Centre's Ladakh framework gives the L-G final authority over laws of a new elected body
In one line: The Centre's written framework for Ladakh offers a directly elected UT-level body, but laws made by it would need the Lieutenant-Governor's assent, with the L-G having the final word.
Published 21 October 2026. Written by Pratidin from the reports linked at the end; every fact checked by a separate review before publishing. How we work
The Hindu reported on 21 October 2026 that the Centre's draft framework for Ladakh would make the Lieutenant-Governor (L-G) the final authority over laws made by a proposed elected body at the Union Territory (UT) level. The Ministry of Home Affairs (MHA) document is titled "Constitutional and Statutory Framework". The MHA shared the framework with the Leh Apex Body (LAB) and the Kargil Democratic Alliance (KDA) on 16 October 2026, after talks in Leh on 15 October. Ladakh's Chief Secretary Ashish Kundra said the document was meant to facilitate further discussion and was not the outcome of a concluded legislative process.
The framework proposes two stages: first a constitutional amendment, then a regulation under Article 240, which lets the President make regulations for certain UTs with the force of an Act of Parliament. It leaves key questions open: whether constituencies should be delimited by population, by area or both; which electoral rolls to use; whether women should get one-third to 50% of seats; whether the Ladakh Autonomous Hill Development Councils (LAHDCs) of Leh and Kargil should get constitutional status; and whether nominated expert members should sit in the body. On 9 September 2026 the MHA had proposed a new Article 371(K), a special provision giving the body powers over land, culture, forests and environment.
Ladakh became a UT without a legislature on 31 October 2019, after Article 370 was revoked and the State of Jammu and Kashmir was reorganised. The LAB and KDA have demanded statehood, Sixth Schedule status and protection of land and jobs; the MHA set up a High Powered Committee for talks in 2023. The groups have rejected the draft "in principle", saying it breaks a 22 May understanding that the minimum guarantee would be a UT with an elected legislature. The groups argue that a body without the final word is not a real legislature.
Prelims facts
- The MHA's "Constitutional and Statutory Framework" for Ladakh makes the L-G the final authority over laws of a proposed UT-level elected body.
- The framework plans a constitutional amendment followed by a regulation under Article 240.
- Open questions include delimitation by population or area, electoral rolls, a women's share of one-third to 50%, and constitutional status for the LAHDCs.
- The MHA proposed a new Article 371(K) for Ladakh on 9 September 2026; Article 371 to 371J now cover 12 States.
- Ladakh has been a UT without a legislature since 31 October 2019; its groups want statehood and Sixth Schedule status.
Quick recall
- What is the MHA's Ladakh document called?
- "Constitutional and Statutory Framework"
- Who would have the final authority over laws of Ladakh's proposed UT-level body?
- The Lieutenant-Governor
- Which Article lets the President make regulations for certain UTs?
- Article 240
- What new Article did the MHA propose for Ladakh on 9 September 2026?
- Article 371(K)
- When did Ladakh become a UT without a legislature?
- 31 October 2019
- Under which Act do the Leh and Kargil hill councils function?
- The Ladakh Autonomous Hill Development Council Act, 1997
- Which four States have Sixth Schedule areas?
- Assam, Meghalaya, Tripura and Mizoram
- What range of seats for women is under discussion for Ladakh's new body?
- One-third to 50%
Prelims practice question
With reference to Article 240 of the Constitution of India, consider the following statements:
1. It empowers the President to make regulations for the peace, progress and good government of certain Union Territories.
2. A regulation made under it may repeal or amend an Act of Parliament applicable to that Union Territory.
3. The President can use it for Puducherry even while the Puducherry Legislative Assembly is functioning.
Which of the statements given above is/are correct?
- 1 only
- 1 and 2 only
- 2 and 3 only
- 1, 2 and 3
Show answer
Answer: (b) 1 and 2 only. Statement 1 is correct: this is the purpose of Article 240(1). Statement 2 is correct: Article 240(2) gives a regulation the force of an Act of Parliament and lets it repeal or amend laws applying to the UT. Statement 3 is incorrect: for Puducherry the power is available only when its Assembly is dissolved or its functioning is suspended.
Use this in UPSC Mains: previous-year questions
Recurring theme: Union Territories, special provisions and asymmetric federalism
- How to use this
Use Ladakh to show asymmetric federalism being extended to a Union Territory, and the limits of a design that keeps the final word with the Centre.
- The MHA proposed Article 371(K) for Ladakh on 9 September 2026, extending a model of special provisions that already covers 12 States.
- The October 2026 framework offers an elected UT-level body, but its laws need the Lieutenant-Governor's assent.
- Talks run through a High Powered Committee set up in 2023 with the Leh Apex Body and Kargil Democratic Alliance.
- How to use this
Use the framework to explain how the Centre has answered the Sixth Schedule demand with a different constitutional model.
- Ladakh's groups demand statehood and Sixth Schedule status; the Centre has offered a UT-level elected body under a new Article 371(K).
- The plan needs a constitutional amendment and then a regulation under Article 240.
- The existing Leh and Kargil hill councils are statutory bodies, not Sixth Schedule councils.
