sabha but there is no other
As mentioned earlier, a Money Bill can
limitation on the powers oI Rajya Sabha with
be introduced only in Lok Sabha. AIter it is
regard to such Bills and Rajya Sabha has
passed by that House, it is transmitted to Rajya
powers to reject or amend such Financial Bills
Sabha Ior its concurrence or recommendation.
like any other Bill.
The power oI Rajya Sabha in respect oI such a
From all this, however, it does not Iollow Bill is limited with regard to the duration oI its
that Rajya Sabha has nothing to do in matters retention and making amendments thereto.
21
the caeati| a Miaisters sha|| |e ta||ettive|y
resaasi||e ta the 8aese a the rea|e.
krtit|e 1[1}
Interior of Parliament House
relating to Iinance. The Budget oI the Finance Bills) including the Constitution
Government oI India is laid every year beIore Amendment Bills, may originate in either
Rajya Sabha also and its members discuss it. House oI Parliament. ABill introduced by the
Though Rajya Sabha does not vote on
Minister is known as the Government Bill and
Demands Ior Grants oI various Ministries a
a Bill introduced by a private member is
matter exclusively reserved Ior Lok Sabha.
known as private member's Bill. The
However, members oI Rajya Sabha are also
procedure Ior the passage oI the Bills is similar
represented in the Department-related
in both the cases. A Bill has to pass through
Parliamentary Standing Committees which
three stages known as the Iirst reading, second
inter alia consider Demands Ior Grants oI the
reading and third reading, in each House oI
rel at ed Mi ni st ri es/ Depart ment s. The
Parliament and receive the assent oI the
Appropriation Bill and the annual Finance
President beIore it becomes an Act oI
Bill also pass through Rajya Sabha which can
Parliament. ABill shall not be deemed to have
make recommendations that may or may not
been passed by Parliament, unless it has been
be accepted by LokSabha.
agreed to by both Houses, either without
In the sphere oI lawmaking, both Houses amendment or with amendments agreed to by
enjoy equal powers as originating and revising both Houses.
chambers. All Bills (other than Money Bills or
22
Lok Sabha controls the purse oI
the Government. ThereIore, a
Money Bi l l can onl y be
introduced in Lok Sabha.
Similarly, Demands Ior Grants oI
Ministries/Departments can be
voted only in Lok Sabha.
Council oI Ministers is
collectively responsible to
Lok Sabha and remains in
power as long as it enjoys
conIidence oI the House.
ConIidence or no-conIidence
motion can only be moved in
Lok Sabha and passed by it.
lath 8aese has e|| aetharity ta reqe|ate its awa rateere withia
the |imits a the caastitetiaa. keither 8aese, |y itse|, taastitetes
rar|iameat. It is the twa 8aeses taqether that are the rar|iameat
a Iaia. the settesse| warkiaq a aer caastitetiaa, as a aay
ematratit strettere, emaas the t|asest taaeratiaa |etweea the
twa 8aeses.
raait Jawahar|a| kehre
Iirst rrime Miaister a Iaia
23
it be taken into consideration by
the House; or
it be reIerred to Select
Committee oI Rajya Sabha; or

Sabha; or
it be reIerred to Joint
Committee oI the Houses with
the concurrence oI Lok

it be circulated Ior eliciting
public opinion
SECOND READING
SECOAD S1ACE
FIRS1 S1ACE
In the Iirst stage there
is discussion on the
principles and
provisions oI the Bill
and a motion is passed
that: -
Clause by
clause
consideration oI
the Bill as
introduced or
as reported by
the Select/Joint
Committee
THIRD READING
Discussion oI motion that the Bill (or the Bill as amended) be
passed or returned (to the Lok Sabha, in case oI a Money Bill)
L E Gl 5 L AT l V E P R OCE 5 5
Introduction oI a Bill*

Publication oI the Bill in OIIicial Gazette
FIRST READING

*Since the inception oI Department - related Standing Committees, a new practice has evolved. Nowadays, generally, Bills are reIerred to the concerned Department-
related Committees Ior examination and report thereon by the Presiding OIIicers once they are introduced in the House.
