Polity
Centre-State Relations
Administrative Relations (Articles 256–263)
Centre-State administrative relations for CGPSC: Arts 256–258A, Art 365, All-India Services, water disputes, Inter-State Council and Zonal Councils.
Prerequisites
- Legislative Relations — executive power follows legislative power, so read the three lists first.
- Union Executive — the President, whose orders and directions appear throughout this page.
- State Executive and Legislature — the Governor, the main link between the Centre and a state.
The Hook: Two Recruiting Bodies, One District Office
Connect
If you clear the CGPSC State Service Exam, you may join as a Deputy Collector in a district such as Rajnandgaon or Jashpur. Your district head, the Collector, is very often an IAS officer of the Chhattisgarh cadre, selected by the UPSC, trained by the Centre, yet working for the State Government.
The Chhattisgarh Public Service Commission (छत्तीसगढ़ लोक सेवा आयोग) that recruits you is a State body. The UPSC that recruited your Collector is a Union body. Both work under the same Constitution, in the same office.
How does one country run two layers of government through shared officers, shared rivers and shared problems without constant collision? That is administrative relations (प्रशासनिक संबंध).
Why it matters: Prelims tests article numbers (256, 257, 258A, 261, 262, 263, 312, 365) and the composition of the Inter-State Council and Zonal Councils. Mains asks about Centre-State friction over Governors, central agencies and water disputes.
Distribution of Executive Power
| Subject in | Executive power lies with | Article |
|---|---|---|
| Union List | Centre exclusively, throughout India | Art 73 |
| State List | State exclusively | Art 162 |
| Concurrent List | Normally with the States, unless the Constitution or a Central law gives it to the Centre | Proviso to Art 73 and Art 162 |
Rule of thumb: the Centre’s executive power is co-extensive with Parliament’s legislative power, and a state’s with its legislature’s power. Administrative relations are in Part XI, Chapter II (Articles 256–263).
1. Centre’s Directions to States
| Article | Provision |
|---|---|
| 256 | Obligation of states: a state’s executive power must be exercised so as to ensure compliance with laws made by Parliament. The Centre may give directions for this purpose |
| 257(1) | A state’s executive power must not impede or prejudice the Union’s executive power. The Centre may give directions for this |
| 257(2)–(3) | The Centre may direct a state on the construction and maintenance of means of communication declared to be of national or military importance, and on the protection of railways within the state. Extra costs are reimbursed by the Centre (257(4)) |
| 339(2) | Directions on schemes essential for the welfare of Scheduled Tribes in a state |
| 350A | Directions to secure primary education in the mother tongue for children of linguistic minorities |
| Fifth Schedule, para 3 | The Governor reports to the President on the administration of Scheduled Areas; the Union’s executive power extends to giving directions to the state about their administration |
| 365 | Sanction: if a state fails to comply with Union directions, the President may hold that the state’s government cannot be carried on in accordance with the Constitution, opening the way to Art 356 |
Chhattisgarh angle
Article 339(2) and the Fifth Schedule matter directly to Chhattisgarh, where a large tribal population lives in Scheduled Areas of Bastar and Surguja. The Governor’s report on these areas and the Centre’s power to give directions are part of administrative relations. See PESA and Scheduled Areas and Tribes of Chhattisgarh.
2. Mutual Delegation of Functions
| Article | Who delegates | Consent needed? |
|---|---|---|
| 258(1) | President entrusts Union executive functions to a state government or its officers | Yes, the state’s consent |
| 258(2) | Parliament, by law on a Union subject, confers powers and duties on a state or its officers | No consent needed |
| 258A | Governor entrusts state executive functions to the Centre or its officers | Yes, the Centre’s consent. Added by the 7th Amendment (1956) |
3. Cooperation Provisions
| Article | Provision |
|---|---|
| 261 | Full faith and credit throughout India to public acts, records and judicial proceedings of the Centre and every state. Civil court judgments are executable anywhere in India |
| 262 | Inter-state river water disputes: Parliament may provide for adjudication and may exclude the jurisdiction of the Supreme Court and other courts |
| 263 | Inter-State Council to inquire into disputes, discuss subjects of common interest and recommend better coordination |
Inter-state water disputes (Article 262)
Parliament has enacted two laws under Article 262:
- River Boards Act, 1956 — for boards to regulate and develop inter-state rivers. No board has been set up under it so far, as commonly reported.
