NCERT Solutions for Class 11 Political Science Chapter 5: Legislature (NCERT 2026–27)
These Class 11 Political Science Chapter 5 solutions cover Legislature from the textbook Indian Constitution at Work, updated for the 2026–27 session. The chapter explains why a democracy needs a Parliament, why India has a bicameral legislature (the Lok Sabha and the Rajya Sabha), how the two Houses are composed and what powers each holds, how a bill becomes a law, how the Parliament controls the executive through devices like the Question Hour and the no-confidence motion, the role of parliamentary committees, and how the legislature regulates itself through privileges and the anti-defection law. Below you get verbatim NCERT exercise questions with step-by-step, exam-ready answers, plus key terms, extra practice, MCQs, Assertion–Reason and FAQs.
Class: 11Subject: Political ScienceBook: Indian Constitution at WorkChapter: 5Chapter Name: LegislatureSession: 2026–27
Chapter 5, Legislature, shows that a legislature is far more than a law-making body — it is the centre of all democratic political processes and the most representative organ of government, with the power to choose and dismiss the government. India has a bicameral Parliament: the Rajya Sabha (Council of States), an indirectly elected, permanent House representing the States, with members elected for six years (one-third retiring every two years) plus twelve members nominated by the President; and the Lok Sabha (House of the People), directly elected for five years from 543 territorial constituencies. The chapter lists the Parliament’s functions (legislative, executive control, financial, representation, debating, constituent, electoral and judicial), traces how a bill passes through both Houses to the President, and explains why the Lok Sabha is more powerful (it alone controls money bills and can remove the government). It then describes the instruments of parliamentary control over the executive — deliberation, the Question Hour and Zero Hour, financial control, and the no-confidence motion — the work of parliamentary committees, and self-regulation through parliamentary privilege and the anti-defection law (52nd and 91st amendments).
Key Concepts & Terms
Legislature: the elected law-making organ of government; it is the centre of democratic political process, holds the executive accountable, and is the most representative of all organs.
Bicameral legislature: a legislature with two Houses. The Indian Parliament has two — the Rajya Sabha and the Lok Sabha. Large, diverse countries prefer two Houses to give wider representation and to allow every decision to be reconsidered (a double check).
Rajya Sabha (Council of States): represents the States; an indirectly elected body chosen by elected members of State Legislative Assemblies. Members serve six-year terms; one-third retire every two years, so it is never fully dissolved — the permanent House. It has 12 members nominated by the President from literature, science, art and social service.
Lok Sabha (House of the People):directly elected by the people through universal adult suffrage from 543 territorial constituencies of roughly equal population; elected for a maximum of five years but can be dissolved earlier.
Functions of Parliament: legislative, control of the executive, financial, representation, debating, constituent (amending the Constitution), electoral (electing President and Vice-President) and judicial functions.
Money bill: can be introduced only in the Lok Sabha. The Rajya Sabha can only suggest changes (not reject) and must return it within 14 days, after which it is deemed passed.
Joint session: called to resolve a deadlock between the two Houses on a non-money bill; the decision has always favoured the Lok Sabha because of its larger membership.
Instruments of parliamentary control: deliberation and discussion, approval or refusal of laws, financial control (the budget), and the no-confidence motion — supported by the Question Hour, Zero Hour, adjournment motion, etc.
Parliamentary privilege: no action can be taken against a member for what is said in the legislature; the presiding officer has the final say in matters of breach of privilege.
Parliamentary committees: ‘miniature legislatures’ (standing committees since 1983, and Joint Parliamentary Committees) that study bills, demands for grants and expenditure in depth, reducing the burden on the House.
Anti-defection law: introduced by the 52nd Amendment (1985) and modified by the 91st Amendment, it disqualifies a legislator who defects; the presiding officer decides such cases.
NCERT Exercises — Full Solutions
All questions below are reproduced verbatim from the NCERT textbook’s end-of-chapter Exercises. Answers are original, written in exam-ready style.
1. Alok thinks that a country needs an efficient government that looks after the welfare of the people. So, if we simply elected our Prime Minister and Ministers and left to them the task of government, we will not need a legislature. Do you agree? Give reasons for your answer.