24
Bills
Government Bills Private Members` Bills

Original Bills (having new proposals, ideas or policies)
Amending Bills (which seek to modiIy, amend or revise
existing Acts)
Consolidating Bills (which seek to consolidate existing
Acts)
Expiring Laws (Continuance) Bills (which seek to
continue Acts which would expire aIter a speciIic date)


Repealing and Amending Bills (which seek to repeal
outdated Acts)
Validating Bills (which seek to give validity to certain
actions)
Bills to replace Ordinances
Money and Financial Bills
Constitution Amending Bills
There is a possibility oI disagreement Both Houses possess equal powers with
regard to a Constitution Amendment Bill. A between the two Houses on a Bill. Such a
Bill to amend the Constitution has to be passed disagreement may arise when (i) a Bill passed by
by each House oI Parliament separately by a
one House is rejected by the other House; or (ii)
majority oI the total membership oI the House
the Houses have Iinally disagreed as to the
and by a majority oI not less than two-thirds oI
amendments to be made in the Bill; or (iii) more
the members oI that House present and voting.
than six months elapse Irom the date oI reception
Some oI these Constitution Amendment Bills
oI the Bill by the other House without the Bill
also require to be ratiIied by the Legislatures
being passed by it. To resolve the deadlock on a
oI not less than one-halI oI the States. There is
Bill between the two Houses, the Constitution
no provision Ior a joint sitting with regard to a
makes provision Ior the joint sitting oI both
Constitution Amendment Bill iI a deadlock
Houses which may be summoned by the
were to arise between the two Houses either
President. II at the joint sitting oI the two Houses,
due to rejection oI such a Bill in one House or
the Bill is passed by the majority oI the total
both Houses not agreeing to the amendments
number oI members oI both Houses present and
to be made in such a Bill.
voting, it shall be deemed to have been passed by
As mentioned, Ministers may belong to
both Houses.
either House oI Parliament. The Constitution
There is no provision Ior a joint sitting oI
does not make any distinction between the
both Houses on Money Bills.
Houses in this regard. Every Minister has the
right to speak in and take part in the In the history oI Indian Parliament, there
proceedings oI either House but he is entitled have been three occasions when both Houses
to vote only in the House oI which he is a
have sat Ior a joint sitting to resolve such a
member.
deadlock.
25
1oint Sittings
6 and 9 May 1961
on Dowry Prohibition
Bill, 1959
17 May 1978
on Banking Service
Commission (Repeal)
Bill, 1977
26 March 2002
on Prevention of
Terrorism Bill, 2002
We are ar the irst time startiaq, eaer the aew
ar|iameatary system, with a !etaa cham|er ia the
ceatre, aa we shae| try ta a everythiaq ia aer
awer ta [estiy ta the e||it a this taeatry that a
!etaa cham|er is esseatia| ta reveat hasty
|eqis|atiaa
0r. !arvea||i kahakrishaaa
Inside view of Central Hall of Parliament House
Similarly, with regard to powers, Prime Minister oI India, once observed :
privileges and immunities oI the Houses oI
'To call either oI these Houses an
Parliament, their members and Committees
Upper House or a Lower House is
thereoI, the two Houses are placed on equal
not correct. Each House has Iull
Iootingby the Constitution.
authority to regulate its own
Other important matters in respect oI procedure within the limits oI the
which both Houses enjoy equal powers are Constitution. Neither House, by
election and impeachment oI the President, itselI, constitutes Parliament. It is
election oI the Vice-President, approving the the two Houses together that are
Proclamation oI emergency and the the Parliament oI India. There
Pr ocl amat i on r egar di ng I ai l ur e oI can be no cons t i t ut i onal
constitutional machinery in States and in diIIerences between the two
respect oI receiving reports and papers Irom Houses because the Iinal authority
various statutory authorities, etc. is the Constitution itselI. The
Constitution treats the two Houses
It is thus clear that except in the case oI
equally except in Iinancial matters
collective responsibility oI the Cabinet and
which are to be the sole purviewoI
certain Iinancial matters (which Iall in the
the House oI the People.
domain oI Lok Sabha only), both Houses
enjoy equal powers. Emphasising that neither Over the years, both Houses have
House oI the Indian Parliament was superior to Iunctioned in a spirit oI cooperation and the
the other and that each House had to perIorm disagreements between the two have been Iew
the speciIic Iunctions allotted to it by the and Iar between either in regard to legislation
Constitution, Shri Jawaharlal Nehru, the Iirst or otherwise.
26
Exterior of Parliament House
ka mem|er a rar|iameat sha|| |e |ia||e ta aay
rateeiaqs ia aay taert ia resett a aay thiaq sai ar aay
vate qivea |y himia rar|iameat ar aay tammittee therea,
aa aa ersaa, sha|| |e sa |ia||e ia resett a the
e||itatiaa |y ar eaer the aetharity a either 8aese a
rar|iameat a aay reart, aer, vates ar rateeiaqs.
krtit|e 1[z}
Seventh Schedule to the Constitution
Union List
(97 subjects)
State List
(66 subjects)
Concurrent List
(47 subjects)
he scheme oI distribution oI subject- Parliament and State Legislatures can make
matters oI laws between the Centre laws. Further, Parliament enjoys exclusive
Tand the States, Iollowed in the power to make laws on subjects not mentioned
Constitution emphasizes in many ways the in any oI these three Lists.
general predominance oI Parliament in the
Apart Irom the wide range oI subjects
legislative Iield. While a State Legislature can
allotted to Parliament and the State
make laws only Ior the whole or any part oI the
Legislatures in the Seventh Schedule to the
State territory, Parliament has power to
Constitution, even in normal times Parliament
legislate Ior the whole or any part oI the
can, under certain circumstances, assume
territory oI India.
legislative power over a subject Ialling within
the sphere exclusively reserved Ior the States.