- Inter-State River Water Disputes Act, 1956 — the Centre sets up an ad hoc tribunal on a state’s request. The tribunal’s award is final and binding, and the Act bars courts from hearing the same dispute. A 2002 amendment set time limits for constituting a tribunal and for its award.
Chhattisgarh angle: the Mahanadi dispute
- The Mahanadi rises near Sihawa in Dhamtari district of Chhattisgarh and flows into Odisha, where the Hirakud dam lies downstream.
- Odisha objected to barrages and projects built upstream in Chhattisgarh and sought a tribunal.
- The Centre constituted the Mahanadi Water Disputes Tribunal on 12 March 2018, first chaired by Justice A.M. Khanwilkar. Its term has been extended more than once and proceedings were still continuing as of 2026.
Use it in Mains as a live example of Article 262 and of the slow pace of tribunal adjudication.
The Inter-State Council (अंतर-राज्य परिषद) — Article 263
| Point | Detail |
|---|---|
| Basis | Art 263: the President may establish it if public interest requires. It is not a permanent constitutional body by default |
| Set up | 1990, by Presidential order, on the recommendation of the Sarkaria Commission |
| Chairman | Prime Minister |
| Members | Chief Ministers of all states; Chief Ministers of UTs with legislative assemblies; Administrators of UTs without assemblies; Governors of states under President’s Rule; six Union Cabinet Ministers, including the Home Minister, nominated by the PM |
| Standing Committee | Chaired by the Union Home Minister (set up in 1996) |
| Nature | Recommendatory, not binding |
| Meetings | Infrequent. Its 11th meeting was held on 16 July 2016, after a gap of about ten years; as of the latest available information (2026), a 12th full meeting had not been held |
Art 263 vs Art 131
Article 263 lets the Council inquire into and advise upon any inter-state dispute, legal or non-legal. Article 131 gives the Supreme Court jurisdiction only over legal disputes between the Centre and states. The Council’s advice is not binding; the Court’s decree is.
4. All-India Services and Public Service Commissions
All-India Services (अखिल भारतीय सेवाएँ) — Article 312
| Service | Created |
|---|---|
| IAS (Indian Administrative Service) | Continued from the ICS; deemed created by Parliament under Art 312(2) |
| IPS (Indian Police Service) | Continued from the Indian Police; deemed created under Art 312(2) |
| IFoS (Indian Forest Service) | 1966: the only All-India Service created after the Constitution began |
- New All-India Service: Parliament may create one if the Rajya Sabha passes a resolution supported by two-thirds of members present and voting (Art 312).
- An All-India Judicial Service is provided for (added by the 42nd Amendment) but has not been created as of 2026.
- Governing law: All-India Services Act, 1951.
- Dual control: officers are recruited and trained by the Centre and allotted to state cadres, such as the Chhattisgarh cadre. They serve the state, but only the Centre can take major disciplinary action such as dismissal.
Why it matters for federalism: Supporters call the All-India Services a “steel frame” that keeps uniform standards and links the Centre with the states. Critics, such as the Rajamannar Committee, said they erode state autonomy.
Public Service Commissions
| Article | Provision |
|---|---|
| 315 | A UPSC for the Union and a State PSC for each state (such as CGPSC) |
| 315(2) | A Joint State PSC for two or more states, created by Parliament at the states’ request |
| 315(4) | The UPSC may serve a state’s needs at the Governor’s request with the President’s approval |
| 317 | Chairman and members of a State PSC are appointed by the Governor but can be removed only by the President |
5. Administrative Relations During Emergencies
| Emergency | Effect on administrative relations |
|---|---|
| National Emergency (Art 352) | Art 353(a): the Centre may give directions to any state on any matter. States are not suspended but come under the Centre’s control |
| President’s Rule (Art 356) | The President assumes the functions of the state government; administration runs through the Governor |
| Financial Emergency (Art 360) | The Centre may direct states to observe financial propriety and to reduce salaries of state employees |
Article 355 places a duty on the Union to protect every state against external aggression and internal disturbance and to ensure its government runs according to the Constitution. Courts and commissions have read it as a basis for action short of Art 356.
6. Other Instruments of Central Influence
- Governor (Art 155, 156): appointed by the President and holds office during the pleasure of the President. In B.P. Singhal v. Union of India (2010), the Supreme Court held that this pleasure cannot be exercised arbitrarily and removal is open to limited judicial review.
