CLASS 10 CIVICS · CHAPTER 2 · STUDY NOTES
Federalism
See how powers are divided and protected, how India makes federalism work and how local self-government brings decisions closer to people.
01 / EXPLORE & UNDERSTAND
Federalism: two levels with protected powers
A State government is not simply a branch office of the Union government.
1. A federation divides authority
In a federation, two or more levels govern the same citizens. Each has powers in its own area, protected by the Constitution. In a unitary system, the central government holds the main authority and can control the powers it gives to lower levels.
2. A unitary system works differently
Think of a school council and classroom councils with separate agreed jobs. That helps you picture different responsibilities, but a country’s federal powers have constitutional protection, not just permission from a head teacher.
A little deeper: Understand the reason
The textbook describes Belgium’s 1993 change: regional governments gained constitutional powers that the centre could no longer withdraw on its own. The important change was protection, not merely the existence of regional offices.
“Union”, “Central” and “Federal” government can refer to India’s national government in this discussion. Calling it the Union does not make State governments its ordinary administrative departments.
Your turn
Question
A centre creates a regional office and may withdraw all its powers at any time. Is that enough to show federalism?
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02 / EXPLORE & UNDERSTAND
The seven features—and the trust behind them
Federalism needs both written rules and a willingness to work together.
1. The Constitution protects powers
Its key features are: two or more levels; different jurisdictions over the same citizens; a constitutional guarantee for those powers; agreement by both levels for changing the basic division; courts to settle disputes; specified revenue sources; and a balance between national unity and regional diversity.
2. Trust makes the rules work
The levels must respect each other’s areas and cooperate where responsibilities meet. Mutual trust helps the rules work. Federalism seeks unity while allowing people in different regions to meet different needs.
A little deeper: Understand the reason
Revenue matters because a responsibility without money can be difficult to carry out. A State may have the job of providing a service yet still depend on transfers or shared taxes. Constitutional powers and practical financial capacity are related but different.
Shared rule does not remove disagreement. It gives disagreement institutions and procedures, so people can argue about a decision without treating the country’s unity as a demand for identical rules everywhere.
Your turn
Question
Why are revenue sources included among the features of federalism?
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03 / EXPLORE & UNDERSTAND
Two routes: come together or hold together
Federations can begin in different ways, so their power balances need not be identical.
1. Coming together
In the textbook’s coming-together model, previously independent units join to form a larger country while keeping important powers. The United States, Switzerland and Australia are examples. The constituent units generally have equal standing and substantial autonomy.
2. Holding together
In the holding-together model, a large country divides powers among national and regional governments. India, Belgium and Spain are the textbook examples. The centre may be stronger, and some units may have special arrangements.
A little deeper: Understand the reason
Do not interpret “holding together” as a claim that citizens must be forced to remain united. The idea here is a constitutional method of keeping unity while recognising regional differences.
Nor does coming together mean every modern decision requires unanimous agreement of all regions. The country’s constitution defines how common institutions make decisions.
Your turn
Question
Why might two federations have different powers for their central governments?
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04 / EXPLORE & UNDERSTAND
India’s three lists: who makes which laws?
Start with the subject of the law, then find its constitutional list.
1. Three lists divide subjects
The Union List covers matters of national importance such as defence, foreign affairs, banking, communications and currency. The State List includes police, agriculture and irrigation. The Concurrent List includes education, forests, trade unions, marriage, adoption and succession: both levels may legislate.
2. What if laws conflict?
On a Concurrent subject, Union law generally prevails if the two laws conflict. The Constitution provides exceptions and special situations. Residuary subjects—those not placed in these lists—belong to the Union, not automatically to local government.
A little deeper: Understand the reason
Article 254 includes an exception: a State law on a Concurrent subject, reserved for the President and given assent, may prevail within that State over an earlier conflicting Parliamentary law. Parliament can later legislate again. Therefore “Union always wins in every case” is too absolute.
A service can also involve administration, funding and cooperation by different levels. Who funds a school is not exactly the same question as who has constitutional authority to make education law.
Your turn
Question
A learner calls forests a purely State subject because a forest is located inside one State. What should you correct?
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05 / EXPLORE & UNDERSTAND
States, Union Territories and special arrangements
Federalism can recognise different needs instead of treating every unit identically.
1. States and Union Territories
India includes States and Union Territories. Union Territories have special arrangements with greater Union control; some have legislatures, while others do not. Do not assume that every territory has the same powers as a State.
2. Some regions have special provisions
Some States have special constitutional provisions, including those in the Article 371 family. These address particular regional needs, such as culture, customary law or development. Equality of citizenship does not require every unit’s constitutional arrangements to be identical.
A little deeper: Understand the reason
Special provisions differ by State. Do not turn a protection that applies in one place into a claim that every north-eastern State has exactly the same land, language or administrative rules.
Use the current official political map when counting States or locating territories. Textbooks can preserve historical maps and examples; a historical arrangement should not be presented as a current administrative fact.
Your turn
Question
Does having a legislature make every Union Territory constitutionally identical to a State?