ANSWERNo, I do not agree with Alok. An efficient government is necessary, but a legislature is indispensable to a democracy — it is not merely a law-making body but the very centre of the democratic political process.Reasons: (i) The legislature is the most representative organ of government; it brings together members from different regions, religions, castes and social groups, so the diverse interests of the people are voiced. (ii) It holds the executive accountable — through the Question Hour, debates, motions and the no-confidence motion, ministers must answer to the people’s representatives, which prevents arbitrary or dictatorial rule. (iii) It controls the public purse: no tax can be levied and no money spent without the legislature’s approval, so it checks misuse of funds. (iv) It is the highest forum of debate, where every national issue can be discussed openly.If we simply elected a Prime Minister and Ministers and left governance to them, there would be no institution to question them, no check on their powers, and no way to remove them — democracy would slip into a ‘cabinet dictatorship’. Hence a legislature is essential.
2. A class was debating the merits of a bicameral system. The following points were made during the discussion. Read the arguments and say if you agree or disagree with each of them, giving reasons.
• Neha said that bicameral legislature does not serve any purpose.• Shama argued that experts should be nominated in the second chamber.• Tridib said that if a country is not a federation, then there is no need to have a second chamber.
ANSWERNeha – Disagree. A bicameral legislature serves an important purpose. It gives representation to all sections of society and to all regions of a large, diverse country, and it allows every bill and policy to be discussed twice. If one House acts in haste, the other House reconsiders the decision — this acts as a double check and improves the quality of law-making.Shama – Partly agree. It is useful to nominate experts to the second chamber. In India the President nominates twelve members to the Rajya Sabha from fields such as literature, science, art and social service, so the House benefits from their knowledge and experience. However, the second chamber’s main role is to represent the States, so nomination of experts should supplement, not replace, elected representation.Tridib – Disagree. A second chamber is useful even in a non-federal country, because its main advantage is that it allows reconsideration of decisions and gives representation to those (such as experts and minority groups) who may not enter the rough-and-tumble of direct elections. Federalism is one reason for a second chamber, but it is not the only reason — large and diverse countries benefit from bicameralism regardless of whether they are federations.
3. Why can the Lok Sabha control the executive more effectively than the Rajya Sabha can?
ANSWERThe Lok Sabha controls the executive more effectively than the Rajya Sabha because the Council of Ministers is collectively responsible to the Lok Sabha, not to the Rajya Sabha.(i) The government is formed by the party or coalition that commands a majority in the Lok Sabha, and it remains in office only as long as it enjoys that majority. The Lok Sabha can remove the government by a no-confidence motion — the most powerful weapon of executive accountability. The Rajya Sabha can criticise the government but cannot remove it.(ii) The Lok Sabha controls the ‘purse strings’: money bills can be introduced only in the Lok Sabha, and it alone approves taxation, the budget and financial statements. Since financial control means control over policy, the directly elected House holds the real power.The Constitution gave these crucial powers to the Lok Sabha because it is directly elected by the people, who are the final authority in a democracy, whereas the Rajya Sabha is indirectly elected by the MLAs.
4. Rather than effective control of the executive, the Lok Sabha is a platform for the expression of popular sentiments and people’s expectations. Do you agree? Give reasons.
ANSWERThis statement is only partly true. The Lok Sabha is certainly a platform for expressing popular sentiments and people’s expectations — being the most representative House, its members raise the problems of their constituencies and the concerns of different regions and groups through debates, the Question Hour, the Zero Hour and resolutions. To this extent, the statement is correct.However, it is not correct to say that the Lok Sabha does not effectively control the executive. The Lok Sabha exercises real control: through the no-confidence motion it can dismiss a government (several governments were forced to resign after 1989), through financial control it checks how money is raised and spent (aided by the CAG and the Public Accounts Committee), and through the Question Hour and other devices it forces ministers to answer and to make concessions.Therefore the Lok Sabha performs both roles — it expresses popular sentiments and controls the executive. Expressing people’s expectations is itself a form of control, because it pressurises the government to be responsive and accountable. I therefore only partly agree with the statement.
5. The following are some proposals for making the Parliament more effective. State if you agree or disagree with each of them and give your reasons. Explain what would be the effect if these suggestions were accepted.
