Difference Between Lok Sabha and Rajya Sabha – Powers, Members & Role
A comprehensive, exam-oriented analysis of India’s bicameral Parliament — covering composition, powers, special provisions, comparative perspectives, and UPSC-focused insights.
1. Introduction & UPSC Relevance
The Indian Parliament, established under Part V of the Constitution, is the supreme legislative body of the country. Article 79 states that the Parliament shall consist of the President and two Houses — the Council of States (Rajya Sabha) and the House of the People (Lok Sabha). This bicameral structure lies at the heart of India’s constitutional design, balancing popular representation with federal representation.
Understanding the differences between Lok Sabha and Rajya Sabha is indispensable for every UPSC aspirant. This topic features prominently across all three stages of the Civil Services Examination — from factual statement-based questions in Prelims, to analytical essay-type questions in GS-II Mains, and nuanced discussions in the Personality Test (Interview).
Mains (GS-II): “Evaluate the role of Rajya Sabha in Indian federalism.” / “Is the Upper House a necessary institution?”
Interview: Current affairs on Money Bill controversies, Rajya Sabha reform debates.
Upper House · Max 250 Members
Lower House · Max 552 Members
2. Why is the Indian Parliament Bicameral?
India’s adoption of bicameralism was not accidental — it was a deliberate constitutional choice influenced by history, federal imperatives, and the need for legislative quality. The Constituent Assembly debated this extensively before settling on a two-House model inspired by both the British and American systems while adapting them to Indian conditions.
A. Historical Reasons
The Government of India Act, 1919 (Montagu-Chelmsford Reforms) introduced bicameralism at the central level for the first time with the Council of State and the Legislative Assembly. The Government of India Act, 1935 continued this tradition. The framers of the Constitution were thus working within an established institutional precedent and saw value in retaining a second chamber.
B. Political & Federal Reasons
India’s vast diversity — linguistic, regional, cultural — demanded a chamber where states could have a voice independent of population size. The Rajya Sabha was designed to serve as the federal chamber, giving smaller states a platform alongside larger ones. This ensured that legislation reflected not merely the numerical majority of the population but also the geographical and cultural plurality of the federation.
C. Practical Reasons — Revising & Deliberative Function
A second chamber acts as a check on hasty or ill-considered legislation. It provides a “cooling saucer” (to borrow the metaphor attributed to George Washington) where bills passed in the heat of populist sentiment can be revisited with greater deliberation. The Rajya Sabha’s staggered tenure ensures institutional continuity and memory.
D. Representation of Experts
Article 80(1)(a) allows the President to nominate 12 members to the Rajya Sabha from persons having special knowledge or practical experience in literature, science, art, and social service. This ensures that Parliament benefits from expertise that may not emerge through electoral politics.
+ Revision + Expertise
+ Federalism
+ Quality Debate
3. Lok Sabha & Rajya Sabha: Basic Overview
The very names of the two Houses indicate their distinct roles. Lok Sabha (House of the People) derives its legitimacy from direct popular election and represents the sovereign will of the citizens. Rajya Sabha (Council of States) represents the constituent units of the Indian federation — the states and Union Territories — and derives its authority from indirect election by state legislatures.
The President of India, though not a member of either House, is an integral part of Parliament (Article 79). No bill can become law without the President’s assent. The President also has the power to summon, prorogue, and dissolve the Lok Sabha (but not the Rajya Sabha, which is a continuing body).
| Parameter | Lok Sabha | Rajya Sabha |
|---|---|---|
| Full Name | House of the People | Council of States |
| Nature | Lower House / First Chamber / Popular House | Upper House / Second Chamber / Elder House |
| Represents | People of India directly | States & UTs of India |
| Presiding Officer | Speaker (and Deputy Speaker) | Chairman (Vice-President of India) & Deputy Chairman |
| Constitutional Basis | Articles 81–82 | Articles 80 |
4. Composition of Lok Sabha vs Rajya Sabha
The composition of the two Houses differs fundamentally in terms of election method, strength, tenure, and the principle of representation. These differences are not merely procedural; they reflect the distinct constitutional purposes each House serves.