The Fifth and Sixth Schedules protect Scheduled Tribes; Ladakh's groups want the Sixth Schedule extended to them.
Mains practice question
The Centre's proposed framework for Ladakh offers an elected body but keeps the final word with the Lieutenant-Governor. Discuss the constitutional options for Ladakh and the concerns they raise. (250 words)
Model answer
Ladakh has been a Union Territory (UT) without a legislature since 31 October 2019. The MHA's October 2026 framework offers a directly elected UT-level body, but its laws would need the Lieutenant-Governor's (L-G's) assent.
Constitutional options
- Article 240 route: the President already makes regulations for Ladakh (2025 regulations on jobs, domicile, languages, women's seats in hill councils). The framework plans an amendment followed by an Article 240 regulation.
- Article 371(K): proposed on 9 September 2026, modelled on Articles 371 to 371J that protect customs and land in 12 States, such as Article 371A for Nagaland.
- Sixth Schedule: demanded by the LAB and KDA; it gives autonomous councils law-making powers in Assam, Meghalaya, Tripura and Mizoram.
- UT with legislature or statehood: the Puducherry model or a State, which Ladakh's Chief Secretary has said is not on offer.
Concerns
- Final word with the L-G: the groups say a body whose laws need L-G approval is not a real legislature, and that the draft breaks the 22 May understanding.
- Open design questions: delimitation by population or area, electoral rolls, a women's share of one-third to 50%, nominated members.
- Overlap with LAHDCs: the statutory hill councils of Leh and Kargil need a clear division of powers.
- Security: Ladakh borders China and Pakistan, so control over administration and security is sensitive.
Way forward
- Settle the open questions by consensus before drafting the amendment.
- Give the body clear protected subjects such as land and culture, with L-G assent limited to defined grounds.
- Give the LAHDCs constitutional status with defined functions.
Ladakh can show how asymmetric federalism balances regional identity with national security, if the elected body has real powers.
The basics
Why this matters
Ladakh is the only Union Territory (UT) created in 2019 without any legislature. The Centre and Ladakh's two main coalitions are now negotiating what elected body it should get, and with what powers. The answer will test how flexible Indian federalism is.
How a UT is governed
Under Article 239, every UT is administered by the President through an administrator, who in some UTs is called the Lieutenant-Governor (L-G). Puducherry, Delhi and Jammu and Kashmir have legislatures. Ladakh does not. For a group of UTs, Article 240 adds a second tool: the President can make regulations for their "peace, progress and good government", and such a regulation can repeal or amend an Act of Parliament that applies there. In 2025 the President used this route for Ladakh, for example to reserve one-third of seats in the hill councils for women.
- Elected Assembly passes laws
- Administrator's assent needed
- Article 240 regulations only when the Assembly is dissolved or suspended
- No elected law-making body
- Parliament legislates
- President can make Article 240 regulations
What the Centre has proposed
The MHA framework, shared with the Leh Apex Body (LAB) and Kargil Democratic Alliance (KDA) on 16 October 2026, plans a directly elected UT-level body. It would be created in two stages: a constitutional amendment first, then a regulation under Article 240. As reported on 21 October, laws made by the body would need the L-G's assent, and the L-G would have the final word. On 9 September the MHA had floated a new Article 371(K).
- 1ConsultationLAB, KDA and the MHA settle open questions such as seats, rolls and women's share
- 2Constitutional amendmentParliament amends the Constitution, needing a special majority
- 3Article 240 regulationThe President makes a regulation that fills in the body's design
- 4Elected body worksIts laws take effect only with the L-G's assent
The competing demands
The LAB and KDA have long asked for statehood and inclusion in the Sixth Schedule, which gives tribal areas in four north-eastern States autonomous councils with law-making powers. The Centre has instead offered a tailored model. The groups say the draft departs from a 22 May understanding that the minimum would be a UT with an elected legislature. One open question is whether the statutory Ladakh Autonomous Hill Development Councils should get constitutional status.
- 31 October 2019Ladakh becomes a UT without a legislature
- 2023MHA sets up a High Powered Committee for talks
- 2025Presidential regulations on jobs, domicile, languages and women's seats in hill councils
- 22 May 2026MHA and Ladakh groups reach an understanding on an elected body
- 9 September 2026MHA proposes Article 371(K)
- 16 October 2026MHA shares its written framework
Go deeper
Why it matters for UPSC
It joins three syllabus threads: UTs and their administration (Articles 239 and 240), special provisions for regions (Article 371 series) and tribal autonomy (Sixth Schedule). Mains questions on asymmetric federalism and on the Sixth Schedule demand for Ladakh have already been asked.
The core idea
Ladakh has no legislature. The President can make laws for it by regulation under Article 240 and presidential regulations. The Centre now proposes a new elected body set up through a constitutional amendment, possibly a new provision in the Article 371 special provisions series, followed by an Article 240 regulation. Ladakh's groups had wanted the Sixth Schedule and statehood. The existing Ladakh Autonomous Hill Development Councils would have to fit beside the new body.
