The Governor: Powers, Discretion and Debates — UPSC Polity Notes

Quick answer: The Governor is the constitutional head of a state (Articles 153-167) – appointed by the President, holding office at the President’s pleasure, acting ordinarily on ministerial advice but with real discretion in assent to bills, government formation and President’s Rule. The office’s frictions with elected state governments make it a perennial mains and interview topic.

What is the constitutional design of the office?

• Article 153: There shall be a Governor for each state — and since the 7th Constitutional Amendment, 1956, one person may hold additional charge of two or more neighbouring states. Examiners love that 1956 amendment; fix it now.
• Articles 155–156: The Governor is appointed by the President and holds office during the President’s pleasure. Read the implications together — no fixed term, no removal grounds stated, and no impeachment process like the President’s. This asymmetry is a favourite prelims trap.
• Articles 158–159: Qualifications and oath. The bars: a citizen of India, completed 35 years of age, not a member of either House of Parliament or a state legislature (if a legislator is appointed, the seat falls vacant on assuming office), and holds no office of profit.
• The design debate: The state’s head is nominated while the government beneath is elected from the bottom up. Is the Governor the Centre’s resident constitutional anchor — or an intruder in federal democracy? That tension is the thread running through every controversy this page maps next.

What are the Governor’s powers?

• Executive: every executive action of the state is taken in the Governor’s name; appoints the Chief Minister and, on the CM’s advice, the council of ministers; serves as chancellor of state universities in many states — a standing source of Governor-government friction that examiners love to flag.
• Legislative: summons and prorogues the House, dissolves the Assembly, addresses the first session after election, nominates members to legislative councils where they exist, and grants or withholds assent to bills (Article 200) — with the option of reserving bills for the President (Article 201). Assent and reservation are the most examined pair here; know both Articles cold.
• Financial: a money bill can be introduced in the Assembly only on the Governor’s recommendation; the annual financial statement (budget) is likewise laid on the Governor’s recommendation.
• Judicial: consulted in the appointment of judges of the state High Court; can grant pardons, reprieves, respites and commutations for offences against state law (Article 161). Note the contrast carefully: the Governor cannot pardon a death sentence, and the President’s pardon covers Union-law sentences.
• Discretionary (Article 163): the exception to the aid-and-advice rule — sending a report recommending President’s Rule, assent choices on bills, and (by convention) inviting a party to form government after a hung verdict. This is where most Governor-versus-government questions are built.

What are the live controversies?

• Assent delays: Bills passed by state assemblies sit unsigned for months — the Supreme Court has heard state petitions demanding timelines for the Governor under Article 200, and the Sarkaria Commission had already counselled that sitting on a bill is itself a decision. Examiners love this area: expect questions on the four constitutional options under Article 200 — assent, withhold, return once (if not a money bill), or reserve for the President.
• Money bill certification: declaring an ordinary bill a money bill to bypass the upper House — a route litigated and debated at both the state and Union level. Read it as a discretion-versus-abuse angle: the certification power exists, the controversy is its misuse.
• Government formation: who to invite first in a hung house. This is Governor’s discretion at its most examined — guided by the Sarkaria norm: invite the largest pre-poll coalition, or the single largest party if no coalition exists, and let it prove majority on the floor of the House, not in the Raj Bhavan.
• President’s Rule reports: Article 356 recommendations by Governors have been judicially reviewable since S.R. Bommai (1994) — the settled rule is that floor tests, not drawing-room arithmetic, decide majorities. Pair Bommai with Article 356 in your revision chain; UPSC tests them together.

What did the commissions say?

• Sarkaria Commission (1988): the baseline prescription every examiner expects. Appoint eminent persons, not active politicians; consult the Chief Minister before appointment; no arbitrary dismissals of governments; and decide assent bills within a reasonable time. Quote at least the CM-consultation and reasonable-time points — those two are picked up most often in MCQs.
• Punchhi Commission (2010): went further — a committee-based appointment process instead of sole Centre discretion, freeing universities from the Governor-as-chancellor role, and treating government formation as largely rule-bound to end the “hung house improvisation” era. Pair Punchhi with Sarkaria in your answer; the contrast itself earns marks.
• Answer frame: constitutional text + convention + commission norms + recent judicial nudges = a complete UPSC polity answer. Memorise this four-part chain and reproduce it as the skeleton of any Governor question.

How do exams ask it?

• Prelims: Expect raw Article numbers — 153, 155, 200, 201, 161, 163, 356 — plus the pardon-power contrast between Governor and President (the most examined pair here), and questions on who appoints and who removes the Governor. Read these Articles once tonight; they are pure recall marks.
• Mains: The examiner’s favourite framing is dual-identity: “The Governor is the agent of the Centre and the constitutional head of the state — examine.” The second staple is assent politics: “Assent delays threaten federal comity — discuss with reference to Sarkaria Commission norms.” Both demand a two-sided answer, not a rant.
• State PSCs: This topic is disproportionately high-yield at the state level — Governors, assent controversies and President’s Rule surface every single cycle. Treat it as a guaranteed question, not a maybe.

How to revise this in three minutes?

• Minute one: Articles 153-163 spine + appointment/pleasure doctrine.
• Minute two: the four power buckets (executive, legislative, financial, discretionary).
• Minute three: Sarkaria-Punchhi reform list + Bommai floor-test rule.

What have exams actually asked about the Governor?