| Aspect | Lok Sabha | Rajya Sabha |
|---|---|---|
| Maximum Strength | 552 (530 States + 20 UTs + 2 Anglo-Indians*) | 250 (238 Elected + 12 Nominated) |
| Present Strength | 543 (530 + 13 from UTs) | 245 (233 Elected + 12 Nominated) |
| Election Method | Direct election by universal adult suffrage (FPTP system) | Indirect election by elected MLAs of state legislatures (Single Transferable Vote — Proportional Representation) |
| Nominated Members | 2 Anglo-Indians (by President)* — Abolished by 104th Amendment, 2019 | 12 by President (Literature, Science, Art, Social Service) |
| Tenure | 5 years (unless dissolved earlier) | Permanent body; members serve 6-year terms; 1/3rd retire every 2 years |
| Dissolution | Can be dissolved by the President | Cannot be dissolved — continuing chamber |
| Representation Principle | Population-based (territorial constituencies) | State-based (seats allocated roughly by state population, but not proportionately) |
5. Qualifications & Membership
The Constitution prescribes different qualification criteria for the two Houses, reflecting their distinct constitutional characters. The higher age requirement for Rajya Sabha membership is intended to ensure greater maturity and experience in the revising chamber.
| Criterion | Lok Sabha | Rajya Sabha |
|---|---|---|
| Minimum Age | 25 years | 30 years |
| Citizenship | Must be a citizen of India | Must be a citizen of India |
| Electoral College | All registered voters of the constituency (universal adult franchise) | Elected members of state legislative assemblies |
| Oath/Affirmation | Required (Schedule III) | Required (Schedule III) |
| Domicile Requirement | Must be enrolled as voter in any constituency in India | Must be enrolled as elector in the state from which seeking election (after 2003 amendment, domicile requirement removed for Rajya Sabha by the Representation of the People Act amendment) |
| Disqualification (Art. 102) | Holds office of profit under GoI / State Govt; unsound mind; undischarged insolvent; not a citizen or acquired foreign citizenship; disqualified under any law (e.g., RPA, 1951); disqualified under Tenth Schedule (anti-defection law) | |
6. Powers of Lok Sabha and Rajya Sabha
This is the core section of the topic. While the two Houses are broadly co-equal in legislative matters, each possesses certain exclusive or special powers that fundamentally distinguish their roles within the constitutional scheme. A clear understanding of these distinctions is essential for all stages of the UPSC examination.
A. Equal Powers (Where Both Houses Have Co-Equal Authority)
In several critical areas, both Houses enjoy identical constitutional powers. No action can be taken without the concurrence of both.
| Domain | Lok Sabha | Rajya Sabha |
|---|---|---|
| Ordinary Bills (Non-Money) | ✔ Equal | ✔ Equal |
| Constitutional Amendment Bills (Art. 368) | ✔ Equal | ✔ Equal |
| Financial Bills (Category II — Non-Money Bills with financial provisions) | ✔ Equal | ✔ Equal |
| Impeachment of President (Art. 61) | ✔ Equal | ✔ Equal |
| Election & Removal of Vice-President | ✔ Equal | ✔ Equal |
| Approval of Ordinances | ✔ Equal | ✔ Equal |
| Approval of Emergency Proclamations (Art. 352, 356, 360) | ✔ Equal | ✔ Equal |
| Reports of CAG, UPSC, Finance Commission, etc. | ✔ Equal | ✔ Equal |
| Removal of Judges (SC/HC) — Art. 124(4) | ✔ Equal | ✔ Equal |
| Approval of rules under Delegated Legislation | ✔ Equal | ✔ Equal |
B. Special Powers of Lok Sabha
The Lok Sabha’s special powers derive principally from its status as the directly elected popular chamber. In the Westminster model that India has adopted, the lower house holds primacy in financial matters and in matters of confidence in the executive.