• Parliament should work for longer period.• Attendance should be made compulsory for members of Parliament.• Speakers should be empowered to penalise members for interrupting the proceedings of the House.
ANSWERParliament should work for longer period – Agree. In recent decades the number of sittings of the Lok Sabha and State Assemblies and the time spent on debate have declined. If Parliament worked for longer, bills could be discussed more thoroughly, the executive could be questioned more often, and law-making would improve. The effect would be a more vibrant and accountable Parliament, though more sittings also mean greater expenditure and a heavier burden on members.Attendance should be made compulsory – Agree (with a balanced view). Many sittings suffer from a lack of quorum and from absenteeism, which deprives the House of its power to control the executive. Compulsory attendance would ensure that the House functions properly and members take their duties seriously. The likely effect is more meaningful debate and quorum; however, members also have constituency and committee work, so attendance rules should be reasonable.Speakers should be empowered to penalise members for interrupting – Agree (cautiously). Frequent interruptions, walkouts and disorder cause considerable loss of legislative time, so giving the Speaker some power to penalise wilful disruption would help maintain order and dignity. The effect would be smoother proceedings. But this power must be used impartially — if misused by the ruling party, it could suppress the opposition’s legitimate right to protest and dissent, which is itself an instrument of democratic control.
6. Arif wanted to know that if ministers propose most of the important bills and if the majority party often gets the government bills passed, what is the role of the Parliament in the law making process? What answer would you give him?
ANSWERIt is true that the Cabinet initiates most important bills and that a disciplined majority usually gets government bills passed. Even so, the Parliament plays a vital role in law-making:(i) No bill can become law without the approval of Parliament. A bill must be passed by both Houses and then assented to by the President, so the government’s policy is converted into law only through the Parliament’s ratification.(ii) Approval is not automatic. Bills are products of intense bargaining and negotiation within the ruling party/coalition and between government and opposition. If the government lacks a majority in the Rajya Sabha (as during the Janata Party rule in 1977 and the NDA in 2000), it must make substantial concessions. Some bills, such as the Lok Pal Bill, failed enactment, and the Prevention of Terrorism Bill (2002) was rejected by the Rajya Sabha.(iii) Detailed scrutiny happens in Parliament. Bills are debated, examined clause by clause, and referred to parliamentary committees (the ‘miniature legislatures’) that study them in depth and suggest changes. Through this discussion and amendment, Parliament shapes and improves the law and ensures the executive remains accountable.
7. Which of the following statements you agree with the most? Give your reasons.
• Legislators must be free to join any party they want.• Anti-defection law has contributed to the domination of the party leaders over the legislators.• Defection is always for selfish purposes and therefore, a legislator who wants to join another party must be disqualified from being a minister for the next two years.
ANSWERI agree most with the second statement: “Anti-defection law has contributed to the domination of the party leaders over the legislators.”Reasons: The anti-defection amendment (52nd Amendment, 1985, modified by the 91st Amendment) was meant to curb defections and the practice of ‘Aaya Ram Gaya Ram’. The experience of the years that followed shows, however, that it has not actually been able to curb defections; instead it has given additional power to party leaders and presiding officers over ordinary members. A legislator now risks losing membership if she remains absent when the party leadership directs presence, or votes against the party’s instructions, or leaves the party. This greatly restricts the legislator’s independence and conscience and strengthens the leadership’s grip — exactly as the second statement claims.The first statement gives legislators total freedom, which would revive unprincipled, opportunistic defections that destabilise governments. The third statement assumes defection is ‘always’ selfish, which is too sweeping; some changes of party may rest on genuine ideological differences. Hence the second statement is the most balanced and accurate.
8. Dolly and Sudha are debating about the efficiency and effectiveness of the Parliament in recent times. Dolly believed that the decline of Indian Parliament is evident in the less time spent on debate and discussion and increase in the disturbances of the functioning of the House and walkouts etc. Sudha contends that the fall of different governments on the floor of Lok Sabha is a proof of its vibrancy. What other arguments can you provide to support or oppose the positions of Dolly and Sudha?
