Prime Minister and Council of Ministers | Polity Notes for UPSC IAS 2025

Prime Minister and Council of Ministers: The Real Executive Power of India’s Parliamentary Democracy

When a new budget is presented and middle-class families in Bengaluru and Pune start calculating taxes, when farmers in Punjab and Karnataka discuss MSP and input costs, when students in Uttar Pradesh worry about paper leaks and job exams, and when a national disaster demands quick relief, people naturally ask: “Who is actually running the government?”

The answer is not the President. In India’s parliamentary system, the Prime Minister (PM) and the Council of Ministers are the real executive power. The President is the constitutional head, but the PM-led Council of Ministers takes decisions, implements policies, controls the administration, and is answerable to Parliament—especially the Lok Sabha.

Definition: The Prime Minister is the head of the Council of Ministers and the real executive head of the Union government. The Council of Ministers is appointed by the President on the PM’s advice and functions under the principle of collective responsibility to the Lok Sabha (Article 75(3)).

Constitutional Provisions (Articles 74–78 and Related Articles): The Core Rulebook

For UPSC, you must clearly show that you know the “constitutional base” of the PM and Council of Ministers. The most direct articles are 74 to 78, and the most important supporting article is Article 75.

Article	Topic	Simple meaning	UPSC use
Article 74	Council of Ministers to aid and advise President	President acts on ministerial advice; President can return advice once	Explains PM’s real power and President’s limited discretion
Article 75	PM and Ministers	PM appointed by President; ministers appointed on PM’s advice; collective responsibility to Lok Sabha	Appointment + accountability + responsibility
Article 76	Attorney General	Top law officer appointed by President	Shows executive appointments via President on advice
Article 77	Conduct of business of Government of India	Executive actions in President’s name; rules of business	How cabinet decisions become government actions
Article 78	Duties of PM	PM must inform President about decisions and administration matters	Defines PM–President relationship

Extra high-value connected provisions:

Article 53: Executive power vested in President, exercised through officers as per Constitution.
Article 73: Union’s executive power extent (linked to Union List/Concurrent List and treaties).
Article 75(3): Collective responsibility to Lok Sabha (key for parliamentary system).
Article 75(5): A minister who is not a member of Parliament must become a member within 6 months.

Natural Flow: Why PM and Council of Ministers Are the “Real Engine”

India’s Constitution deliberately created a system where:

The President is the constitutional head and symbol of the nation.
The Prime Minister is the head of government and chief decision-maker.
The Council of Ministers is collectively responsible to the Lok Sabha.

This system ensures two things at once:

Stable executive leadership (government can act fast in crises).
Democratic accountability (government can be removed if it loses Lok Sabha confidence).

So the PM is powerful, but not permanent. The PM survives only as long as the Lok Sabha majority supports the government.

Appointment of Prime Minister: Who Can Become PM, Oath, Term, and Key Situations

Who appoints the PM? (Article 75)

The President appoints the Prime Minister. In practice, the President appoints the person who is most likely to command majority support in the Lok Sabha.

Who can become PM?

The Constitution does not directly say “PM must be from Lok Sabha.” In practice, the PM must be able to prove majority in Lok Sabha. Key points:

Usually the PM is a member of Lok Sabha because that makes majority support clearer.
A person can be PM even if not a member of either House at the time of appointment, but must become an MP within 6 months (Article 75(5)).
PM must be a citizen of India and must be eligible to become a member of Parliament.

Real-life examples: India has seen PMs who were members of Rajya Sabha, showing that Lok Sabha membership is not compulsory, but Lok Sabha confidence is compulsory.

Oath of the PM and Ministers (Article 75)

Before entering office, the PM and Ministers take oath of office and secrecy administered by the President. The oath includes commitment to:

Bear true faith and allegiance to the Constitution
Uphold sovereignty and integrity of India
Faithfully discharge duties
Not reveal confidential matters (secrecy oath)

Definition: Oath of office and secrecy is a constitutional promise that ensures ministers act within the Constitution and maintain confidentiality of sensitive government matters.