| Power | Details |
|---|---|
| Money Bills (Art. 110) | Can only be introduced in Lok Sabha. Rajya Sabha can only recommend amendments within 14 days — Lok Sabha may accept or reject them. Speaker’s certification is final. |
| Budget / Annual Financial Statement | Presented first in Lok Sabha. Demands for Grants are voted only in Lok Sabha. Rajya Sabha can only discuss but cannot vote on Demands for Grants. |
| No-Confidence Motion | Can be moved only in Lok Sabha (Art. 75). The Council of Ministers is collectively responsible to Lok Sabha alone. |
| Joint Sitting (Art. 108) | In case of deadlock on an ordinary bill, the President may call a joint sitting. Lok Sabha’s numerical superiority (543 vs 245) virtually ensures its will prevails. |
| Cut Motions | Can be moved only in Lok Sabha — Policy Cut, Economy Cut, Token Cut apply exclusively to Demands for Grants. |
| Emergency Financial Provisions | If Lok Sabha does not approve a Financial Emergency (Art. 360), the proclamation ceases. Rajya Sabha’s approval alone is insufficient for continuation. |
C. Special Powers of Rajya Sabha
Despite its generally subordinate position in financial matters, the Rajya Sabha possesses certain unique and exclusive powers that no other body — including the Lok Sabha — can exercise.
| Power / Article | Details |
|---|---|
| Article 249 | Rajya Sabha can pass a resolution (by 2/3rd majority of members present and voting) declaring that Parliament should make laws on a State List subject in the national interest. This power is valid for one year and renewable. Lok Sabha cannot do this independently. |
| Article 312 | Rajya Sabha can pass a resolution (by 2/3rd majority of members present and voting) to create new All-India Services. This is an exclusive power — Lok Sabha cannot initiate such a resolution. |
| Removal of Vice-President | A resolution for removal of the Vice-President can be initiated only in Rajya Sabha (Art. 67(b)), though it must be agreed to by Lok Sabha. |
| During Dissolution of Lok Sabha | When Lok Sabha is dissolved, Rajya Sabha continues to function. Emergency proclamations (Art. 352, 356) approved by Rajya Sabha alone remain valid until 30 days after the new Lok Sabha reconvenes. |
7. Role of Rajya Sabha in Parliamentary Democracy
The Rajya Sabha is far more than a rubber stamp or a dilatory chamber. Its continuing existence, its federal character, and its deliberative function make it a vital organ in India’s constitutional scheme. Over the decades, it has evolved into an institution that adds significant value to governance.
Reviews & improves legislation
Represents states in lawmaking
Counter-majoritarian safeguard
Permanent body; never dissolved
12 nominated members
Acts during LS dissolution
As a revising chamber, the Rajya Sabha scrutinises legislation passed by the Lok Sabha, suggests amendments, and provides a second deliberation on complex policy questions. Many landmark bills have been significantly improved through Rajya Sabha interventions.
As a federal institution, it gives voice to states in central legislation, preventing the unilateral dominance of populous states over smaller ones. This is especially important in a diverse polity like India where regional interests are as legitimate as national ones.
As a continuity mechanism, the Rajya Sabha ensures that Parliament never entirely ceases to exist. Even during a dissolved Lok Sabha, the Rajya Sabha can approve emergency proclamations and keep the legislative process partially alive.
As a check on populism, its indirect election method and longer tenure insulate it from short-term electoral pressures, allowing for more deliberative and less partisan consideration of policy.
8. Criticisms of the Rajya Sabha
Despite its constitutional significance, the Rajya Sabha has faced persistent criticism on grounds of democratic legitimacy, representational inequity, and functional effectiveness. These critiques are important for UPSC Mains answers where balanced analysis is expected.