The Sevent h Schedul e t o t he
II any provision oI a law made by the
Const i t ut i on cont ai ns an el abor at e
Legislature oI a State is repugnant to any
enumeration oI subjects distributed among
provision oI a lawmade by Parliament, the law
three Lists deIining legislative relations
made by Parliament, whether passed beIore or
bet ween Par l i ament and t he St at e
aIter the law made by the Legislature oI the
Legislatures. While Parliament has exclusive
State, prevails and the law made by the
power to make laws with respect to the
Legislature oI the State to the extent oI
subjects included in the Union List,
repugnancy becomes inoperative.
Legislature oI the State has exclusive power to
Further, in times oI grave emergency make laws (Ior such State) with respect to the
when the security oI India or any part thereoI is matters enumerated in the State List. On
threatened by war or external aggression or matters included in the Concurrent List, both
PREDOMlNANCE OF
PARLlAMENT lN
LEGl5LATlVE FlELD
27
Rajya Sabha Chamber
armed rebellion and a Proclamation oI
emergency is made by the President,
Parliament acquires the power to make laws
Ior the whole or any part oI the territory oI
India with respect to any oI the matters
enumerated inthe State List.
Similarly, in the event oI Iailure oI the
constitutional machinery in a State, the powers
oI the legislature oI that State, become
exercisable by or under the authority oI
Parliament.
Besides, the power to legislate on a wide
range oI subjects, the Constitution vests the
power to initiate amendment to the
Constitution in Parliament only.
28
Legislative Assembly of Karnataka Legislative Assembly of Andhra Pradesh
Legislative Assembly of Goa Legislative Assembly of Sikkim
Sessions
Normally, three Sessions are held in a
year: (i) Budget Session*; (ii) Monsoon
Session; and (iii) Winter Session. Parliament
on an average meets Ior 85 to 105 days in a
year. However, Parliamentary Committees
meet throughout the year.
Arrangement of Business
Both Houses meet in their separate
Chambers at 11 a.m. and conclude at 5.00 p.m.
(Rajya Sabha) or 6.00 p.m. (Lok Sabha) or
beyond. Parliament disposes oI matters on a
particular day in the order as indicated in the
List oI Business which is made available to
members beIore the commencement oI the
sitting oI the House on that day. The Iirst hour
oI sitting everyday generally is the Question
Hour during which members ask questions to
elicit inIormation Irom Ministers on matters
relating to their Ministries/ Departments. Oath
and aIIirmation to be made by newly elected
GENERAL WORKl NG OF
PARLl AMENT
29
*Consequent upon the setting up oI the Department-related Standing Committees, the relevant rule
provides that aIter the general discussion on the Budget in the Houses is over, the Houses will be
adjourned Ior a Iixed period and the Committees will consider the Demands Ior Grants oI the related
Ministries during the aIoresaidperiod.
the rresieat sha|| ram time ta time semmaa eath 8aese a
rar|iameat ta meet at seth time aa |ate as he thiaks it, |et six
maaths sha|| aat iaterveae |etweea its |ast sittiaq ia aae sessiaa
aa the ate aaiate ar its irst sittiaq ia the aext sessiaa.
krtit|e [1}
Parliament House
members or obituary reIerence, iI any, Rule 377 in Lok Sabha are made. Sometimes,
however, takes precedence over the with the permission oI the Chair during this
Questions. Immediately aIter the Question time some points may be raised by members.
Hour, Ministers, Chairmen/ members oI the The aIternoon sitting is generally devoted to
Committees, lay papers, reports, etc. on the transacting legislative business. OIten
Table oI the Houses which are required to be Ministers make statements on matters oI
laid under various statutes or otherwise to general public interest. Sometimes halI-an-
share i nIormat i on wi t h Parl i ament . hour discussion may arise on subjects which
ThereaIter, Calling Attention on a matter oI had been the subject matter oI a recent
Urgent Public Importance, iI any, is taken up. question, oral or written, requiring Iurther
Otherwise, Special Mentions in Rajya Sabha elucidation oI Iacts. At times, short duration
under Rule 180A and matters raised under discussions are also taken up.