Numbers and dates to remember
- 31 October 2019: Ladakh becomes a UT without a legislature.
- 2023: MHA sets up a High Powered Committee.
- 9 September 2026: MHA proposes Article 371(K).
- 15 to 16 October 2026: talks in Leh; framework shared.
- Women's seats under discussion: one-third to 50%.
- Hill councils: one-third seats reserved for women by a 2025 regulation.
Where to go next
- Article 240 and presidential regulations: the power that already lets the President make laws for Ladakh
- Article 371 special provisions: the series the Centre wants to extend with Article 371(K)
- Sixth Schedule: what Ladakh's groups asked for, and how it differs
- Ladakh Autonomous Hill Development Councils: the local bodies the new body must sit beside
Go deeper: an elected body without the last word?
The case for the Centre's design. Supporters note that Ladakh is a sensitive border region next to China and Pakistan. Every UT is administered by the President through an administrator (Article 239), so L-G assent is consistent with how UTs work. Using Article 240 and presidential regulations after an amendment also allows a design tailored to Ladakh rather than a copy of a State.
The case of Ladakh's groups. The LAB and KDA say a body whose laws need the L-G's approval is not a real legislature. They point to the 22 May understanding that the minimum would be a UT with an elected legislature. They wanted the Sixth Schedule, under which autonomous councils make laws on land, forests and customs, though even those laws need the Governor's assent.
The middle path. The Article 371 special provisions model shows how the Constitution protects regional identity without statehood: Article 371A, for example, says no Act of Parliament on Naga customary law or land applies to Nagaland unless its Assembly agrees. A Ladakh provision could similarly protect land, culture and jobs while the L-G keeps the final word on other matters.
What to watch. How seats are drawn (population, area or both), which rolls are used, the women's quota, nominated members, and whether the Ladakh Autonomous Hill Development Councils get constitutional status.
Article 240 and presidential regulations
The power that already lets the President make laws for Ladakh
In one line: Article 240 lets the President make regulations for the peace, progress and good government of certain Union Territories, and such regulations have the force of an Act of Parliament.
What it says
Article 240(1) lists UTs such as the Andaman and Nicobar Islands, Lakshadweep, and Dadra and Nagar Haveli and Daman and Diu. For Puducherry, the power can be used only when its Assembly is dissolved or its functioning suspended. Article 240(2) says a regulation may repeal or amend any Act of Parliament or other law that applies to the UT, and has the same force as an Act of Parliament.
Why it is in the news
In 2025 the President made regulations for Ladakh on local job reservation, domicile, official languages and one-third reservation for women in the hill councils. The MHA's new framework plans to use another Article 240 regulation, after a constitutional amendment, to set up Ladakh's elected body.
Where to go next
Article 371 special provisions
The series the Centre wants to extend with Article 371(K)
In one line: Articles 371 to 371J are special provisions for particular States, protecting regional interests, customs or development needs without changing their status as States.
What the series covers
Article 371 itself covers Maharashtra and Gujarat (development boards). Article 371A protects Naga religious and social practices, customary law and land: no Act of Parliament on these applies to Nagaland unless its Assembly decides so. Article 371G does the same for Mizoram. Others cover Assam, Manipur, Andhra Pradesh and Telangana, Sikkim, Arunachal Pradesh, Goa and Karnataka. In all, 12 States are covered.
Why it is in the news
On 9 September 2026 the MHA proposed a new Article 371(K) for Ladakh, giving a UT-level elected body powers over land, culture, forests and the environment. It would be the first such provision for a Union Territory and would need a constitutional amendment.
Where to go next
Sixth Schedule
What Ladakh's groups asked for, and how it differs
In one line: The Sixth Schedule, applied through Articles 244(2) and 275(1), sets up autonomous district and regional councils for tribal areas in Assam, Meghalaya, Tripura and Mizoram.
How it works
The autonomous councils can make laws on subjects such as land, forests (other than reserved forests), inheritance, marriage and social customs, run village courts and collect some taxes. Their laws need the Governor's assent. No area outside these four north-eastern States is covered.
Why it is in the news
The LAB and KDA have demanded Sixth Schedule status for Ladakh, along with statehood. The Centre has instead offered a tailored framework with an elected UT-level body and special safeguards.
Where to go next
Ladakh Autonomous Hill Development Councils
The local bodies the new body must sit beside
In one line: The Leh and Kargil hill councils are statutory bodies under the Ladakh Autonomous Hill Development Council Act, 1997, with development but no law-making powers.
What they are
The councils were created under a law of the former State of Jammu and Kashmir. They plan and carry out local development in Leh and Kargil districts. They are not constitutional bodies and are not under the Sixth Schedule. A 2025 presidential regulation amended the 1997 Act to reserve one-third of the seats in the councils for women.
Why they are in the news
The MHA framework asks whether the councils should get constitutional status, and how their powers should be divided with the new UT-level body. Ladakh's groups see the division of powers as a key unresolved issue.
Where to go next
Ladakh Autonomous Hill Development Councils: every story that connects to it (2)
Take the 21 October 2026 quiz: 30 Prelims-style questions with answers