| Criticism | Details |
|---|---|
| Democratic Deficit | Members are not directly elected by the people. Indirect election by MLAs means the electorate is narrow and potentially susceptible to party control rather than popular will. |
| Unequal State Representation | Unlike the US Senate (where every state gets 2 seats), India’s Rajya Sabha allocates seats roughly in proportion to state population. Uttar Pradesh has 31 seats while smaller states have 1. This undermines the federal principle of equal state voice. |
| Money Bill Controversy | Successive governments have been accused of classifying contentious legislation as “Money Bills” (e.g., Aadhaar Act) to bypass Rajya Sabha scrutiny. This effectively neutralises the Upper House’s revising role on significant policy matters. |
| Nominated Members | The provision for 12 nominated members has been criticised as a tool for political patronage rather than genuine inclusion of domain expertise. |
| Domicile Issue | Since 2003, the domicile requirement has been removed, allowing parties to send “outsiders” to represent states they have no connection to. This dilutes the federal character of the House. |
| Obstructionist Role | When the ruling party lacks a majority in Rajya Sabha, it can become a site of legislative gridlock, delaying even widely supported reforms. |
9. Rajya Sabha vs State Legislative Councils
Both the Rajya Sabha at the Centre and State Legislative Councils at the state level are upper chambers in their respective legislatures. However, they differ significantly in powers, composition, and federal significance. UPSC often frames comparative questions between these two bodies.
| Aspect | Rajya Sabha | State Legislative Council |
|---|---|---|
| Constitutional Basis | Article 80 | Article 169, 171 |
| Existence | Permanent — cannot be abolished | Can be created or abolished by Parliament (Art. 169) on state legislature’s recommendation |
| Maximum Strength | 250 | 1/3rd of total strength of state assembly (but not less than 40) |
| Election Method | Indirect election by elected MLAs (STV-PR) | Complex — 1/3rd by MLAs, 1/3rd by local bodies, 1/12th by teachers, 1/12th by graduates, remaining nominated by Governor |
| Special Powers | Art. 249 (State List legislation), Art. 312 (All-India Services) | No exclusive special powers |
| Federal Role | Significant — represents states in central lawmaking | Minimal — largely a revising/dilatory chamber |
| Money Bill Power | Can delay by 14 days; can recommend amendments | Can delay by 14 days; can recommend amendments (identical) |
| Ordinary Bills | Relatively co-equal (deadlock resolved by Joint Sitting) | Weak — Assembly can override Council by passing bill again; no Joint Sitting provision |
| Character | Federal + Revising chamber | Primarily a dilatory chamber |
10. Comparative Analysis with Other Countries
A comparative understanding of upper chambers globally adds significant analytical depth to UPSC Mains answers. It helps in evaluating whether India’s Rajya Sabha is truly effective as a federal chamber and how it compares to its counterparts in established democracies.
A. India vs USA — Rajya Sabha vs US Senate
| Parameter | Rajya Sabha (India) | US Senate (USA) |
|---|---|---|
| Representation Principle | Seats allocated roughly by state population (not equal) | Equal representation — 2 senators per state regardless of population |
| Election Method | Indirect — elected by state MLAs | Direct — elected by people of the state (since 17th Amendment, 1913) |
| Tenure | 6 years (1/3rd retire every 2 years) | 6 years (1/3rd retire every 2 years) |
| Financial Powers | Subordinate — cannot amend or reject Money Bills | Co-equal — can amend or reject all financial legislation |
| Treaty / Appointment Powers | No such power | Senate ratifies treaties (2/3rd majority) and confirms Presidential appointments (Cabinet, judiciary) |
| Strength vis-à-vis Lower House | Weaker than Lok Sabha overall | Often considered more powerful than the House of Representatives |
| Federal Character | Moderate — weakened by population-based seat allocation and absence of domicile requirement | Very strong — equal representation is the cornerstone of American federalism |
| Filibuster | No filibuster provision | Filibuster available — 60-vote cloture required to end debate |
B. India vs UK — Rajya Sabha vs House of Lords
| Parameter | Rajya Sabha (India) | House of Lords (UK) |
|---|---|---|
| Nature | Elected (indirect) + Nominated (12) | Entirely unelected — Life Peers, Bishops, Hereditary Peers (pre-1999 reforms) |
| Legitimacy Source | Electoral mandate (state legislatures) + Presidential nomination | Appointment by the Crown on PM’s advice; tradition; expertise |
| Size | Max 250 | Approximately 800 (no fixed limit — varies) |
| Financial Powers | Can delay Money Bills by 14 days | Can delay Money Bills by 1 month (Parliament Acts 1911 & 1949) |
| Ordinary Bill Powers | Relatively co-equal; Joint Sitting resolves deadlock | Can only delay ordinary bills by one year (Suspensory veto under Parliament Act 1949); Commons prevails |
| Democratic Basis | Partially democratic (indirect election) | Not democratic — appointed / hereditary |
| Federal Character | Yes — represents states | No — UK is a unitary state (though devolution exists) |
| Reform Trajectory | Debates on domicile rule, Money Bill misuse | Major reforms — 1999 (hereditary peers reduced), 2005 (Supreme Court separated from Lords) |
11. UPSC Exam Orientation
Prelims Focus Areas
The following are the most testable areas for Prelims, where statement-based and assertion-reason questions are common: specific articles (80, 81, 108, 109, 110, 249, 312); the distinction between Money Bills and Financial Bills; composition and election methods; tenure and dissolution; powers exclusive to each House; the 104th Amendment (Anglo-Indian nomination); and the domicile issue.