Sessions of Parliament
Budget Session
(February-May)
Monsoon Session
(1uly-August)
Winter Session
(November-December)
30
Entrance to the Chamber of Chairman, Rajya Sabha
Front view of Parliament House

Oath or aIIirmation by new members;
obituary reIerences, iI any
Question Hour (11 a.m. to 12 noon)

Laying oI Papers/Reports, etc.

Matters raised with the permission oI the
Chair




Lunch Break
Transaction oI legislative business such as
introduction, discussion or passage oI Bills.
Short Duration Discussions, iI any, on matters
oI urgent public importance.
HalI-an-Hour Discussion, iI any on the subject
matter oI a recent question (oral or written asked
in the House) Ior Iurther elucidation oI Iacts
Statements by Ministers on matters oI general
public interest, iI any

Arrangement
of Business`
*With special reIerence to Rajya Sabha
Calling Attention on a matter oI urgent
public importance, iI any
Special Mentions in Rajya Sabha / matters
raised under Rule 377 in Lok Sabha
31
wo oI the main Iunctions oI their views and the Government to state its
case. Parliament are to reIlect people's
Tneeds and aspirations and highlight
Short Duration Discussion
their problems. It also exercises vigilance on
the executive. Deliberations in the legislature,
This device enables a member to raise a
t hereIore, have t o be const ruct i ve,
discussion on matters oI urgent public
inIormative, purposeIul and within the
importance. There is no motion beIore the
parameters oI the Rules oI Procedure.
House when such a discussion is permitted nor
Parliamentary procedure has also to be in tune
is there any voting at the end oI the discussion.
with these Iunctions and provide members
No question oI any censure oI the Government
adequate devices to cater to their growing
is involved in it. Discussion is concluded with
needs and desires to articulate people's
the reply oI the concerned Minister.
Ieelings. From time to time, several procedural
Special Mention in Rajya Sabha
innovations have been introduced in both
Houses oI Indian Parliament. Certain
and matters raised under Rule 377
innovations which are signiIicant in the
in Lok Sabha
conduct oI parliamentary business are as
Iollows :
Anovel method that has been devised in
the Indian Parliament is 'Special Mention' in
Calling Attention
Rajya Sabha and raising oI matters under Rule
Under this procedure, with the 377 in Lok Sabha, which enables members to
permission oI the Presiding OIIicer, a member raise various matters oI public importance at
calls the attention oI a Minister to a matter oI the earliest which would not otherwise come
urgent public importance and the Minister up in any other Iorm. Earlier, there was no rule
concerned makes a statement thereon. Copies governing the raising oI a matter under Special
oI the statement are simultaneously Mention procedure in Rajya Sabha. The
distributed to the members in the Chamber. Committee on Rules in its eighth report
ThereaIter, members are entitled to seek recommended Ior the incorporation oI Special
clariIications on the statement. This device Mention in the corpus oI the Rules oI
thus gives opportunities to members to express Procedure and Conduct oI Business and
PROCEDURAL lNNOVATlON5
lN PARLlAMENT
32
lath 8aese a rar|iameat may make re|es ar reqe|atiaq,
se|[ett ta the ravisiaas a this caastitetiaa, its
rateere aa the taaett a its |esiaess.
krtit|e 11[1}
suggested new Rules 180A to 180E Ior this institutionalized or incorporated in the Rule
Book), oI giving expression to their Ieelings purpose which came into eIIect Irom 1 July
around 12 noon. This time has been described
2000. An extract oI the Special Mention is
by Indian journalists as 'zero hour', because it
culled out Irom the proceedings oI the day and
starts at mid-day. During this time a number oI
Iorwarded to the concerned Ministry Ior
members rise to make impromptu submissions
Iurnishing reply within 30 days under the
on matters which they Ieel are very urgent and
signature oI the Minister direct to the member
they cannot wait Ior the matter to be raised on
and copies thereoI endorsed to the Secretariat
the subsequent days as that will undermine the
and the Ministry oI Parliamentary AIIairs.
gravity or importance oI the issues to be raised.
Members are increasingly taking recourse to
In Lok Sabha it is, oI course, Ior the Speaker to
this procedure to raise matters oI public
allowor not to allowraising oI such matters in
importance including matters pertaining to
the House. In Rajya Sabha, the Chairman aIter
their constituencies.
considering the importance and seriousness oI
the matter may permit a member to raise a
Submissions after Question Hour
matter oI public importance but the general
Members have also invented yet another tendency in the House is to discourage zero
technique, (though inIormal and not hour submissions.
33
Colourful procession at Republic Day Parade Colourful procession at Republic Day Parade
(v) Other Committees e. g. , the
Standing Committees
Commi t t ee on Members oI
Agreat deal oI parliamentary business is
P a r l i a m e n t L o c a l A r e a
transacted in Committees. Both Houses oI
Development Scheme.