State PSC prelims drill the article numbers – 153 creation, 155 appointment by the President, 156 pleasure doctrine, 161 pardons for state offences, 163 discretion, 200 assent options, 201 reservation. UPSC mains likes friction scenarios: a bill sitting unsigned for months, two claimants after a hung verdict, a Chancellor-versus-government tussle over a vice-chancellor’s appointment. The complete answer shape: state the constitutional text, name the convention (Sarkaria or Punchhi), cite the judicial guardrail (Bommai floor tests for 356; the Supreme Court’s hearing of assent-delay petitions), and conclude with a reform recommendation. CLAT passages often quote constitutional commentators on federalism – practise extracting the “appointed vs elected head” tension from any excerpt.

Assent under Article 200 – the four-way fork

• Give assent: the bill becomes an Act.
• Withhold assent: the assembly may pass it again; the Constitution does not oblige the Governor to relent – hence the reform demand for timelines.
• Return (non-money bills): once, with the House free to repass it; what happens on repass is the live litigation question.
• Reserve for the President (Article 201): obligatory when the bill endangers the High Court’s position; discretionary in other cases.
• Money bills: no return option – assent, withhold, or reserve; the Governor’s recommendation is needed before introduction.

Five practice questions

1. The Governor is appointed by: (a) the Prime Minister (b) the President (c) the Chief Justice (d) the state legislature – Answer: (b) – Article 155.
2. Pardoning power of the Governor extends to: (a) Union-law death sentences (b) state-law offences (c) court-martial sentences (d) all sentences – Answer: (b) – Article 161.
3. A money bill in a state assembly requires: (a) the Speaker’s assent first (b) the Governor’s recommendation (c) the President’s permission (d) a referendum – Answer: (b).
4. Floor tests as the test of majority were affirmed in: (a) Kesavananda (b) S.R. Bommai (c) Minerva Mills (d) NJAC – Answer: (b).
5. Which commission suggested consulting the Chief Minister before appointing a Governor? (a) Punchhi (b) Sarkaria (c) Mandal (d) Balwant Rai – Answer: (b) – Sarkaria, 1988.

One closing line for interviews

If asked “should Governors be elected?”, the balanced close is: the problem is not appointment but accountability – fix timelines for assent, codify the invitation conventions, and separate the ceremonial chancellorship from universities, and the office works as the Constitution’s designers intended: a constitutional head, not a parallel government.

Where does this topic sit in each syllabus?

UPSC GS-2 covers it under “Union and States – functions and responsibilities” and the federalism cluster. State PSC exams weight it even heavier – governor discretions and President’s Rule recur every cycle. LLB constitutional-law papers pair it with Articles 153-167 doctrine. For mains enrichment, keep one recent example of an assent-delay dispute and one Bommai citation; together they carry any 10-marker.

Common mistakes candidates make

• Writing that the Governor is “elected by the state legislature” – appointed by the President, full stop.
• Listing pardon over death sentences of Union offences as a Governor power – that is the President’s; the Governor cannot pardon a Union-law death sentence.
• Treating Article 163 discretion as unlimited – it is confined to areas where the Constitution permits or requires independent judgment.
• Forgetting the 7th Amendment fact that one Governor may serve two states.

Three more practice questions

1. One Governor serving two states is permitted by the: (a) 6th Amendment (b) 7th Amendment (c) 42nd Amendment (d) 44th Amendment – Answer: (b) – 1956.
2. Bills endangering the High Court’s position must be: (a) assented immediately (b) reserved for the President (c) returned twice (d) referred to the Speaker – Answer: (b).
3. The Governor administers the oath to: (a) the President (b) state ministers and the CM (c) High Court judges only (d) MPs – Answer: (b) – and to the Speaker pro-tem contextually; the safest option here is (b).

The sixty-second recap

1. Articles spine: 153 office, 155 appointment, 156 pleasure, 161 state-law pardons, 163 discretion, 200 assent, 201 reservation, 356 report. 2. Four assent options and the money-bill exception. 3. Discretion zones: hung-house invitation, assent choices, President’s Rule reports – guided by Bommai’s floor-test rule. 4. Sarkaria: consult the CM, eminent non-politicians, timely assent; Punchhi: committee appointments, de-chancelloring universities. 5. One controversy example (assent delay) plus one case citation (Bommai) completes any mains answer. This list is the morning revision – the full card is for the first pass.

A model opening paragraph for the mains question

“The Constitution conceives the Governor as the constitutional head of a state – nominal in ordinary times, pivotal in transitions – appointed under Article 155 and holding office at the President’s pleasure under Article 156. The office was designed to anchor constitutional continuity in the states, yet its discretionary space under Article 163 – assent, government formation and President’s Rule – has generated persistent federal friction, addressed variously by the Sarkaria and Punchhi Commissions and disciplined judicially from S.R. Bommai onward.” That single paragraph carries the definition, the articles, the tension and the reform-judicial arc – everything after it is expansion with examples, which is exactly what the remaining eleven marks reward.

Final word: the Governor is what the Constitution made – a nominated guardian in an elected house. Every question on this office is really a question about that design choice, and every strong answer names it in the first line, tests it against the discretionary clauses, and closes with one reform from the commissions. That structure has carried toppers through this question for a decade; it will carry you too.

Sources and further reading

• Ministry of Law and Justice – constitutional texts
• Governor (India) – reference overview
• S.R. Bommai case – reference overview

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