Polity · topic 5 of 11
Parliament, Bills & Budget
Articles 79–122. The biggest Polity chapter in the PYQs. UPSC loves three contrasts: Lok Sabha vs Rajya Sabha powers, Money Bill vs Finance Bill vs Ordinary Bill, and which committee does what.
Two Houses in numbers
| Lok Sabha | Rajya Sabha | |
|---|---|---|
| Maximum | 550 elected (530 States + 20 UTs); 2 Anglo-Indian nominations ended in 2020 (104th Amendment) | 250 (238 elected + 12 nominated) |
| Present | 543 | 245 (233 + 12) |
| Election | Direct, first-past-the-post | By elected MLAs, proportional representation (STV); open ballot since 2003 |
| Term | 5 years; can be extended by 1 year at a time in a National Emergency | Permanent; 1/3 retire every 2nd year; member’s term 6 years |
| Minimum age | 25 | 30 |
| Presiding officer | Speaker (a member) | Chairman = Vice-President (not a member) |
Who has more power
| Lok Sabha only / more | Rajya Sabha only | Equal |
|---|---|---|
| No-confidence motion; Money Bills (RS only recommends in 14 days); voting on Demands for Grants; disapproving an Emergency; certifying a Money Bill (Speaker) | Art. 249 — law on a State List subject in national interest (2/3 present and voting); Art. 312 — new All India Service; Vice-President’s removal starts here | Constitutional amendments (no joint sitting); approval of Emergencies; impeachment of President; removal of judges; ordinary bills (deadlock → joint sitting, where LS numbers win) |
Bills
| Bill | Rule |
|---|---|
| Ordinary Bill | Either House; deadlock → joint sitting (Art. 108), presided over by the Speaker. Never for Money Bills or amendments. Held only 3 times (1961 Dowry, 1978 Banking Service Commission repeal, 2002 POTA) |
| Money Bill (Art. 110) | Only taxes, borrowing, Consolidated/Contingency Fund custody, appropriation from the Consolidated Fund, charged expenditure, audit of accounts. Introduced only in the LS with the President’s recommendation; Speaker’s certificate is final; RS: 14 days, recommendations only; President cannot return it |
| Financial Bill (I) (Art. 117(1)) | Has money-bill matters plus others; only in the LS with the President’s recommendation, but RS can amend or reject |
| Financial Bill (II) (Art. 117(3)) | Involves expenditure from the Consolidated Fund; either House; recommendation needed before passing |
| Constitution Amendment (Art. 368) | Either House; no President’s recommendation; special majority in each House separately; President must assent |
The Budget
- The Constitution calls it the Annual Financial Statement (Art. 112); the President causes it to be laid before both Houses.
- Stages: presentation → general discussion (both Houses) → departmental standing committees → voting on demands (LS only) → Appropriation Bill (Art. 114) → Finance Bill.
- Charged expenditure (President’s pay, judges’ salaries of the SC, CAG, UPSC chairman, debt charges…) is discussed but not voted.
- Cut motions: policy cut (to Re 1), economy cut (a set amount), token cut (Rs 100).
- Vote on account (Art. 116): advance grant for part of the year. Guillotine: remaining demands put to vote without discussion on the last day.
- Consolidated Fund (Art. 266) — all receipts; withdrawal only by law. Contingency Fund (Art. 267) — at the President’s disposal, held by the Finance Secretary. Public Account — money held in trust (PF, deposits); no vote needed.