- Central armed police forces: “Public order” and “police” are State subjects, but the Centre can deploy its forces in a state. States have sometimes objected when this is done without their request.
- Central agencies: The CBI needs a state’s consent to investigate in that state (Section 6, Delhi Special Police Establishment Act, 1946); several states have withdrawn their “general consent” at different times. The NIA needs no such consent, which is why Chhattisgarh challenged the NIA Act under Article 131 in January 2020.
Statutory and extra-constitutional bodies
| Body | Basis | Chair | Notes |
|---|---|---|---|
| Zonal Councils (क्षेत्रीय परिषद) | Statutory: States Reorganisation Act, 1956 | Union Home Minister | Five councils: Northern, Central, Eastern, Western, Southern. Each state’s CM serves as vice-chairman by rotation (one year) |
| North Eastern Council | Statutory: North Eastern Council Act, 1971 | — | For the north-eastern states |
| NITI Aayog | Executive (Union Cabinet resolution); replaced the Planning Commission from 1 January 2015 | Prime Minister | Its Governing Council includes all Chief Ministers; promotes cooperative and competitive federalism |
Chhattisgarh in the Central Zonal Council
The Central Zonal Council has four member states: Chhattisgarh, Madhya Pradesh, Uttar Pradesh and Uttarakhand. Its 25th meeting was held in Varanasi on 24 June 2025, chaired by Union Home Minister Amit Shah, with Chhattisgarh Chief Minister Vishnu Deo Sai attending. Agenda items reported for that meeting included law and order, border security, crimes against women, disaster response and road safety.
Analysis for Mains: Friction Points
| Area | States’ concern | Centre’s justification |
|---|---|---|
| Governor | Acts as an “agent of the Centre”; delays Bills; partisan reports under Art 356 | Link between Centre and state; constitutional guardian |
| Central forces and agencies | Policing is a State subject; deployment or investigation without consent | Internal security and inter-state crime need national response (Art 355) |
| All-India Services | Officers look to the Centre for careers; central deputation rules | National integration and uniform standards |
| Water disputes | Tribunals take years (Mahanadi tribunal since 2018); awards poorly implemented | Courts’ jurisdiction excluded to ensure expert, final adjudication |
| Inter-State Council | Meets rarely, so states lack a regular forum | Zonal Councils and NITI Aayog serve as alternative forums |
Balanced conclusion: The administrative scheme is designed for cooperative federalism (Arts 258, 258A, 261, 263, Zonal Councils), but with coercive backstops (Arts 256, 257, 365, 356). The commissions (Sarkaria, Punchhi) repeatedly asked for more consultation and a more active Inter-State Council rather than less central power.
Memory Tricks
256 to 263 as a story
- 256 — “Obey Parliament’s laws”
- 257 — “Don’t block the Union” (+ communications, railways)
- 258 — “Centre gives work to the state” (with consent)
- 258A — “State gives work to the Centre” (with consent; A for “After 1956”)
- 261 — “Full faith and credit”
- 262 — “Water” (two-six-two, like ripples)
- 263 — “Council”
- 365 — “Disobey, and 356 follows” (the same digits, swapped)
Central Zonal Council: 'CUMU'
Chhattisgarh, Uttar Pradesh, Madhya Pradesh, Uttarakhand — four neighbours in the heart of India.
Don’t Confuse
| This | vs | That |
|---|---|---|
| Inter-State Council — Art 263, constitutional provision, chaired by PM | vs | Zonal Councils — statutory (1956 Act), chaired by Union Home Minister |
| ISC Standing Committee — chaired by Home Minister | vs | ISC itself — chaired by PM |
| Art 258 — President → state (state’s consent) | vs | Art 258A — Governor → Centre (Centre’s consent) |
| Art 262 — water disputes; courts can be excluded | vs | Art 131 — Centre-state legal disputes; Supreme Court’s original jurisdiction |
| IFoS (1966) — created after 1950 | vs | IAS, IPS — existed at commencement |
| Art 355 — Union’s duty to protect states | vs | Art 356 — President’s Rule when machinery fails |
Common Mistakes
MCQ traps
- “The Inter-State Council is a permanent constitutional body.” False. Art 263 only enables the President to set it up; it was established in 1990 by Presidential order.