Parliament have individually and jointly
The notable Joint Committees in which
evolved well-organised Committee structure.
members oI both Houses are represented in the
Amongst the important Committees provided
proportion oI 1 : 2 are :
in the rules oI both Houses are:
(i) Committee on the WelIare oI
(i) Committees to inquire, e.g., the
Scheduled Castes and Scheduled
Committee on Petitions; the
Tribes (it examines various welIare
Committee oI Privileges; and the
programmes Ior the Scheduled
Committee on Ethics;
Castes and Scheduled Tribes);
(ii) Committees to scrutini:e, e.g., the
(ii) Committee on Salaries and
Commi t t ee on Government
Allowances oI Members oI
Assurances; the Committee on
Parliament;
Subordinate Legislation; and the
Committee on Papers Laid on the
(iii) Committee on OIIices oI ProIit
Table;
(it examines holding oI which
oIIices will or will not involve
(iii) Committees relating to the day-to-
disqualiIications so Iar as Members
day business of the House, e.g., the
oI Parliament are concerned);
Business Advisory Committee; the
Committee on Private Members'
(iv) Library Committee.
Bills and Resolutions (only in Lok
Besides the above Committees, there are
Sabha); and the Committee on
the Iollowing Iinancial Committees :
Rules;
(i) Committee on PublicAccounts;
(iv) Committees concerned with the
(ii) Committee on Public Under- provision of facilities to Members,
takings; e. g. , t he General Purposes
Committee; the House Committee;
(iii) Committee on Estimates (only Lok
and the Committee on Provision oI
Sabha members serve on this
Computers to Members;
Committee);
T HE COMMl T T E E 5 Y5 T E M
34
Main Committee Room, Parliament House Annexe
(iv) Railway Convention Committee (b) to examine Bills, pertaining to the
(it Iixes rate oI dividend payable by related Ministries/Departments
the Railways to the General reIerred to the Committee by the
Revenue). Chairman or the Speaker, as the
case may be, and report thereon;
Department-related Standing
(c) to consider the annual reports oI the
Committees
Ministries/Departments and report
During the Budget Session, it had been thereon; and
observed Ior long that Demands Ior Grants
(d) to consider national basic long term
relating to most oI the Ministries/Departments
policy documents presented to the
could not Iully be discussed in Lok Sabha and
Houses, i I reIerred t o t he
had to be guillotined due to paucity oI time. In
Committee by the Chairman or the
1989, three Subject Committees on
Speaker, as the case may be, and
Agriculture; Science and Technology; and
report thereon.
Environment and Forests were set up. To
These Standing Committees are not to
Iurther strengthen the Committee System, the
consider matters oI day-to-day administration
two Houses oI Parliament gave approval on
oI the related Ministries/Departments.
29 March 1993 Ior the setting up oI seventeen
Department-related Standing Committees.
The new Department-related Standing
These Committees have replaced the three
Committees were inaugurated on 31 March
Subject Committees set up in 1989 and
1993 by the then Vice-President oI India and
encompass Ior scrutiny purpose within their
the Chairman, Rajya Sabha, Shri K. R.
ambit all Ministries and Departments oI the
Narayanan. While inaugurating the
Government oI India. These Committees are
Department-related Standing Committee
entrusted with the Iollowing Iunctions :
system in the Central Hall oI Parliament, he
said that the main purpose oI these
(a) to consider the Demands Ior Grants
Committees is
oI t he r el at ed Mi ni st r i es/
Departments and report thereon.
'.to ensure the accountability oI
The report shall not suggest
Government to Parliament through more
anything oI the nature oI cut
detailed consideration oI measures in these
motions;
Committees. The intention is not to weaken or
35
Illuminated North & South Blocks on the occasion of Beating Retreat Ceremony
there sha|| |e rar|iameatary !taaiaq
cammittees a the 8aeses [ta |e ta||e the
!t aai aq cammi t t ees} r e| at e t a
Miaistries[0eartmeats.
ke|e z[1}
* Rules oI Procedure and Conduct oI Business in the Council oI States (Rajya Sabha)
36
criticize the administration but to strengthen it jurisdiction are headed by members oI Rajya
by investing it with more meaningIul Sabha whereas those Ialling under the
parliamentary support. jurisdiction oI Lok Sabha are headed by
members oI Lok Sabha.