ANSWERArguments supporting Dolly (decline of Parliament): There has been a gradual fall in the number of sittings of the Lok Sabha and State Assemblies and in the time spent on debate. Many sittings are lost to disruptions, walkouts, lack of quorum and the boycott of sessions by the opposition, which deprives the House of the chance to control the executive through discussion. Important bills are often passed with little debate, and the Cabinet, not the House, drives the agenda — suggesting the Parliament is declining.Arguments supporting Sudha (vibrancy of Parliament): The fact that several governments lost the confidence of the Lok Sabha and had to resign after 1989 shows that the House can still effectively hold the executive accountable. The active use of the Question Hour, the rise of the committee system since 1983, and the rejection or stalling of bills (e.g., POTA in 2002) by the Rajya Sabha show that Parliament continues to check the government. Even walkouts and protests are political techniques to force executive accountability and to draw attention to public issues.Balanced view: Both positions hold partial truth. Disruptions and fewer sittings are genuine signs of weakening, but the Parliament’s ability to question, debate and even remove governments shows it remains a vibrant democratic institution. The remedy is more sittings, better discipline and effective use of committees, so that the Parliament’s democratic potential is fully realised.
9. Arrange the different stages of passing of a bill into a law in their correct sequence:.
• A resolution is passed to admit the bill for discussion• The bill is referred to the President of India – write what happens next if s/he does not sign it• The bill is referred to other House and is passed• The bill is passed in the house in which it was proposed• The bill is read clause by clause and each is voted upon• The bill is referred to the subcommittee – the committee makes some changes and sends it back to the house for discussion• The concerned minister proposes the need for a bill• Legislative department in ministry of law, drafts a bill
ANSWERCorrect sequence:1. The concerned minister proposes the need for a bill.2. Legislative department in the ministry of law drafts a bill.3. A resolution is passed to admit the bill for discussion.4. The bill is referred to the subcommittee – the committee makes some changes and sends it back to the house for discussion.5. The bill is read clause by clause and each is voted upon.6. The bill is passed in the house in which it was proposed.7. The bill is referred to the other House and is passed.8. The bill is referred to the President of India.What happens if the President does not sign it: The President can withhold assent and send the bill back to the Parliament for reconsideration (with or without suggestions). If both Houses pass the bill again — with or without amendments — and present it to the President a second time, the President is bound to give assent; the President cannot withhold assent the second time. Once assent is given, the bill becomes a law (an Act).
10. How has the system of parliamentary committee affected the overseeing and appraisal of legislation by the Parliament?
ANSWERSince the Parliament meets only during sessions, it has very limited time, yet law-making and oversight require in-depth study. The committee system, especially the departmentally related standing committees developed since 1983 (over twenty such committees) and Joint Parliamentary Committees, has greatly affected the overseeing and appraisal of legislation:(i) Detailed scrutiny: A large part of the discussion on bills now takes place in committees, where a bill can be examined thoroughly. This is why committees are called ‘miniature legislatures’, and it has improved the quality of law-making.(ii) Oversight of the executive: Standing committees supervise the work of various departments — studying the demands for grants, the budget and expenditure of ministries, and investigating cases of corruption and financial irregularities (the task of JPCs). This strengthens the Parliament’s appraisal of the government.(iii) Reduced burden: The committee system has reduced the burden on the Parliament; many important bills are referred to committees, and the Parliament generally accepts the committees’ recommendations with only occasional alterations. However, legally no bill becomes law and no budget is sanctioned unless approved by the full Parliament — so the committees assist, but do not replace, the Parliament.
Extra Practice Questions
Short Answer Type Questions
Q1. Why is the Rajya Sabha called a permanent House?
ANSWERMembers of the Rajya Sabha are elected for six years, and one-third of them retire every two years while elections are held only for those seats. Thus the Rajya Sabha is never fully dissolved, which is why it is called the permanent House. This allows it to meet and conduct urgent business even when the Lok Sabha has been dissolved.
Q2. What is a money bill, and how is the Rajya Sabha’s power over it limited?
ANSWERA money bill deals with taxation and the spending of public money. It can be introduced only in the Lok Sabha. The Rajya Sabha cannot reject or amend a money bill — it can only suggest changes, which the Lok Sabha may or may not accept, and must return the bill within 14 days, failing which it is deemed passed.
Q3. What is parliamentary privilege?
