Introduction to Centre-State Dynamics
The Constitution of India establishes a federal system, yet the delicate balance between the Union and the States has been a continuous journey of evolution since independence. Decades of experience, political shifts, and economic reforms have necessitated a recurrent examination of this relationship.
Various commissions, committees, and political parties have diligently studied the intricacies of Centre-State relations, proposing a spectrum of reforms aimed at strengthening federalism, enhancing state autonomy, mitigating friction, and fostering cooperative governance. These recommendations, spanning administrative, financial, and legislative spheres, form the bedrock of ongoing discussions about India's federal structure and its quest for effective power-sharing.
Key Commissions & Their Insights
Administrative Reforms Commission (ARC-I)
1966-1969 | Chairman: Morarji Desai / K. Hanumanthaiah
Context: First comprehensive commission on administrative reforms, addressing rising state assertiveness post-1967.
- Establishment of an Inter-State Council (Art 263).
- Minimize use of Article 356 (President's Rule) to extreme situations.
- Greater delegation of financial powers to states.
- More autonomy for states in planning.
Status: Influenced Sarkaria Commission; ISC eventually established in 1990.
Rajamannar Committee
1969 | Origin: Tamil Nadu Govt. | Chairman: Dr. P.V. Rajamannar
Context: Appointed by DMK reflecting strong regional demands for state autonomy.
- Abolition of Planning Commission and All-India Services.
- Deletion of Articles 356, 357, 365 (emergency powers).
- Transfer of subjects from Union to State List.
- Permanent Inter-State Council. Increase states' share in central taxes.
Status: Most radical proposals not accepted, but became a manifesto for state autonomy.
Anandpur Sahib Resolution
1973 | Origin: Akali Dal, Punjab
Context: Advocated for greater political, economic, and religious autonomy for Punjab.
- Stronger federal structure, Centre's powers limited to 4 subjects (defence, foreign affairs, communications, currency).
- States to have residual powers.
- Emphasis on state's exclusive control over its resources.
Status: Seen as radical and divisive; not accepted by Centre, contributed to tensions in Punjab.
West Bengal Memorandum
1977 | Origin: Left Front Govt. of West Bengal
Context: Issued after a change in central government, demanding significant decentralisation.
- Stronger states, weaker Centre (jurisdiction to 4 subjects + economic coordination).
- Abolition of All-India Services and Article 356.
- More financial resources for states, abolition of Governor's power to reserve bills.
Status: Similar to Rajamannar; not accepted by Centre, but fueled discourse on state autonomy.
Sarkaria Commission
1983-1988 | Chairman: Justice R.S. Sarkaria
Context: Constituted by Centre amidst growing demands for autonomy, aimed for comprehensive review.
- Governor: Eminent, from outside state, CM consultation.
- Art 356: Last resort, warning, no Assembly dissolution before Parl. approval.
- AIS: Strengthen, not abolish.
- ISC: Strongly recommended permanent body (established 1990).
Status: Many accepted, led to ISC, heavily influenced S.R. Bommai case (1994) on Art 356. A benchmark report.
Punchhi Commission
2007-2010 | Chairman: Justice M.M. Punchhi
Context: Re-examined Centre-State relations given coalition politics, economic liberalization, new security challenges.
- Governor: Fixed 5-year tenure, removal by state impeachment, limited discretion.
- Art 356: 'Localised emergency' concept, strict adherence to Sarkaria guidelines.
- Concurrent List: Caution in Parliament's use, consultation.
- Communal Violence: Centre can deploy forces for limited period in grave situations.
Status: Report submitted in 2010, recommendations largely under consideration.
National Commission to Review the Working of the Constitution (NCRWC)
2000-2002 | Chairman: Justice M.N. Venkatachaliah
Context: Appointed to suggest constitutional changes based on 50 years of experience.
- ISC: Strengthen and ensure regular meetings.
- Governor: Clear guidelines, collegium (PM-led) for appointment.