- “Zonal Councils are constitutional bodies.” False. They are statutory, under the States Reorganisation Act, 1956.
- “The Inter-State Council is chaired by the Home Minister.” False. The PM chairs it; the Home Minister chairs its Standing Committee and the Zonal Councils.
- “Article 258A was part of the original Constitution.” False. It was added by the 7th Amendment, 1956.
- “Parliament needs the state’s consent to confer duties on state officers.” False for Art 258(2): Parliament can do it by law without consent. Consent is needed under Art 258(1).
- “Chhattisgarh is in the Western Zonal Council.” False. It is in the Central Zonal Council.
Practice
All questions below are original practice questions written in CGPSC style. They are not previous-year questions.
Level 1: Foundation
- Article ______ requires states to exercise their executive power so as to ensure compliance with laws made by Parliament.
- Zonal Councils were created under the ______ Act, 1956.
- The only All-India Service created after the commencement of the Constitution is the ______.
Answers
- Article 256.
- States Reorganisation Act, 1956.
- Indian Forest Service (1966).
Level 2: Prelims MCQs
Q1. Consider the following statements about the Inter-State Council:
- It was established in 1990 by a Presidential order under Article 263.
- It is chaired by the Union Home Minister.
- It can inquire into and advise upon disputes between states.
Which of the statements given above is/are correct?
- (a) 1 only
- (b) 1 and 3 only
- (c) 2 and 3 only
- (d) 1, 2 and 3
Answer and explanation
(b) 1 and 3 only. The Council was set up in 1990 on the Sarkaria Commission’s recommendation. It is chaired by the Prime Minister; the Home Minister chairs its Standing Committee. Under Article 263(a) it may inquire into and advise upon inter-state disputes.
Q2. Match List I (Article) with List II (Subject):
| List I | List II |
|---|---|
| A. Article 258A | 1. Full faith and credit to public acts and records |
| B. Article 261 | 2. Adjudication of inter-state river water disputes |
| C. Article 262 | 3. Effect of failure to comply with Union directions |
| D. Article 365 | 4. Governor entrusting state functions to the Union |
- (a) A-4, B-1, C-2, D-3
- (b) A-1, B-4, C-2, D-3
- (c) A-4, B-2, C-1, D-3
- (d) A-3, B-1, C-2, D-4
Answer and explanation
(a) A-4, B-1, C-2, D-3. Art 258A (7th Amendment, 1956) lets the Governor entrust state functions to the Centre with its consent. Art 261 gives full faith and credit. Art 262 covers water disputes. Art 365 lets the President treat non-compliance with Union directions as a failure of constitutional machinery.
Q3. Chhattisgarh is a member of which Zonal Council?
- (a) Eastern Zonal Council
- (b) Western Zonal Council
- (c) Central Zonal Council
- (d) Southern Zonal Council
Answer and explanation
(c) Central Zonal Council, with Madhya Pradesh, Uttar Pradesh and Uttarakhand. Its 25th meeting was held in Varanasi in June 2025. Odisha, a Mahanadi neighbour, is in the Eastern Zonal Council, which is the usual distractor.
Q4. Consider the following statements:
- A new All-India Service can be created by Parliament if the Rajya Sabha passes a resolution supported by two-thirds of the members present and voting.
- The members of a State Public Service Commission are appointed by the Governor and can be removed by the Governor.
- A Joint State Public Service Commission can be created by Parliament at the request of the states concerned.
Which of the statements given above are correct?
- (a) 1 and 2 only
- (b) 2 and 3 only
- (c) 1 and 3 only
- (d) 1, 2 and 3
Answer and explanation
(c) 1 and 3 only. Statement 1 is Article 312. Statement 2 is wrong: State PSC members are appointed by the Governor but removed only by the President (Art 317). Statement 3 is Article 315(2).
Q5. The Mahanadi Water Disputes Tribunal, constituted in 2018, was set up under a law made by Parliament under which Article?
- (a) Article 131
- (b) Article 262
- (c) Article 263
- (d) Article 253
Answer and explanation
(b) Article 262. Parliament enacted the Inter-State River Water Disputes Act, 1956 under Art 262, and tribunals such as the Mahanadi tribunal (12 March 2018) are constituted under that Act. Article 263 is the Inter-State Council; Article 131 is the Supreme Court’s original jurisdiction; Article 253 is treaty legislation.