The number oI these Committees was
The Department-related Committees
increased to twenty-Iour in July 2004. OI
have strengthened the executive by oIIering
these, eight Committees Iall under the
constructive criticism oI the activities oI the
jurisdiction oI Rajya Sabha and sixteen under
Ministries/ Departments coming within their
that oI Lok Sabha. Each oI these Committees
purview. Operating within the parameters set
consists oI 31 members 10 belonging to
Ior them under the Rules, the Department-
Rajya Sabha and 21 belonging to Lok Sabha.
related Standing Committees have been
The Committees which Iall under Rajya Sabha receiving the cooperation oI the executive.
Independence Day celebrations at historical Red Fort
Committees common to the two Houses
*Only in Lok Sabha.
Committees relating to day-
to-day business oI the House
37
Committees to inquire
Committees to scrutinise

Standing Joint Committees
Ad hoc Joint Committees
Financial Committees
Department-related
Standing Committees
Committees under
the jurisdiction oI
Chairman, Rajya Sabha
Committees under the
jurisdiction oI Speaker,
Lok Sabha

Committee on Health and Family WelIare
38
Committees in which Members of
both Houses are represented
Committee on WakI
Committee on Security in Parliament Complex
Railway Convention Committee
Committee on Installation oI Portraits/Statues
oI National Leaders and Parliamentarians in the
Parliament House Complex
Committee on Food Management in
Parliament House Complex
supplement the eIIorts oI these committees
oth Houses oI Parliament have an
that this concept oI having separate
elaborate committee system. The
B parliamentary Iorums originated. These
committees have their well deIined
Iorums are not parallel to the Department-
role, Iunctions and powers as enumerated in
related Committees nor they, in any manner
the Rules oI Procedure and Conduct oI
whatsoever, tend to dilute the oIIicial position
Business in the House. With the inception oI
oI the latter. As a matter oI Iact, these Iorums
Department-related Committees in 1993, each
complement the committees insoIar as they Mi ni st r y/ Depar t ment oI t he Uni on
provide one more platIorm to the members to Government was brought under the
deliberate on an issue, in a manner, which a jurisdiction oI one committee or the other.
Department-related Committee may not These committees provide members a
platIorm not only to scrutinise the budgetary provide.
proposals, Bills, annual reports and basic long-
There are at present Iour parliamentary
term national policies oI the Ministries/
Iorums on Iour separate subject matters,
Departments but also an opportunity to
deliberate upon the entire gamut oI
matters dealt with by the Ministries/
D e p a r t m e n t s . H o w e v e r ,
deliberations/discussions on the Iora
oI Department-related Committees
are largely conIined within the limits
earmarked by the Rules oI Procedure.
ThereIore, at times, committees Ieel
the constraints oI not being able to
transcend the limitations placed on
them by the Rules oI Procedure and
thus precluding them Irom looking
into all the aspects oI a particular
issue relating to the Ministries/
Departments attached to them.
It is precisely with a view to
PARLl AMENTA RY FORUM5
39
A Committee Room in Parliament House
Tricolour atop Parliament House
na me l y, Wa t e r Cons e r va t i on a nd being its ex-officio Co-President. There are
Management ; Chi l dren; Yout h; and some ex-officio Vice-Presidents such as the
Popul at i on and Publ i c Heal t h. The Deputy Chairman, Rajya Sabha, Deputy
Parliamentary Forum on Water Conservation Speaker, Lok Sabha, Union Ministers oI the
and Management is the Iirst oI these Iorums
concerned Ministries and the Chairmen oI the
and was set up on 12August 2005 Iollowed by
concerned Department-related Committees.
the Forum on Children set up on 2 February
Unlike the Department-related Committees
2006, the Forum on Youth set up on 20
which are governed by the Rules oI Procedure,
February 2006 and the Forum on Population
these Iorums are governed by a separate set oI
andPublic Health on 31 May 2006.
guidelines issued by the Speaker, Lok Sabha in
consultation with the Chairman, Rajya Sabha.
Each oI these Iorums is composed oI
While comparing these Iorums with the
members drawn Irom both Houses. The
parliamentary committees, it may be saIe to
Speaker, Lok Sabha is the ex-officio President
describe the Iormer as quasi-oIIicial bodies
oI the Forums on Water Conservation and
and the latter as the oIIicial bodies. The
Management; Children; and Youth. Whereas
Iorums have come into existence not to
the Chairman, Rajya Sabha is the ex-officio
supplant the committees but rather to
President oI the Forum on Population and
supplement them.