Term of the PM

The PM does not have a fixed term like the President. The PM continues as long as:

The PM has support of the majority in Lok Sabha, and
The PM enjoys the confidence of the Council of Ministers and party/coalition.

If the government loses a trust vote or a no-confidence motion passes, the PM must resign.

Appointment in coalition or hung Lok Sabha (very important)

When no party gets clear majority:

The President’s role becomes important in inviting the leader/coalition most likely to form stable government.
The invited PM must prove majority on the floor of Lok Sabha within a short time.

Real Indian examples: India has experienced coalition governments multiple times. In such situations, trust votes and coalition negotiations become key tools of parliamentary stability.

Powers and Functions of the Prime Minister: Executive, Legislative, Cabinet Roles

The PM is often called “first among equals,” but in modern governance, the PM is usually the central coordinator and strongest leader in the executive. The PM’s powers can be grouped for UPSC answers.

1) Executive Powers (Head of Government and Administration)

Formation of Council of Ministers: PM chooses ministers; President appoints them on PM’s advice.
Portfolio allocation: PM decides who gets which ministry (Home, Finance, Defence, Railways, Education, etc.).
Coordination: PM ensures ministries work together (for example, disaster response needs Home + Defence + Health + Railways + state coordination).
Leadership in policy: Major policies—economic reforms, welfare programs, infrastructure pushes—are driven by PM’s leadership.
Appointments influence: PM’s advice influences key constitutional and administrative appointments through cabinet decisions.

Indian example: During major national programs (like large infrastructure initiatives, digital public services expansion, health emergencies), PM’s office coordinates multiple ministries and states.

2) Cabinet and Council Roles (The PM as Team Leader)

The PM is the:

Chairperson of the Cabinet and key cabinet committees.
Main person who sets the cabinet agenda.
Final coordinator when ministers disagree.

Article 78 duty: PM must communicate major decisions to the President and provide information as asked. This makes PM the key link between President and the Council.

3) Legislative Powers (Role in Parliament)

Leader of Lok Sabha in practice (if PM is from Lok Sabha) or major leader in Parliament overall.
Decides government’s legislative agenda: which Bills to bring, when to push reforms.
Advises President on summoning, proroguing, and dissolution of Lok Sabha (Article 85 practice).
Faces Parliament: debates, replies to big issues, survives confidence votes.

Real example: During Budget Session, PM’s political direction influences how the government manages debate on inflation, jobs, welfare, and taxation.

4) Role in Foreign Policy and National Security

PM leads key foreign policy decisions and high-level diplomacy.
PM chairs or influences major security coordination mechanisms (through Cabinet and national security frameworks).
PM represents India in major global summits and bilateral meetings.

Council of Ministers: Composition, Categories, and How It Works

The “Council of Ministers” is a wider body that includes the Cabinet, Ministers of State, and sometimes Deputy Ministers. UPSC expects you to clearly differentiate these categories.

Three categories of Ministers (common UPSC classification)

Category	Position	Role and power	Example of work style
Cabinet Ministers	Top rank	Head major ministries; part of Cabinet decision-making	Finance, Home, Defence, External Affairs, Railways, etc.
Ministers of State (MoS)	Middle rank	Assist Cabinet Ministers; may have independent charge in some ministries	Handles specific departments like skill, youth, women/child, etc.
Deputy Ministers	Junior rank	Assist in parliamentary work and ministry tasks (now less common in practice)	Support roles; often not used prominently in modern cabinets

Cabinet vs Council of Ministers (clear difference)

Cabinet is a smaller, powerful group of senior ministers where major decisions are taken.
Council of Ministers is wider and includes all levels of ministers.
In real governance, the Cabinet is the “decision core,” while the Council is the “full team.”

Definition: Cabinet is the inner body of senior ministers that takes key policy decisions. Council of Ministers includes Cabinet Ministers, Ministers of State, and junior ministers.

