Sharp Decline in State Assembly Functioning: PRS Report 

New Delhi: A recent report by PRS Legislative Research, a leading non-profit organization dedicated to analyzing legislative performance, has revealed a concerning decline in the functioning of Indian state legislative assemblies. The comprehensive study, covering data up to April 2025, exposes critical gaps in legislative processes, including fewer sitting days, rushed lawmaking, limited debates, and delays in bill assent. These issues raise serious questions about the health of democratic institutions and governance in India.

Declining Number of Sitting Days in State Assemblies

One of the most striking findings of the PRS report is the significant reduction in the average number of sitting days for state legislative assemblies. In 2017, state assemblies met for an average of 28 days annually. By 2024, this figure had plummeted to just 20 days. This decline, which began during the disruptions caused by the 2020 pandemic, has persisted, with assemblies continuing to meet for fewer than 30 days on average each year.

The Indian Constitution, under Article 174, mandates that state legislatures must convene at least once every six months. However, the PRS report notes that 11 states and Union Territories fulfilled this requirement through extremely short sessions, some lasting only one or two days. Such brief sittings raise concerns about the quality of legislative oversight and deliberation.

A Constitution review committee has recommended a minimum of 50 sitting days annually for smaller legislatures (those with fewer than 70 members) and 90 days for larger ones. However, no state has consistently met these targets, even in cases where minimum sitting days are mandated through legislation or Rules of Procedure. For instance, Odisha led the country with 42 sitting days in 2024, followed closely by Kerala with 38 days. Despite these relatively higher numbers, even these states fell short of the recommended benchmarks.

The limited duration of sittings compounds the issue. On average, each legislative sitting in 2024 lasted just five hours, leaving little time for meaningful discussions on critical issues such as budgets, policies, and legislation.

Limited Debate and Rushed Lawmaking

The PRS report highlights a troubling trend of rushed lawmaking in state assemblies. In 2024, states passed an average of 17 bills, but a staggering 51% of these bills were passed within a single day of their introduction. This rapid pace of legislation leaves little room for scrutiny, debate, or public consultation, undermining the quality of laws enacted.

Moreover, only 4% of bills passed in 2024 were referred to a legislative committee for detailed examination. Committees play a crucial role in analyzing the implications of proposed laws, ensuring they are well-drafted and aligned with public interest. The near absence of committee referrals suggests that many laws are being passed without adequate review, potentially leading to poorly crafted or ineffective legislation.

The report identifies specific states where rushed lawmaking is particularly prevalent. Jharkhand, Mizoram, Puducherry, and Punjab passed all their bills within a day of introduction in 2024, a trend consistent with their legislative practices in 2022 and 2023. Additionally, eight states passed every bill within a single day, further highlighting the systemic issue of inadequate deliberation.

Absence of Deputy Speakers in State Assemblies

Another critical issue flagged by the PRS report is the absence of Deputy Speakers in several state assemblies, as mandated by Article 178 of the Indian Constitution. This article requires state assemblies to elect a Speaker and a Deputy Speaker as soon as possible to ensure smooth legislative functioning. However, as of April 2025, eight states and Union Territories had no Deputy Speaker in office. Most notably, Jharkhand has not elected a Deputy Speaker for over 20 years, a glaring violation of constitutional norms.

The absence of a Deputy Speaker can disrupt legislative proceedings, particularly in the Speaker’s absence, and weaken the institutional framework of state assemblies. Interestingly, the report also notes that the Lok Sabha, India’s national parliament, has been without a Deputy Speaker since June 2019, reflecting a broader trend of neglecting this critical position.

Delays in Bill Assent

The PRS report also sheds light on significant delays in the assent of bills passed by state assemblies. Under Article 200 of the Constitution, Governors are required to grant assent, return, or reserve bills for the President’s consideration without undue delay. However, in 2024, 18% of bills took over three months to receive assent, creating bottlenecks in the legislative process.

The situation is particularly acute in Himachal Pradesh, where 72% of bills faced delays of over three months. Such delays can lead to governance gaps, policy inconsistencies, and confusion in implementation, ultimately affecting public service delivery.