Public Health with the Speaker, Lok Sabha
40
A Committee Room in Parliament House Annexe
here is a well-organized Parliament Area Network (WAN) which provide linkages
Library with a rich collection oI with State Legislatures, Foreign Parliaments
Tbooks on a variety oI subjects which and other international organizations. The new
caters to the needs oI the members. There is library building is equipped with modern
also a research and reIerence wing which Iacilities and inter alia has a Iull-Iledged
supplies Iactual, objective and unbiased conservation laboratory Ior restoring old and
inIormation to members oI Parliament. The rare documents, an archival room to preserve
entire research and library set up is now audio/video materials, micro-Iilm rolls,
housed in a new building called Sansadiya computer tapes, etc., a media centre with latest
Gyanpeeth. It is a modular, utilitarian and telecom Iacilities, an audio-visual unit, micro-
centrally air-conditioned building. The Iilm reader room, two auditoriums with
Library is Iully computerized and is equipped varying capacities, etc.
with Local Area Network (LAN) and Wide
PARLl AMENT Ll BRARY
41
Sansadiya Gyanpeeth (Parliament Library)
Model of Parliament Library Building
Interior of Parliament Library
elevising the proceedings oI Parliament on the National Network oI
Doordarshan throughout the country was Parliament was done Ior the Iirst
started on 7 December 1994, with
Ttime when the President's Address to
Doordarshan telecasting live the Question
members oI both Houses assembled together
Hour proceedings oI Rajya Sabha. The
was telecast on 20 December 1989. It was
Iollowing week, the Question Hour oI Lok
simultaneously broadcast by the All India
Sabha was telecast live on the National
Radio. The President's Address, thereaIter,
Network.
continues to be telecast/broadcast live, though
Live telecast oI the Question Hour and initially, this was done purely as an ad hoc
the post-lunch proceedings oI Lok Sabha
arrangement.
began on 25 August 1994, through a Low
The Question Hour was teleIilmed Ior the
Power Transmitter oI Doordarshan. The
Iirst time on 2 December 1991, when the
proceedings oI Rajya Sabha (except Zero
television covered the Question Hour in the
Hour submissions and Special Mentions)
House oI the People (Lok Sabha). It was
began to be telecast live Irom 7 December
telecast the Iollowing morning Irom 7.15 a.m
1994, also through a LowPower Transmitter.
to8.15 a.m.
With the launch oI two exclusive satellite
The Question Hour oI Rajya Sabha was
channels oI Doordarshan, namely, DD-Rajya
teleIilmed Ior the Iirst time on 9 December
Sabha and DD-Lok Sabha on 14 December
1991. It was telecast the next morning Irom
2004 by Shri Bhairon Singh Shekhawat,
7.15 a.m to 8.15 a.m.
Chairman, Rajya Sabha and Shri Somnath
Encouraged by the public response to the
Chatterjee, Speaker, Lok Sabha, respectively,
initial phase oI televising the Question Hour,
the proceedings oI both Houses began to be
the General Purposes Committee oI Lok
telecast live across the length and breadth oI
Sabha decided not only to continue with it but
the country.
also to expand the scope oI telecasting the
proceedings Iurther. Accordingly, besides the
DD- Lok Sabha has now been
President's Address which was telecast on 24
rechristened as LS TV and has become an
February 1992, the presentation oI the
exclusive satellite channel owned by Lok
Railway Budget and the General Budget was
Sabha. The channel is under the command,
also televised live Ior the Iirst time on 25
control and supervision oI the Speaker, Lok
February 1992 and 29 February 1992,
Sabha. To run the channel, in-house
respectively.
programming, engineering and technical units
have been created. Live telecast oI the Question Hour in
TELEVl5lON AND PARLlAMENT
42
T.V. Antenna installed within Parliament Estate
lNFORMATlON TECHNOLOGY
lN PARLlAMENT
eeping pace with the IT revolution useIul links to homepages oI President oI
sweeping across the nation, the India, Council oI Ministers, Union and State
KParliament oI India has also made Government sites, Constitution oI India, State
signiIicant strides in the direction oI achieving Legislatures, Supreme Court oI India and
complete automation. The website oI Indian High Courts, Parliament Library, Foreign
Parliament was inaugurated on 15 March 1996 Parliaments, Inter-Parliamentary Union etc.
by the then President oI India Shri K.R.
Another milestone in this direction was
Narayanan. Both Houses have their separate
achieved when the webcast oI the live
homepages which inter-alia carry a whole lot
proceedings oI Rajya Sabha was inaugurated
oI inIormation such as parliamentary
by the Chairman, Rajya Sabha, Shri Bhairon
questions, parliamentary proceedings,
Singh Shekhawat on 11 December 2003 as
directions Irom the Chair, inIormation relating
part oI the celebrations organized to
to business oI the House, biographical details
th
commemorate the 200 Session oI Rajya
oI members, inIormation about parliamentary
Sabha. The webcast oI the live proceedings oI
committees, rules oI procedure and conduct oI
Lok Sabha also began on 11 December 2003.