Collective Responsibility (Article 75(3)) and Individual Responsibility: The Backbone of Parliamentary Government

Collective responsibility (Article 75(3))

Article 75(3) says the Council of Ministers is collectively responsible to the Lok Sabha. This means:

The government stands and falls together.
If Lok Sabha passes a no-confidence motion, the entire Council must resign.
Even if one minister makes a major mistake, the government may have to accept responsibility politically.

Real example (common pattern): When a major policy failure happens—like a big administrative breakdown, scam allegations, or disaster response failure—Parliament can demand explanations. Sometimes ministers resign for political accountability even if they did not personally commit wrongdoing.

Individual responsibility

Individual responsibility means:

Each minister is responsible for their ministry’s functioning.
Ministers can be removed by the PM for non-performance, controversy, or loss of confidence.

Relationship between collective and individual responsibility

In practice:

Collective responsibility protects cabinet unity.
Individual responsibility ensures ministers remain accountable and replaceable.
PM uses individual responsibility to protect collective stability (for example, removing a minister to save the government’s image).

Relationship with the President: Articles 74–78 in Action

This is a core UPSC theme: “President is the constitutional head, PM is the real head.” The relationship is built mainly through Articles 74–78.

Article 74: Aid and advice (President usually bound)

President acts on advice of the Council of Ministers.
President can return advice once for reconsideration.
If the Council repeats the advice, President must accept it.

Article 78: PM’s duties toward President

PM communicates all cabinet decisions and administration matters to the President.
PM provides information the President asks for.
PM submits matters for cabinet consideration if President asks (in certain contexts), strengthening collective decision-making.

Simple meaning: President is not running the government, but President is not kept in the dark either. The PM must keep the President informed, preserving constitutional discipline.

Situational discretion and the PM–President balance

The President may have practical discretion mainly in:

Inviting a leader to form government when no clear majority exists.
Asking for a floor test if majority is doubtful.
Sending advice back once (Article 74 after 44th Amendment effect).

Relationship with Parliament: Why PM and Council Are Accountable Every Day

The PM and Council of Ministers are accountable to Parliament through multiple tools. In India, Parliament is not only law-making; it is also a daily accountability machine.

Key tools of parliamentary control

Question Hour: Ministers must answer; exposes delays and failures.
Zero Hour: Urgent issues raised; increases pressure.
Debates and motions: Calling Attention, Adjournment Motion (practice-based tools).
Parliamentary committees: Deep scrutiny of ministries and Bills.
No-confidence motion: Direct test of government survival in Lok Sabha.
Budget and demands for grants: Government cannot spend without parliamentary approval.

Real examples (typical): Trust votes and confidence tests become important in coalition phases. Parliament debates major national issues like price rise, jobs, internal security, disaster response, and governance failures.

PM vs Chief Minister: A Clear Comparison Table for UPSC

Point	Prime Minister	Chief Minister
Level	Union government	State government
Constitutional base	Articles 74–78, 75	Similar parliamentary model in states (Governor + Council of Ministers)
Appointed by	President	Governor
Responsible to	Lok Sabha	State Legislative Assembly
Executive scope	Union List + Concurrent List (with federal limits)	State List + Concurrent List (with federal limits)
National role	Foreign policy, defence, national economy leadership	State-level development, law and order, state economy focus

Cabinet Committees, Kitchen Cabinet, and the Real Decision Structure

Cabinet Committees

Because the full Cabinet is large, detailed decisions are taken in smaller groups called Cabinet Committees. The PM usually chairs the most important committees or controls their composition.

Examples of what cabinet committees do (generic):

Economic affairs decisions (investment, large spending, reforms)
Security decisions (defence, internal security coordination)
Parliamentary affairs planning (bill strategy, floor management)

Kitchen Cabinet

This is not a constitutional body. It is an informal group of trusted advisers and senior ministers close to the PM who influence decisions. It is common in many governments.

Definition: Kitchen Cabinet is an informal inner circle around the PM that can influence policy decisions. It is not mentioned in the Constitution.

Why this matters for UPSC

Kitchen Cabinet can make decision-making faster.
But it can reduce transparency and reduce the role of full Cabinet and Parliament.
Good governance requires balancing efficiency with accountability.