- Art 356: Reiterated Sarkaria, prior warning, judicial review possible.
- AIS: Stressed importance for national integration.
Status: Report submitted in 2002, largely reinforced Sarkaria's views, many recommendations await full implementation.
Chronology of Federal Evolution
1966-1969: Administrative Reforms Commission (ARC-I)
First comprehensive look at administrative machinery, including Centre-State relations, amidst early signs of state assertiveness.
1969: Rajamannar Committee
A significant marker of regional parties' demand for greater state autonomy and constitutional re-evaluation.
1973: Anandpur Sahib Resolution
A radical demand for political autonomy, highlighting ethno-regional aspirations and federal tensions.
1977: West Bengal Memorandum
Another strong articulation for decentralisation from a Left-Front government, contributing to the discourse.
1983-1988: Sarkaria Commission
A landmark effort by the Central Government to systematically review federal relations, emphasizing cooperative federalism.
2000-2002: NCRWC
A comprehensive review of the entire Constitution, revisiting and reinforcing many federal recommendations.
2007-2010: Punchhi Commission
Updated federal review, considering economic reforms, coalition politics, and new security challenges of the 21st century.
Comparative Insights on Key Recommendations
| Area of Relation | ARC-I (1966-69) | Rajamannar (1969) | Sarkaria (1983-88) | NCRWC (2000-02) | Punchhi (2007-10) |
|---|---|---|---|---|---|
| Governor's Role | No specific detailed recommendations. | Abolition of Governor's power to reserve bills. | Eminent person, outside state, CM consultation, fixed tenure, floor test before dismissal. | Collegium for appointment (PM, HM, LS Speaker, CM), clear discretionary guidelines. | Fixed 5-yr tenure, removal by state impeachment, time-bound assent for bills (6 months). |
| Article 356 (President's Rule) | Minimize use, confine to extreme situations. | Deletion of Art 356, 357, 365. | Last resort, warning, exhaust all alternatives, no Assembly dissolution before Parl. approval. | Reiterated Sarkaria, prior warning, judicial review. | 'Localised emergency' concept, strict adherence to Sarkaria guidelines. |
| All-India Services (AIS) | Focused on administrative improvements. | Abolition of AIS. | Strengthen AIS, rejected abolition. | Stressed importance for national integration. | No specific new recommendation, recognized importance. |
| Financial Relations | Greater delegation of financial powers. | Increase states' share in central taxes, transfer more central taxes to divisible pool. | Greater sharing of central taxes, reduce discretionary grants (Art 282), more transparency. | Greater fiscal autonomy for states, efficient resource mobilization. | Centre to enable states to improve finances, reduce conditional Centrally Sponsored Schemes. |
| Inter-State Council (ISC) | Establishment under Art 263. | Constitution of a permanent ISC. | Strongly recommended establishment (led to ISC in 1990). | Strengthen ISC, ensure regular meetings. | Advocated more frequent meetings and effective functioning. |
Major Debates & Discussions
Unitary Bias vs. State Autonomy
The core tension: balancing a strong Centre for unity and security with legitimate demands for greater state autonomy and fiscal space. Early commissions pushed radical autonomy, while Sarkaria sought cooperative balance.
Role of Governor
A perennial source of conflict, concerning appointment, removal, discretionary powers, and reserving bills. Commissions consistently tried to institutionalize safeguards, often overridden by political realities.
Misuse of Article 356
The frequent and often politically motivated invocation of President's Rule was a major concern. While the Bommai judgment curbed misuse, its arbitrary invocation remains debated, with Punchhi suggesting 'localised emergency'.
Fiscal Federalism
States consistently demand a greater share in central taxes, more untied funds, and less conditional Centrally Sponsored Schemes, reflecting persistent vertical fiscal imbalance and dependence on central transfers.
Impact of All-India Services
While seen as a unifying force, their dual control by Centre and States leads to debates over accountability and potential erosion of state administrative autonomy. Rajamannar sought abolition, Sarkaria strengthening.