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06 / EXPLORE & UNDERSTAND
Protecting the division: courts and agreed changes
The basic division cannot be rewritten by one government acting alone.
1. Changing the division needs agreement
Courts interpret the Constitution and settle disputes about the powers of different levels. The Supreme Court is a key constitutional umpire. An independent umpire helps prevent a dispute from being settled only by whichever government is politically stronger.
2. Courts settle constitutional disputes
Changing provisions that affect the federal division requires the special amendment process: Parliament’s special majority and ratification by at least half the State legislatures for the federal matters listed in Article 368.
A little deeper: Understand the reason
For the special majority, each House needs a majority of its total membership and at least two-thirds of members present and voting. These are two conditions, not just “two-thirds of all MPs”. Ordinary State-level disagreement does not require this amendment process.
The chapter’s core point is that neither Union nor State can unilaterally erase the basic federal division. Emergency provisions and other constitutional exceptions are separate rules; they should not be confused with routine administration.
Your turn
Question
Can an ordinary Union ministry order remove a State’s constitutional law-making powers permanently?
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07 / EXPLORE & UNDERSTAND
Language-based States helped people participate
Recognising language diversity can strengthen unity rather than weaken it.
1. States reorganised around languages
After independence, India reorganised many State boundaries so people using the same main language could live in one administrative unit. The major reorganisation of 1956 is central to this story. Some States were also formed to recognise cultural, ethnic or geographical differences.
2. Recognition can support unity
It became easier for many people to communicate with government in a familiar language. Fears that linguistic States would necessarily break the country apart did not come true in the textbook’s account: recognising diversity helped make the Union more workable.
A little deeper: Understand the reason
A State’s main language does not mean every resident speaks it. Minority-language speakers retain rights. People may identify with their language, State and country at the same time.
The chapter includes Ramachandra Guha’s account of the 1956 reorganisation: language-based units helped people participate democratically while retaining an all-India identity. The lesson is accommodation, not one-language exclusivity.
Your turn
Question
How could language-based States make administration easier?
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08 / EXPLORE & UNDERSTAND
India has no constitutionally declared national language
Official language and national language are different terms.
1. Official does not mean national
The Constitution does not declare one language to be India’s national language. Hindi in Devanagari script is the Union’s official language, and English continues for Union official purposes under law. States can have their own official languages.
2. Other languages retain protection
The Eighth Schedule recognises 22 languages. Scheduled status is a constitutional category; it does not mean every language is official for every government, or that all Indian languages belong to that list.
A little deeper: Understand the reason
The chapter explains opposition to imposing Hindi and the continuation of English. Accommodation made the language policy workable. Promoting one language must not be confused with denying other languages or declaring a single national language.
The 22 Scheduled languages are Assamese, Bengali, Bodo, Dogri, Gujarati, Hindi, Kannada, Kashmiri, Konkani, Malayalam, Manipuri, Marathi, Nepali, Odia, Punjabi, Sanskrit, Santali, Sindhi, Tamil, Telugu, Urdu and Maithili. Order in this list does not rank their importance.
Your turn
Question
A poster says “Hindi is the only national language, so States cannot use other official languages.” What is wrong?
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09 / EXPLORE & UNDERSTAND
Reading language numbers carefully
A category can include several mother-tongue names.
1. What the percentage counts
In the chapter’s 2011 Census table, the Hindi category accounts for 43.63% of the population—rounded to about 44%. That is the largest listed share, but it is not more than half. Do not call it everyone’s mother tongue.
2. Use the survey year
The chapter explains that more than 1,300 reported mother-tongue names were grouped into 121 major languages. Census groupings, reported mother tongues and the 22 Scheduled languages are three different counts.
A little deeper: Understand the reason
Several mother-tongue names are placed under a broader language entry. That can make the entry’s total much larger than the number who reported that exact name. Always check what the label includes.
A largest group is a plurality when its share remains below half. You can describe 43.63% as the largest listed language category without incorrectly calling it an absolute majority.
Your turn
Question
Why are “121 languages” and “22 Scheduled languages” not contradictory?
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10 / EXPLORE & UNDERSTAND
Political practice matters as much as the written rules
Federalism becomes stronger when governments respect each other’s roles.
1. Competition changed the relationship
The chapter contrasts periods when a dominant national party often influenced State governments with the stronger bargaining role of regional parties and coalitions from the 1990s. Parties governing at different levels had to negotiate instead of assuming that the same party controlled both.
2. Cooperation is still necessary
Court decisions also constrained arbitrary dismissal of elected State governments. Constitutional safeguards, public participation and cooperative political practice help the division of powers work in real life.
A little deeper: Understand the reason
A coalition does not automatically produce good federalism, and one party winning widely does not automatically abolish it. Ask whether elected governments respect the constitutional division and negotiate fairly.
The centre-State relationship changes with elections, institutions and policy. Learn the reason negotiation matters instead of memorising an old ruling-party arrangement as if it remained unchanged forever.
Your turn
Question
Why can regional parties matter in a Union-level coalition?
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11 / EXPLORE & UNDERSTAND
Why take decisions closer to home?