business in the House, inIormation relating to
Bills, etc. The websites also provide various
43
Multimedia Centre in Parliament Library
ith the enactment oI the Right to
InIormation Act, 2005, the
WI unct i oni ng oI t he t wo
Secretariats oI Parliament has also come under
its purview. Both Rajya Sabha and Lok Sabha
Secretariats have their own Central Public
InIormation OIIicers duly appointed by the
Presiding OIIicers oI the two Houses. To
Iacilitate the supply oI inIormation to anyone
desirous oI getting it, the Chairman, Rajya Sabha
and the Speaker, Lok Sabha have made rules Ior
respective Secretariats as per section 28 oI the
Right to InIormation Act, 2005. As a result, like
any Government Ministry / Department, the
Iunctioning oI the Secretariats oI Parliament, in
particular and those oI the two Houses, in
general will be under public scanner.
RlGHT TO lNFORMATlON
AND PARLlAMENT
44
ka att ta ravie ar settiaq aet the rattita| reqime a
riqht ta iaarmatiaa ar titizeas ta setere attess ta
iaarmatiaa eaer the taatra| a e||it aetharities, ia
arer ta ramate traasareaty aa attaeata|i|ity ia the
warkiaq a every e||it aetharity...
kiqht ta Iaarmatiaa ktt, z
he estate oI Parliament oI India has OIIices, Secretaries-General oI two Houses,
three main buildings, namely etc.
TParliament House, Parliament
To the north oI the Parliament House
House Annexe and Parliament Library. The
building stands the Parliament House Annexe
Parliament House is a massive circular ediIice
which was inaugurated on 24 October 1975 by
with a Central Hall in the middle and three
Shrimati Indira Gandhi, the then Prime
Chambers oI the House oI the People, Council
Minister oI India. The Annexe largely houses
oI States and Library Reading Hall Ior MPs
the administrative branches/sections oI the
(Iormerly the Princes Chamber) located
Secretariats oI the two Houses, Committee
around it. The Parliament House was designed
Rooms and a host oI other services/utilities.
by Sir Herbert Baker, the renowned British
The latest addition to Parliament Estate is
architect and inaugurated on 18 January 1927
the new building oI Parliament Library called
by the then Governor-General oI India Lord
Sansadiya Gyanpeeth. The new library
Irwin. The building also has chambers/rooms
building was inaugurated on 7 May 2002 by
Ior the Chairman/Deputy Chairman,
Shri K.R. Narayanan, the then President oI
Speaker/ Deput y Speaker, Mi ni st ers,
India.
Chairmen oI Parliamentary Committees, Party
PARLlAMENT E5TATE
45
Parliament Library Parliament House Annexe
Mea aa qaverameats tea ta |ive e ta the iqaity
a their ha|itatiaa aa this hiqh servite [estiies the
art a arthitettere.
!ir 8er|ert 8aker
Parliament House
s provided in the Constitution, each
House oI Parliament has a separate
ASecretariat, namely Rajya Sabha
Secretariat and Lok Sabha Secretariat. Some
posts are common to both Houses oI
Parliament. Rules have been made by the
President in consultation with the Chairman,
Rajya Sabha and the Speaker, Lok Sabha
regulating the recruitment and conditions oI
service oI persons appointed to the Secretariat
staII oI the two Houses. The two Secretariats
Iunction under the overall control oI the
Chairman and the Speaker, respectively. Each
Secretariat is headed by a Secretary-General
who reports directly to the Chairman or the
Speaker, as the case may be.
RAjYA 5ABHA AND LOK 5ABHA
5ECRETARlAT5
46
lath8aese a rar|iameat sha|| have a searate setretaria| sta :
rravie that aathiaq ia this t|aese sha|| |e taastree as reveatiaq
the treatiaaa asts tammaata |ath 8aeses a rar|iameat.
krtit|e [1}
Parliament House Annexe
ANNEXURE
Organization and structure of the Council of States (Rajya Sabha) and
the House of the People (Lok Sabha)
233 (elected) 543 (elected)
No. oI Members
12 (nominated) 2 (nominated)
30 years 25 years
Minimum age Ior becoming member
Persons having special Persons belonging
knowledge or practical to Anglo-Indian
experience in literature, community, iI not
Requirement Ior nomination
science, art and social adequatelyrepresented
service. in the House.
Permanent House, 5 years (unless
the term oI a dissolvedearlier)
member is 6 years.
Term oI members
rd
1/3 oI members retire
every second year.
Chairman Speaker
(Vice-President oI
India is the ex officio
PresidingOIIicers
Chairman)
Deputy Chairman DeputySpeaker
Rajya Sabha Lok Sabha
47
Rajya Sabha Secretariat, Parliament of ndia,
Parliament House, New Delhi-110 001
http://parliamentofindia.nic.in
http://rajyasabha.nic.in