From Confrontation to Consultation
Early phases (Rajamannar, Anandpur) saw radical demands. Sarkaria shifted focus to cooperative federalism, institutionalizing consultation (ISC), continued by Punchhi, adapting to new challenges.
Recommendations: Key Areas of Focus
A conceptual representation of how frequently certain areas of Centre-State relations were addressed across various commission recommendations.
*Percentages are illustrative and represent the general frequency of these issues in commission reports.
UPSC Preparation Corner
Prelims MCQs
1. Which of the following commissions/committees recommended the abolition of the All-India Services (IAS, IPS)?
- Administrative Reforms Commission (ARC-I)
- Rajamannar Committee
- Anandpur Sahib Resolution
- Sarkaria Commission
Select the correct answer using the code given below:
(a) 1 and 4 only
(b) 2 and 3 only
(c) 2, 3 and 4 only
(d) 1, 2, 3 and 4
Answer: (b)
Explanation: Rajamannar and Anandpur Sahib Resolution (by implication of limiting central control) advocated for reduced central control over bureaucracy, often interpreted as seeking abolition or significant reduction of AIS power. Sarkaria recommended strengthening AIS.
2. Regarding the recommendations on the Governor's role, consider the following statements by various commissions:
- The Sarkaria Commission recommended that the Chief Minister should be consulted in the appointment of the Governor.
- The Punchhi Commission suggested that the Governor should be removable only by a resolution of the State Legislature.
- The National Commission to Review the Working of the Constitution recommended a collegium headed by the Prime Minister for the Governor's appointment.
Which of the statements given above is/are correct?
(a) 1 and 2 only
(b) 2 and 3 only
(c) 1 and 3 only
(d) 1, 2 and 3
Answer: (d)
Explanation: All three statements are correct and reflect the specific recommendations made by the respective commissions to address the contentious role of the Governor.
Mains Descriptive Questions
1. "Despite comprehensive recommendations from various commissions, the office of the Governor remains a significant point of friction in Centre-State relations. Analyze the reasons for this persistent tension and suggest how the recommendations of these commissions can be better implemented to ensure the impartial functioning of the Governor." (15 marks, 250 words)
Key Points/Structure:
- Intro: Governor's dual role, persistent friction.
- Reasons for Tension: Political appointments, lack of CM consultation, ambiguity in discretionary powers (Art 163, 200, 356 reports), no fixed tenure.
- Implementation Suggestions:
- Appointment: NCRWC's collegium or Sarkaria's stricter CM consultation.
- Tenure/Removal: Punchhi's fixed tenure, removal by state legislature impeachment.
- Powers: Clear guidelines for discretion, timeframes for bill assent (Punchhi).
- Accountability: Robust code of conduct, stronger judicial oversight.
- Conclusion: Political will and constitutional morality crucial for impartial functioning and cooperative federalism.
2. "Critically evaluate the shift in focus regarding Centre-State relations from the radical demands for state autonomy (1960s-70s) to the emphasis on cooperative federalism and collaborative governance (post-1980s). What role have commissions played in this evolution?" (10 marks, 150 words)
Key Points/Structure:
- Intro: Define two phases: radical autonomy vs. cooperative federalism.
- Radical Autonomy (60s-70s): Rajamannar, Anandpur, WB Memorandum – demanding abolition of AIS/Art 356, limiting Centre's powers. Context: end of one-party dominance.
- Cooperative Federalism (Post-80s):
- Shift: Sarkaria's emphasis on cooperation, institutionalizing ISC, cautious Art 356 use.
- Continuation: Punchhi, NCRWC adapting to new challenges, promoting dialogue.
- New Institutions: NITI Aayog, GST Council fostering collaboration.
- Commissions' Role: Provided structured analysis, conceptual roadmap, and catalysts for institutional reforms (ISC, influencing Bommai case). They guided the shift from confrontation to cooperation.
- Conclusion: Maturing federal polity, driven by both political necessity and commissions' intellectual contributions.