Mains Focus Areas (GS-II)
Mains questions typically demand analysis rather than factual recall. Key themes include the relevance of bicameralism in modern India; the effectiveness of Rajya Sabha as a federal and revising chamber; the Money Bill controversy and its implications for parliamentary democracy; comparative analysis with foreign legislatures; and whether the Rajya Sabha needs reform or abolition.
UPSC-Style Practice MCQs
1. It can be dissolved by the President.
2. One-third of its members retire every two years.
3. It has a maximum strength of 250 members.
Which of the above statements is/are correct?
Statement 1 is incorrect — Rajya Sabha is a permanent body and cannot be dissolved. Statements 2 and 3 are correct. One-third of members retire every 2 years, and maximum strength is 250 (Article 80).
Article 249 empowers the Rajya Sabha to pass a resolution (by 2/3rd majority of members present and voting) declaring it necessary in the national interest for Parliament to make laws on a State List subject. Article 250 deals with Parliament’s power during a National Emergency, and Article 312 deals with creation of All-India Services.
1. A Money Bill can be introduced in either House of Parliament.
2. The Rajya Sabha can amend a Money Bill.
3. The Speaker of Lok Sabha certifies whether a bill is a Money Bill or not.
Which of the above statements is/are correct?
Statement 1 is incorrect — Money Bills can only be introduced in Lok Sabha (Art. 109). Statement 2 is incorrect — Rajya Sabha can only recommend amendments, which Lok Sabha may or may not accept. Statement 3 is correct — the Speaker’s certification under Article 110 is final and cannot be questioned in court.
Removal of SC judges under Article 124(4) requires a resolution passed by a special majority in both Houses of Parliament. It is not an exclusive power of Lok Sabha. Options (a), (b), and (d) are all exclusive to Lok Sabha.
1. Creation of new All-India Services
2. Transfer of a State List subject to the Union List permanently
3. Initiation of removal of Vice-President
Select the correct answer:
Statement 1 is correct — Article 312 allows only the Rajya Sabha to pass a resolution for creating new All-India Services. Statement 2 is incorrect — Article 249 allows Rajya Sabha to authorise Parliament to legislate on State List subjects temporarily (for one year), not permanently transfer them. Statement 3 is correct — under Article 67(b), the resolution for removal of Vice-President originates in Rajya Sabha.
Joint sitting under Article 108 applies only to Ordinary Bills and Financial Bills (Category II). It does NOT apply to Money Bills (Lok Sabha prevails) or Constitutional Amendment Bills (both Houses must separately pass the bill by special majority — no Joint Sitting provision). Note: Option (d) is incorrect because Financial Bills (Category II) can go to Joint Sitting.
The 104th Amendment Act, 2019 extended the reservation of seats for SCs and STs in Lok Sabha and State Assemblies for ten more years (up to 2030) but abolished the provision for nomination of Anglo-Indian members by the President to Lok Sabha (Art. 331) and by the Governor to State Assemblies (Art. 333). Note: Option (b) describes only one part of the amendment, while (c) captures the abolition aspect, which is the more frequently tested dimension.