Committees
| Committee | Members | Job |
|---|---|---|
| Estimates | 30, all LS | Economy in spending — largest committee |
| Public Accounts | 22 (15 LS + 7 RS) | Examines appropriation accounts and the CAG’s audit reports; Opposition chair by convention |
| Public Undertakings | 22 (15 + 7) | PSU reports and accounts |
| Departmental Standing Committees | 24 committees, 31 members each (21 + 10) | Demands for grants, bills, policy (since 1993) |
| Business Advisory, Privileges, Ethics, Rules… | Housekeeping | Ethics Committee: LS ad hoc 2000, permanent 2015 |
| Welfare of SCs and STs | 30 (20 LS + 10 RS) | Term up to one year; Ministers cannot be members |
Procedure words
| Term | Meaning |
|---|---|
| Question Hour | First hour: starred (oral + supplementaries), unstarred (written), short notice (urgent) |
| Zero Hour | After Question Hour; an Indian innovation (1962), not in the rules |
| Adjournment motion | Only in the LS; urgent matter of public importance; needs 50 members; involves censure |
| No-confidence motion | Not in the Constitution (only in LS rules); needs 50 members; no reason required |
| Censure motion | Must state reasons; can be against one minister |
| Prorogation | Ends a session (President). Pending bills do NOT lapse on prorogation |
| Dissolution (LS only) | Bills pending in the LS lapse; bills passed by LS pending in RS lapse; bills pending in RS not passed by LS do not lapse; joint sitting notified before dissolution survives |
Traps UPSC sets
| The wrong idea | What is actually true |
|---|---|
| Rajya Sabha cannot discuss the Budget | It can discuss; it cannot vote on demands. |
| Joint sitting is possible for a Money Bill / amendment | Never. |
| The Speaker must leave their party | A convention in the UK, not a rule in India. |
| PAC is the largest committee | Estimates (30) is the largest. |
| Bills lapse on prorogation | Only dissolution of the LS can make bills lapse. |
| Zero Hour is in the Rules of Procedure | It is an informal practice. |
For Mains
GS 2: decline of parliamentary sittings and debate, money-bill route (Aadhaar — Puttaswamy 2018; Rojer Mathew 2019 referred to a larger bench), role of committees, anti-defection vs legislators’ freedom, office of the Deputy Speaker lying vacant.
Real PYQs on this topic, solved
UPSC 2026 · Newest PYQ · Question Hour
Consider the following statements in respect of questions asked by the Members in the Parliament of India:
- Unstarred questions are those to which a Member desires an oral answer in the House. — ✗
- Starred questions are those to which a Member desires a written answer. — ✗
- No supplementary question can be asked on an unstarred question. — ✓
Answer (c): There is only one correct statement.
Remember: Starred = * = spoken (oral + supplementaries) · Unstarred = written, no supplementaries · Short-notice = urgent, < 10 days.
UPSC 2025 · Newest PYQ · Speaker
Consider the following statements:
- On the dissolution of the House of the People, the Speaker shall not vacate his/her office until immediately before the first meeting of the House of the People after the dissolution. — ✓
- According to the provisions of the Constitution of India, a Member of the House of the People on being elected as Speaker shall resign from his/her political party immediately. — ✗
- The Speaker of the House of the People may be removed from his/her office by a resolution of the House of the People passed by a majority of all the then Members of the House, provided that no resolution shall be moved unless at least fourteen days’ notice has been given of the intention to move the resolution. — ✓
Answer (c): I and III only
Remember: Speaker: stays after dissolution till the new House’s first sitting · removed by effective majority + 14 days’ notice · no duty to quit the party.
UPSC 2022 · Lok Sabha’s exclusive powers
Which of the following is/are the exclusive power(s) of Lok Sabha?
- To ratify the declaration of Emergency. — ✗
- To pass a motion of no-confidence against the Council of Ministers. — ✓
- To impeach the President of India. — ✗
Answer (b): 2 only
Remember: LS only: no-confidence · money bills · demands for grants · disapprove Emergency. RS only: Art. 249 · Art. 312 · VP removal starts there.
UPSC 2015 · Rajya Sabha & money
Consider the following statements:
- The Rajya Sabha has no power either to reject or to amend a Money Bill. — ✓
- The Rajya Sabha cannot vote on the Demands for Grants. — ✓
- The Rajya Sabha cannot discuss the Annual Financial Statement. — ✗
Answer (b): 1 and 2 only
Remember: Rajya Sabha & money: discuss yes · vote on demands no · Money Bill = recommend in 14 days, cannot reject or amend.
UPSC 2014 · Committees
Which one of the following is the largest Committee of the Parliament?
Answer (b): The Committee on Estimates
Remember: Estimates = 30, all Lok Sabha, largest · PAC = 22 (15+7), Opposition chair · COPU = 22 (15+7). Ministers cannot be members of any of them.