Local people often know problems that a distant office may miss.
1. Local problems need local knowledge
A country as large and diverse as India needs local self-government. Residents can help identify a broken drain, a missing water connection or a poorly maintained local road. Local decision-making can make participation easier.
2. People can take part directly
Decentralisation means transferring power from higher levels to lower ones. It is meant to bring democracy closer to everyday life. It succeeds best when local bodies have authority, money and opportunities for meaningful participation.
A little deeper: Understand the reason
The chapter gives Porto Alegre’s participatory budgeting and Kerala’s planning initiatives as examples of participation. These are cases to understand, not proof that every Indian local body uses the same procedure.
Decentralisation is more than putting a new office nearby. If every decision and all funds remain controlled elsewhere, residents still have little real power.
Your turn
Question
Why might a local body understand a village water problem better than a distant national office?
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12 / EXPLORE & UNDERSTAND
The 1992 reforms: a stronger third tier
Regular elections and representation were given constitutional protection.
1. The reforms gave local bodies protection
The 73rd and 74th Constitutional Amendments were passed in 1992 and took effect in 1993. They strengthened rural and urban local self-government. Key measures include regular elections, reservations for Scheduled Castes and Scheduled Tribes, and at least one-third reservation for women.
2. Representation must include more people
A State Election Commission supervises local elections. State governments are to share powers and revenue with local bodies, but the actual transfer differs across States. Reservation for backward classes is provided through State law; it is not one identical nationwide constitutional quota.
A little deeper: Understand the reason
The State Election Commission handles local elections. The Election Commission of India handles elections such as Parliament and State legislatures. The two should not be confused.
A five-year term does not justify delaying elections indefinitely. The Constitution also contains rules for re-election after a body is dissolved. The main learning point is elected local government with regular accountability.
Your turn
Question
A student says local elections are run by the same commission as Lok Sabha elections. What is the correction?
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13 / EXPLORE & UNDERSTAND
Gram Sabha and Gram Panchayat: people and representatives
The Gram Sabha is not just a meeting of elected councillors.
1. The Gram Sabha includes voters
The Gram Sabha consists of the people registered as voters in the village area. The Gram Panchayat is the elected village-level body, with elected ward representatives and a chairperson, often called a sarpanch.
2. The panchayat is elected
The Gram Sabha gives residents a forum to discuss plans, review work and question spending. The Panchayat carries out responsibilities given under State law. The Sabha and Panchayat are connected, but they are not the same group.
A little deeper: Understand the reason
Voting once is not the only possible participation. Residents can attend meetings, raise a public concern and ask for information. Participation needs accessible meetings and attention to people who are often excluded.
Children are learners and residents, but only registered voters are members of the Gram Sabha. Do not equate “everyone living in the village” with its legal membership.
Your turn
Question
Which group includes an ordinary registered village voter who is not an elected representative?
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14 / EXPLORE & UNDERSTAND
From village to district—and towns to cities
Use the correct local body for the kind of settlement.
1. Rural bodies form several levels
In the rural system, village Panchayats connect with an intermediate block-level body, often called a Panchayat Samiti, and a district-level Zilla Parishad. These are local elected institutions with functions defined in the State’s arrangements.
2. Urban bodies serve towns and cities
Urban areas have municipalities; larger cities generally have municipal corporations. Elected councillors represent wards. The chairperson or mayor leads the elected body under the relevant law. Local government is not limited to villages.
A little deeper: Understand the reason
An elected Zilla Parishad and an appointed district administrator are different institutions. A District Collector is not simply the elected head of the district Panchayat.
Small-population States and particular areas can have special arrangements. Learn the usual three-level rural structure without assuming every local institution everywhere is identical.
Your turn
Question
A resident of a large city says their elected local body must be a Gram Panchayat. What is the mistake?
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15 / EXPLORE & UNDERSTAND
When is local self-government meaningful?
Look for power, funds and participation—not just a new name.
1. Authority needs resources
The textbook recognises progress: a large number of people, including women, now participate as local representatives. Yet many local bodies still lack sufficient powers or resources, and Gram Sabha participation can be weak.
2. Check whether people can participate
Evaluate a local reform with three checks: can people influence decisions, can the body act within real responsibilities, and does it have funds and accountability? Regular elections matter, but they do not solve every administrative problem by themselves.
A little deeper: Understand the reason
A fictional Panchayat may be elected regularly but have no budget for the local work it is assigned. Another may have money but exclude residents from discussion. Both examples show why more than one condition matters.
When an answer asks how federalism works in India, connect constitutional powers with linguistic accommodation, flexible language policy, centre-State relations and decentralisation. They are different ways to make sharing meaningful.
Your turn
Question
A council has elections every five years but cannot spend any money or decide any local work. Is decentralisation complete?
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Take these ideas with you
- Federalism protects powers at more than one level of government.
- Written rules work better with cooperation, trust and respect for diversity.
- Local self-government needs real responsibilities, resources and participation.
Use your understanding in a new situation
Question
A local council has many duties but no money or staff. Why is decentralisation incomplete?
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