5th Schedule of the Indian Constitution: Key Provisions
Gajendra Singh Godara
Nov 6, 2025
10
mins read
The Fifth Schedule of the Indian Constitution provides special provisions for administering Scheduled Areas, regions with tribal populations. It is crucial for protecting tribal land, culture and governance. This article explains what the Fifth Schedule is, how areas get notified under it, its main provisions (like the roles of the President, Governor and the Tribal Advisory Council), the states it covers, and its significance and challenges.
Constitutional Framework for the Administration of Scheduled Areas and Tribes
Scheduled Areas and Tribes in states excluding Assam, Meghalaya, Tripura and Mizoram are governed by Fifth Schedule as per Article 244(1). Scheduled Areas means such areas as the President may by order declare to be Scheduled Areas.
Article 339(1) mandates the President to constitute a commission to examine tribal welfare and according to Article 339(2) the Union can issue orders to the state governments concerning tribal development plans. Thus, the Fifth Schedule serves as the constitutional safeguard for the protection and management of tribal regions in the states mentioned within the provision.
Criteria for Declaring an Area as a ‘Scheduled Area’
The Constitution does not set any rigid standards for designating a Scheduled Area. The 1960-61 Dhebar Commission (which functioned under Article 339) suggested four primary considerations:
the region should have a significant tribal demographic,
the region should be somewhat cohesive,
the region should be economically underdeveloped, and
the region should have glaring inequalities in comparison to surrounding regions.
Generally, this implies that the region under consideration should be primarily tribal and constitute a significant administrative unit, such as a district or block.
Major Provisions Under the 5th Schedule of the Constitution
Declaration of Scheduled Areas: The President may notify by order that any area (or part of it) shall be a Scheduled Area, and may also increase or decrease a Scheduled Area. Increases require consultation with the State’s Governor; boundary changes can only be made by rectification.
Executive Powers: A State’s government has authority in its Scheduled Areas, but the Governor must report annually to the President on their administration. The Union Government can also give directions to States for the administration of tribal welfare.
Tribes Advisory Council (TAC): Each State with Scheduled Areas must have a TAC to advise on tribal welfare. The TAC can have up to 20 members (about three-fourths must be tribal legislators from that State). The Governor frames TAC rules and may refer welfare matters to it; the TAC’s duty is to advise on issues referred by the Governor.
Laws Applicable to Scheduled Areas The Governor may direct that any particular Act (Central or State) does not apply to a Scheduled Area or applies with exceptions. Under paragraph 5 of the Schedule, the Governor can also make regulations for the “peace and good government” of these areas. Such regulations may forbid the transfer of tribal land outside the tribe, regulate allotment of land to tribals, and control money-lending to tribals.
PESA (1996):The Panchayats (Extension to Scheduled Areas) Act extends Part IX (Panchayats) to Scheduled Areas with tribal safeguards. It empowers village Gram Sabhas in Scheduled Areas and requires that laws respect tribal customs and governance.
States under the 5th Schedule of the Indian Constitution
Scheduled Areas have been notified in ten states:
Andhra Pradesh
Telangana
Chhattisgarh
Gujarat
Himachal Pradesh
Jharkhand
Madhya Pradesh
Maharashtra
Odisha
Rajasthan
These areas cover about 11.3% of India’s land and contain about 5.7% of the population (roughly 35% of India’s tribal population) based on the 2011 Census. However, Over 59% of India's tribal population lives outside of these designated areas and are not protected by the special laws that apply to Scheduled Areas – for example, tribal areas in Karnataka or West Bengal are not covered. Notably, states with no Scheduled Areas (West Bengal, Tamil Nadu and Uttarakhand) have still set up TACs for their tribal communities.
Significance of the 5th Schedule
The Fifth Schedule is significant because:
It acknowledges the special needs and rights of the tribal communities. It also stresses the fact that these needs can be different from the mainstream.
It aims to safeguard tribal land rights, cultural identity and self-governance.
The Supreme Court ruled in Samatha Judgement (1997) that transferring tribal land in a Scheduled Area to non-tribals violates the Constitution.The Niyamgiri case (2013) upheld the right of Gram Sabhas (tribal village councils) to decide on tribal land use. These protections illustrate the Schedule’s importance for social justice and good governance.
Issues and Challenges in the Implementation of the Fifth Schedule
Even with good intentions, the Fifth Schedule is met with various troubles when implemented:
Limited power of Tribes Advisory Councils (TACs):
TACs, unlike Autonomous District Councils (ADCs) under the Sixth Schedule, have minimal power. They only advise state governments, and have no power to enforce any of their suggestions. This lack of decision-making power hinders self-governance at the tribal level.
TAC Composition:
Although three-fourths of the members of the TAC are to be from the Scheduled Tribes in the State Legislative Assembly, the remaining one-fourth of the seats lack any appointment criteria. This absence of criteria often leads to politically motivated appointments rather than authentic tribal representation.
Ambiguity and Misuse of the Governor’s Discretionary Powers:
Under the Fifth Schedule, the Governor is bestowed with special powers to regulate order and good governance in the Scheduled Areas. Governors have executive discretion and independence to act, which is often lost when protected tribal interests are subject to political pressure, leaving Governors to act politically, rather than autonomously.
Loss of tribal land and encroachment:
Encroachment of tribal land remains a persistent issue. Non-tribals, private corporations and government initiatives encroach on tribal land. Displacement and exploitation of tribals remains common due to weak enforcement of land transfer laws.
State government dominance over the functioning of the TAC:
In a few states, instead of the Governor, rule and procedure making for the TAC falls to the state government which doesn't align with the Constitution. This can allow the ruling political governments to influence TAC decisions, impacting their neutrality.
Lack of implementation and awareness:
Some tribal communities have poor awareness of the Fifth Schedule, and their rights, which impacts their ability to hold the state accountable and shield them from exploitation.
Lack of coordination with other tribal development mechanisms:
The Fifth Schedule's provisions and other tribal development mechanisms, like the PESA Act (1996) and the Forest Rights Act (2006), are not adequately coordinated, which results in overlapping responsibilities and unclear governance.
Monitoring and review:
Tribal Advisory Councils (TAC) meet rarely and in no state is there systematic assessment of implementation of provisions of the Fifth Schedule.
Measures for Effective Implementation of the 5th Schedule
To improve the situation:
Institutional mechanisms must be strengthened. TACs and Gram Sabhas should be empowered with resources and awareness so that tribal communities can truly participate in decisions.
Development programs in Scheduled Areas need to be tailored to tribal needs, with adequate infrastructure, education and healthcare.
Financial measures help: for example, a 2013 panel of state governors recommended that tribal development funds be made non-transferable, and all tribal-majority districts be flagged as high priority.
Building the capacity of tribal leaders for local governance and shifting policies from mere welfare toward empowerment are also important.
Overall, the Fifth Schedule is a vital constitutional tool to safeguard India’s tribal areas and rights. However, legal provisions alone are not enough – their real impact depends on effective enforcement and tribal participation. Aspirants should note that understanding the Fifth Schedule means learning both its provisions and the on-the-ground realities of tribal governance. This topic connects to broader themes of tribal rights, good governance and the federal system, making it important for UPSC study.
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