Real Indian Examples: Recent PMs, Coalition Governments, and Trust Votes

To make your answers exam-ready, mention examples without becoming political.

1) Coalition governments and floor tests

India has seen both single-party majority governments and coalition governments. In coalition times:

PM must manage partner demands.
Trust votes and confidence motions become more frequent.
Cabinet composition becomes a balance of political interests.

Examples (easy to mention): Coalition eras in India, including the late 1990s and 2000s, showed frequent government changes and trust votes. The constitutional solution remained the same: majority must be proven in the Lok Sabha.

2) Recent PMs and continuity of parliamentary system

Recent decades show that governments can change, but the constitutional model remains stable: PM leads the executive, but must be accountable to Parliament, and the President acts on advice.

3) No-confidence motions as accountability tools

No-confidence motions are a constitutional test of majority. Even when the government wins, such debates force the PM and ministers to answer national questions publicly.

Landmark Supreme Court Cases and Constitutional Principles (Exam-Ready)

Shamsher Singh (1974): Real executive is Council of Ministers

President is generally a constitutional head.
Real executive power is exercised by Council of Ministers in a parliamentary system.
Strengthens understanding of Articles 74–78.

S.R. Bommai (1994): Floor test principle and federal accountability

While this case is mainly about Article 356 (President’s Rule), it indirectly strengthens parliamentary logic: majority should be tested on the floor of the House, not in private letters or guesses. This principle shapes how PMs and CMs prove majority.

Kihoto Hollohan (1992): Anti-defection validity

Anti-defection affects government stability. This case upheld the basic idea of preventing unethical defections, while allowing judicial review of Speaker’s decisions. It impacts coalition politics and parliamentary discipline.

Common exam-ready principle

Parliamentary democracy survives on: majority support, cabinet accountability, and constitutional procedures.

Benefits of the PM and Council System: Why It Works for India

Quick decisions with accountability: Executive acts fast but must answer in Parliament.
Stable leadership: PM provides a single leadership point.
Coordination: PM ensures ministries move in one direction.
Democratic removal: If PM loses majority, government falls without military or constitutional breakdown.
Flexible during coalitions: System can still work with alliances through floor tests.

Challenges and Concerns: Where the System Faces Criticism

1) Excess centralisation around PMO

When too much power is concentrated in PMO, ministries may become weak and Parliament may get less information.

2) Weak ministerial autonomy

Sometimes ministers act more like spokespersons than independent administrators. This can reduce innovation and accountability.

3) Disruptions in Parliament reduce accountability

If Question Hour is disrupted, ministers escape tough questioning. This weakens parliamentary control over executive.

4) Anti-defection reduces independent MP voting

While anti-defection brings stability, it can reduce MPs’ ability to vote based on conscience or constituency needs, especially on non-confidence votes and major bills.

5) Coalition instability (when alliances are weak)

Coalition governments can face frequent bargaining, policy delays, and instability if partners withdraw support.

Way Forward: How to Improve Executive Accountability and Cabinet Governance

Strengthen Parliament: Protect Question Hour, reduce disruptions, expand committee scrutiny.
Improve cabinet functioning: Encourage full Cabinet discussion, not only small inner circles.
Reform anti-defection process: Time-bound decisions and clearer standards can reduce strategic delays.
Transparency in decision-making: More data-based policy explanations and parliamentary statements.
Strengthen ministerial responsibility: Ministers should be empowered to lead ministries effectively and be answerable for performance.

Wrap-up: PM and Council of Ministers Are Powerful, But Must Remain Accountable

The Prime Minister is the real executive head who leads policy and administration. The Council of Ministers supports the PM and runs ministries. But the entire executive survives only with Lok Sabha confidence. This balance—power with accountability—is the core strength of India’s parliamentary democracy.

For UPSC, remember a single line: Prime Minister is powerful because Parliament supports him; Prime Minister is accountable because Parliament can remove him.

Previous Year UPSC Questions (PYQs) with Exam-Ready Answers

PYQ: Explain the principle of collective responsibility. Why is it essential in a parliamentary system?