ANSWERParliamentary privilege is the freedom that allows legislators to work without fear: no action can be taken against a member for anything said in the legislature. Its purpose is to enable members to represent the people and exercise effective control over the executive. The presiding officer has the final power in matters of breach of privilege.
Q4. Why are twelve members nominated to the Rajya Sabha?
ANSWERApart from elected members, the Rajya Sabha has twelve members nominated by the President. They are chosen from among persons who have distinguished themselves in literature, science, art and social service, so that the House benefits from the knowledge and experience of experts who may not contest direct elections.
Q5. What is a no-confidence motion?
ANSWERA no-confidence motion is the most powerful weapon by which the Lok Sabha ensures executive accountability. If the motion is passed, it means the House has lost confidence in the government, and the Council of Ministers must resign. After 1989, several governments were forced to resign because they lost the confidence of the Lok Sabha after losing the support of their coalition partners.
Long Answer Type Questions
Q1. Explain the various functions performed by the Parliament of India.
ANSWERThe Parliament performs several functions. (i) Legislative function: it enacts laws for the country, though the Cabinet decides the substance and timing of bills. (ii) Control of the executive: through questions, motions and the no-confidence motion it ensures the executive does not overstep its authority and remains responsible to the people. (iii) Financial function: through the budget and annual financial statements it controls taxation and public spending, and ensures money is not misspent. (iv) Representation: it represents the divergent views of members from different regional, social, economic and religious groups. (v) Debating function: it is the highest forum of debate, where members may discuss any national issue freely. (vi) Constituent function: it discusses and enacts amendments to the Constitution by a special majority of both Houses. (vii) Electoral functions: it participates in electing the President and Vice-President. (viii) Judicial functions: it considers proposals for the removal of the President, Vice-President and judges of the High Courts and the Supreme Court.
Q2. Describe the instruments through which the Parliament controls the executive.
ANSWERThe legislature ensures executive accountability at the stages of policy-making, implementation and after implementation, using several devices. (i) Deliberation and discussion: during law-making and general discussions, members deliberate on the policy direction of the executive. The Question Hour, held every day, is the most effective method — ministers must answer searching questions on matters of public interest. In the Zero Hour members may raise any urgent matter (though ministers need not reply); there are also half-an-hour discussions and adjournment motions. (ii) Approval and ratification of laws: a bill becomes law only with the Parliament’s approval, which is the product of bargaining and negotiation; the government must make concessions to get bills passed, especially when it lacks a majority in the Rajya Sabha. (iii) Financial control: resources are granted only through the budget; the Lok Sabha may refuse grants, discuss the reasons money is needed, and examine misuse of funds using the CAG report and the Public Accounts Committee. (iv) No-confidence motion: the most powerful weapon — if passed, the government must resign. For these instruments to work, there must be adequate time, interested members and a willingness to compromise.
Q3. Why does India have a bicameral legislature, and how do the powers of the two Houses differ?
ANSWERIndia, being a large and diverse country, has a bicameral Parliament to give representation to all sections of society and all regions, and to allow every decision to be reconsidered — every bill discussed in one House is examined again in the other, ensuring a double check. The Rajya Sabha represents the States and is indirectly elected, while the Lok Sabha is directly elected by the people. In many spheres — passing non-money bills, constitutional amendments, and impeaching the President or removing the Vice-President — the two Houses are co-equal. However, important powers belong only to the Lok Sabha: a money bill can be introduced only in the Lok Sabha, and the Rajya Sabha can neither reject nor amend it; the Council of Ministers is responsible to the Lok Sabha alone, so only the Lok Sabha can remove the government. The Rajya Sabha has its own special power — its approval is needed for the Union Parliament to legislate on a State List subject, and it alone can initiate the procedure for the removal of the Vice-President. This division reflects the democratic principle that the directly elected House should hold the crucial powers of finance and removing the government.
