The National Council (Dzongkha: Gyelyong Tshogde) is the upper house of Bhutan's Parliament, composed of 25 members — 20 elected from the 20 dzongkhags and 5 eminent persons appointed by the King. Established by the 2008 Constitution as a non-partisan house of review, it scrutinizes legislation passed by the National Assembly.
The National Council of Bhutan (Dzongkha: Gyelyong Tshogde) is the upper house of the bicameral Parliament of Bhutan, established under the Constitution of Bhutan promulgated on 18 July 2008. The Council comprises 25 members: 20 elected on a non-partisan basis from each of the country's 20 dzongkhags (districts), and 5 eminent persons appointed by the Druk Gyalpo (King). Designed as a deliberative house of review, the National Council operates independently of party politics and serves as a check on the legislative output of the National Assembly.[1]
The creation of a non-partisan upper chamber was a distinctive feature of Bhutan's constitutional design, intended to ensure that at least one legislative body would deliberate on policy free from partisan considerations. The Council's members are expected to represent the interests of their dzongkhags and the nation as a whole, rather than any political party. This institutional design reflects the influence of Bhutan's Gross National Happiness philosophy, which emphasizes good governance and balanced decision-making.[1]
Historical Origins
The National Council's institutional predecessor was the Royal Advisory Council (Lodroe Tshogde), established by the Third King, Jigme Dorji Wangchuck, in 1965. The Royal Advisory Council served as an advisory body to the monarch and consisted of members elected by the National Assembly, representatives of the monastic body, and royal nominees. It functioned as a permanent body that met year-round, unlike the National Assembly, which convened only in annual sessions. The Council advised the king on legislation, policy, and administrative matters, and it had the authority to review petitions from citizens.[2]
When the Fourth King, Jigme Singye Wangchuck, initiated the drafting of the Constitution in 2001, the constitutional drafting committee — chaired by the Chief Justice of Bhutan — studied parliamentary systems worldwide. The resulting design drew on elements of the British House of Lords (as a reviewing chamber), the U.S. Senate (equal representation per district regardless of population), and the French Senate (indirect elections and appointed members), while incorporating uniquely Bhutanese features such as the non-partisan requirement.[3]
Composition and Election
The 20 elected members of the National Council are chosen through direct elections held on a non-partisan basis in each dzongkhag. Unlike National Assembly elections, candidates for the National Council may not belong to or be affiliated with any political party. This requirement is enforced by the Election Commission of Bhutan, which screens candidates for party affiliations. Each dzongkhag elects one member, regardless of its population size, giving equal representation to all districts.[1]
The 5 appointed members are nominated by the Druk Gyalpo and are intended to be eminent persons who bring specialized knowledge, experience, or expertise to the Council's deliberations. These appointees have included former civil servants, scholars, professionals, and individuals with distinguished records of public service. The appointed members serve under the same conditions as elected members and participate fully in all Council proceedings. Members serve five-year terms and may be re-elected or reappointed.[3]
To be eligible for election or appointment, a candidate must be a natural-born citizen of Bhutan, at least 25 years of age, registered as a voter, and hold a university degree. The eligibility requirements mirror those of the National Assembly, with the additional constraint that candidates must have no political party affiliation.[3]
Powers and Functions
The National Council's primary function is legislative review. Bills passed by the National Assembly are transmitted to the Council, which may approve them, reject them, or return them with recommendations. If the Council does not act on a bill within 30 days, it is deemed to have been passed. If the Council returns a bill with recommendations, a joint sitting may be called to resolve disagreements, though in practice the National Assembly can ultimately prevail by passing the bill again by simple majority.[3]
The Council has the power to initiate legislation on its own, except for money bills, which can only originate in the National Assembly. The Council may also propose amendments to the Constitution, though constitutional amendments require a three-fourths majority in a joint sitting of both houses. The Council plays a significant role in reviewing and recommending policies related to governance, public welfare, and national security.[1]
In addition to its legislative role, the National Council has oversight functions. It reviews reports from national audit authorities, the Anti-Corruption Commission, and other constitutional bodies. The Council may summon ministers and officials for questioning and conducts inquiries into matters of public concern. Its committees — including the Legislative Committee, the Economic Affairs Committee, the Social and Cultural Affairs Committee, and the Environment and Governance Committee — conduct detailed examinations of policy and legislation.[2]
Chairperson
The National Council elects a Chairperson and Vice-Chairperson from among its members to preside over sessions and represent the Council in official capacities. The Chairperson has a casting vote in the event of a tie and is responsible for maintaining the non-partisan character of the Council's proceedings. The Chairperson also represents the Council in joint sessions of Parliament and in official ceremonies.[2]
Non-Partisan Character
The non-partisan design of the National Council is one of its most distinctive features. Members campaign and serve as individuals, not as representatives of any political party. Debates in the Council are intended to be deliberative and consensus-oriented rather than adversarial. This design has drawn praise from governance scholars as an innovative mechanism for ensuring thoughtful legislative review. However, some observers have noted that in practice, informal alignments and personal relationships with political figures can influence Council members' positions, and the absence of party structures can make it difficult for voters to hold Council members accountable on policy grounds.[1]
References
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