Key Legislative Outputs in 2024

Despite the challenges, state assemblies passed over 500 bills in 2024, with Karnataka leading the tally by passing 49 bills, followed by Tamil Nadu with 45. In contrast, Delhi passed just one bill, and Rajasthan passed two, reflecting significant variations in legislative activity across states. Approximately half of the bills passed in 2024 related to critical sectors such as education, finance, and local governance.

The PRS report highlights several noteworthy laws enacted in 2024, showcasing the diversity of legislative priorities across states:

• Uttarakhand introduced the Uniform Civil Code, a landmark law aimed at standardizing personal laws across communities.
• West Bengal passed the Aparajita Act, which imposes stricter penalties for rape, signaling a strong stance against gender-based violence.
• Haryana enacted legislation to regulate private coaching institutes, addressing concerns about unregulated education services.
• Madhya Pradesh introduced laws to regulate private school fees, aiming to make education more affordable.
• Tamil Nadu mandated welfare spending for scheduled castes and scheduled tribes in proportion to their population, promoting equitable resource allocation.
• Maharashtra provided a 10% reservation for the Maratha community in education and government jobs, addressing long-standing demands for affirmative action.
• Gujarat passed laws banning black magic, aiming to curb superstitious practices.
• Assam introduced legislation prohibiting magical healing practices for treating diseases, prioritizing evidence-based healthcare.
• Maharashtra also increased penalties for felling trees without permission, reflecting environmental concerns.

These laws highlight the diverse challenges and priorities of Indian states, from social justice and education to environmental protection and public health.

Implications for Democracy and Governance

The findings of the PRS report point to serious implications for Indian democracy and governance. The trend of rushed lawmaking, characterized by limited debate and minimal committee scrutiny, risks producing weak, unclear, or poorly implemented laws. Such laws may fail to address complex societal issues effectively, leading to policy failures and governance gaps.

The lack of transparency and discussion in legislative processes also contributes to a democratic deficit. When bills are passed without adequate public consultation or scrutiny, it erodes public trust in legislative institutions and the democratic process. Citizens may feel disconnected from governance, perceiving it as opaque or unresponsive to their needs.

Moreover, delays in bill assent and the absence of Deputy Speakers exacerbate governance challenges. Prolonged delays in enacting laws can lead to confusion in policy implementation, inconsistent service delivery, and inefficiencies in governance. The absence of Deputy Speakers weakens the institutional framework, making assemblies less resilient to disruptions.

Budget Discussions and Legislative Priorities

The PRS report also examines the time allocated to budget discussions, a critical aspect of legislative oversight. In 2024, state assemblies dedicated an average of seven days to discussing budgets, a relatively short period given the complexity of state finances. Adequate budget scrutiny is essential for ensuring fiscal responsibility and aligning public spending with developmental priorities. The limited time devoted to this process raises concerns about the depth of financial oversight in state legislatures.

Path Forward: Addressing the Legislative Decline

The PRS report underscores the need for urgent reforms to strengthen state legislative processes. Increasing the number of sitting days, ensuring robust debates, and referring bills to committees for detailed examination are critical steps to improve the quality of lawmaking. States must also prioritize filling vacant Deputy Speaker positions and streamlining the bill assent process to enhance governance efficiency.

Legislative reforms should focus on enhancing transparency, encouraging public participation, and fostering accountability. By addressing these gaps, state assemblies can rebuild public trust, strengthen democratic institutions, and deliver effective governance.

Conclusion

The PRS Legislative Research report paints a sobering picture of the state of Indian legislative assemblies in 2024. With declining sitting days, rushed lawmaking, and institutional gaps such as absent Deputy Speakers and delayed bill assent, the functioning of state legislatures is under strain. These issues have far-reaching implications for democracy, governance, and public trust. While states like Odisha and Kerala have made strides in increasing sitting days, and others like Karnataka and Tamil Nadu have been active in passing legislation, systemic reforms are needed to address the broader decline. By prioritizing transparency, accountability, and robust legislative processes, Indian states can strengthen their democratic institutions and deliver better governance for their citizens.

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