Level 3: Mains Answer Writing
Q1. (60 words) What is the Inter-State Council? Mention its composition.
Model answer outline
- Definition: A body under Art 263 to inquire into inter-state disputes, discuss common subjects and recommend coordination; set up in 1990 on the Sarkaria Commission’s advice.
- Composition: PM (chair); CMs of all states and of UTs with legislatures; Administrators of other UTs; Governors of states under President’s Rule; six Union Cabinet Ministers including the Home Minister.
- Note: Recommendatory; last full meeting in 2016.
Q2. (150–200 words) Discuss the constitutional and statutory mechanisms for Centre-State and inter-state administrative cooperation in India. How effective have they been?
Model answer outline
- Intro: India’s administrative federalism combines cooperation with central oversight (Part XI, Chapter II).
- Mechanisms: mutual delegation (Arts 258, 258A); full faith and credit (Art 261); water dispute tribunals (Art 262); Inter-State Council (Art 263, 1990); Zonal Councils (1956 Act); All-India Services (Art 312); NITI Aayog’s Governing Council (2015).
- Effectiveness: positives — Zonal Councils resolve many practical issues; All-India Services give continuity; NITI promotes competitive federalism. Limits — ISC meets rarely (11th meeting 2016); water tribunals are slow; Governor and central agencies cause friction.
- Chhattisgarh angle: the Mahanadi tribunal (constituted 2018, still hearing as of 2026); the Central Zonal Council (25th meeting, Varanasi, 2025) on law and order, border security and road safety; the state’s 2020 Art 131 suit against the NIA Act.
- Way forward: regular ISC meetings (Punchhi suggested at least three a year); time-bound tribunals; consultation before central deployment.
- Conclusion: The architecture exists; what is missing is regular use of it.
Quick Revision Table
| Fact | Detail |
|---|---|
| Administrative relations | Part XI, Chapter II, Arts 256–263 |
| Art 73 / 162 | Union / State executive power, co-extensive with legislative power |
| Art 256 / 257 | Compliance with Union laws; not impeding the Union; communications and railways |
| Art 258 / 258A | President → state (consent); Governor → Centre (consent; 7th Amendment, 1956) |
| Art 261 | Full faith and credit |
| Art 262 | Water disputes; Inter-State River Water Disputes Act and River Boards Act (both 1956) |
| Art 263 | Inter-State Council: set up 1990; PM chairs; Standing Committee under Home Minister (1996) |
| Art 312 | All-India Services; new one by Rajya Sabha resolution (two-thirds present and voting); IFoS 1966 |
| Art 315 / 317 | UPSC, State PSCs, Joint PSC; State PSC members removed only by President |
| Art 339(2) | Union directions on ST welfare schemes |
| Art 353(a) | Directions to any state on any matter during National Emergency |
| Art 355 / 365 | Union’s duty to protect states / non-compliance leads to Art 356 |
| Zonal Councils | Statutory, SR Act 1956; five; Union Home Minister chairs |
| Central Zonal Council | Chhattisgarh, MP, UP, Uttarakhand; 25th meeting Varanasi, 24 June 2025 |
| Mahanadi Tribunal | Constituted 12 March 2018 (Odisha vs Chhattisgarh); first chair Justice A.M. Khanwilkar |
| B.P. Singhal (2010) | Governor’s removal not at the Centre’s whim; limited judicial review |
Key Takeaways
Key Takeaways
- Executive power follows legislative power; on Concurrent subjects it normally stays with states.
- Arts 256, 257 and 365 give the Centre power to direct states and a sanction (Art 356) for non-compliance.
- Cooperation runs through Arts 258, 258A, 261, 262, 263, the Zonal Councils and NITI Aayog.
- All-India Services and the Governor are the main human links between the Centre and states, and the main sources of friction.
- For Chhattisgarh: Central Zonal Council, the Mahanadi tribunal, Fifth Schedule directions, and the NIA Act suit.
What’s Next
- Financial Relations — taxes, grants, the Finance Commission and the GST Council
- Commissions on Centre-State Relations — what Sarkaria and Punchhi said about Governors, Art 356 and the Inter-State Council
- Constitutional Bodies — UPSC, State PSCs and the Finance Commission in detail
- Chhattisgarh: State Formation and Administration — how the state’s own administration is organised
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