MCQs & Assertion–Reason
1. A legislature with two Houses is called:
(a) unicameral (b) bicameral (c) federal (d) parliamentary
2. The Rajya Sabha is also known as the:
(a) House of the People (b) Lower House (c) Council of States (d) Legislative Assembly
3. Members of the Rajya Sabha are elected for a term of:
(a) four years (b) five years (c) six years (d) life
4. The maximum term of the Lok Sabha is:
(a) four years (b) five years (c) six years (d) two years
5. How many members does the President nominate to the Rajya Sabha?
(a) 2 (b) 10 (c) 12 (d) 14
6. A money bill can be introduced only in the:
(a) Rajya Sabha (b) Lok Sabha (c) either House (d) State Assembly
7. The most powerful weapon by which the Lok Sabha can dismiss the government is the:
For each Assertion–Reason question, choose: (A) Both true and the Reason correctly explains the Assertion; (B) Both true but the Reason is not the correct explanation; (C) Assertion true, Reason false; (D) Assertion false, Reason true.
A-R 1. Assertion: The Rajya Sabha is called the permanent House of Parliament.
Reason: One-third of its members retire every two years, so it is never fully dissolved.
A-R 2. Assertion: The Lok Sabha can control the executive more effectively than the Rajya Sabha.
Reason: The Council of Ministers is collectively responsible to the Lok Sabha and can be removed by a no-confidence motion in it.
A-R 3. Assertion: The Rajya Sabha can reject a money bill.
Reason: A money bill can be introduced only in the Lok Sabha.
A-R 4. Assertion: India has a bicameral legislature at the Union level.
Reason: Large and diverse countries prefer two Houses to give wider representation and to allow every decision to be reconsidered.
A-R 5. Assertion: The anti-defection law has fully curbed defections in India.
Reason: The law has given additional powers to party leaders and presiding officers over the members.
Answer key: 1-(A), 2-(A), 3-(D), 4-(A), 5-(D).
Exam Tips & Common Mistakes
How to score full marks in this chapter
Memorise the key facts of both Houses in a comparison table — basis of election (Rajya Sabha indirect, Lok Sabha direct), term (six years vs five years), strength/constituencies (543 for Lok Sabha), and special powers. For ‘why the Lok Sabha is more powerful’, always give the two anchors: money bills and the no-confidence motion. For control-of-executive answers, list the four instruments (deliberation/discussion, approval of laws, financial control, no-confidence motion) and name the Question Hour and Zero Hour. Quote real examples used by the book — POTA rejected by the Rajya Sabha (2002), governments resigning after 1989, committees since 1983, and the 52nd/91st amendments — to show you have studied the chapter. In ‘do you agree’ questions, take a clear stand and give two-sided reasons.
Common mistakes to avoid
Saying the Rajya Sabha can reject or amend a money bill — it can only suggest changes and must return it within 14 days.
Confusing the two Houses — Rajya Sabha = Council of States (indirect, permanent); Lok Sabha = House of the People (direct, five years).
Writing that the Rajya Sabha can remove the government — only the Lok Sabha can, through a no-confidence motion.
Mixing up the Question Hour (ministers must reply) with the Zero Hour (ministers need not reply).
Stating the anti-defection law has ‘curbed’ defections — the book says it has not curbed them but increased the leadership’s power.
Getting the bill sequence wrong — remember: minister proposes → drafting → discussion → committee → clause-by-clause voting → passed in one House → other House → President.
Frequently Asked Questions
What is Chapter 5 of Class 11 Political Science (Indian Constitution at Work) about?
Chapter 5, Legislature, explains why a democracy needs a Parliament, why India has a bicameral legislature (the Lok Sabha and the Rajya Sabha), the composition and powers of the two Houses, how a bill becomes a law, how the Parliament controls the executive, the role of parliamentary committees, and how the legislature regulates itself through privileges and the anti-defection law.
Why is the Lok Sabha more powerful than the Rajya Sabha?
The Lok Sabha is more powerful because the Council of Ministers is responsible to it and it alone can remove the government through a no-confidence motion. It also controls the ‘purse’ — money bills can be introduced only in the Lok Sabha, and the Rajya Sabha can neither reject nor amend them. These powers were given to the Lok Sabha because it is directly elected by the people.
How many NCERT exercise questions are there in Chapter 5 Legislature?
The end-of-chapter Exercises section of Chapter 5, Legislature, contains 10 questions, all reproduced verbatim and answered step by step on this page, along with extra short and long questions, MCQs and Assertion–Reason questions.
