Cabinet Committees and Groups of Ministers in India (GoMs): Streamlining Governance and Decision-Making

Cabinet Committees and Groups of Ministers (GoMs) are essential tools in India’s governance. They help streamline decision-making by addressing specific policy issues and ensuring effective coordination among ministries. Formed by the Prime Minister, these groups enhance the government’s ability to implement policies efficiently. Their structured approach supports a well-organized Cabinet, enabling better management of complex tasks.

Navigating Governance: The Role and Impact of Cabinet Committees and Groups of Ministers in India

Features of Cabinet Committees

• Established by the Prime Minister: The Prime Minister establishes Cabinet Committees based on the current needs and demands of the situation, leading to variations in their number, names, and composition over time.
• Constitutional Status: Cabinet Committees emerge outside the constitutional framework, not explicitly mentioned in the Constitution. 
  • Their establishment, however, is provided for in the Rules of Business.
• Organizational Purpose: Cabinet Committees function as organizational tools to alleviate the extensive workload of the Cabinet. 
  • They enable in-depth examination of policy matters and promote effective coordination, aligning with the principles of division of labor and efficient delegation.
• Types of Committees: Cabinet Committees fall into two categories: standing and ad hoc. 
  • Standing committees are permanent, while ad hoc committees are temporary and form as needed, disbanding upon completing specific tasks.
• Membership Composition: Membership typically ranges from three to eight members, primarily comprising Cabinet Ministers. 
  • Non-Cabinet Ministers are not excluded from participation.
• Inclusive Representation: Cabinet Committees include not only Ministers responsible for relevant subjects but also other senior Ministers.
• Leadership Dynamics: While predominantly chaired by the Prime Minister, other Cabinet Ministers, such as the Home Minister or Finance Minister, may act as Chairman. 
  • If the Prime Minister is a member, he presides over the committee.
• Decision-Making Authority: Cabinet Committees not only address issues and propose considerations to the Cabinet but also possess decision-making authority. 
  • However, the Cabinet retains the power to review their decisions.

List of Cabinet Committees

Cabinet Committee on Political Affairs.

• Cabinet Committee on Economic Affairs.
• Appointments Committee of the Cabinet.
• Cabinet Committee on Security.
• Cabinet Committee on Parliamentary Affairs.
• Cabinet Committee on Accommodation.
• Cabinet Committee on Investment and Growth.
• Cabinet Committee on Employment and Skill Development.

Leadership of Cabinet Committees

• Prime Minister as Chair: All Cabinet Committees, except Accommodation and Parliamentary Affairs, are headed by the Prime Minister. 
• Home Minister’s Role: The Cabinet Committee on Accommodation is led by the Home Minister and the Cabinet Committee on Parliamentary Affairs is headed by the Defence Minister. 

Political Affairs Committee: The Super-Cabinet 

• The Political Affairs Committee is considered the most powerful among the Cabinet Committees, often called a Super-Cabinet.

Functions of Cabinet Committees

Cabinet Committee on Political Affairs (headed by PM):

• Addresses issues related to Centre-state relations.
• Examines political matters requiring a broader perspective but lacking internal or external security implications.

• Cabinet Committee on Economic Affairs (headed by PM):
  • Reviews economic trends and problems, shaping a consistent and integrated economic policy.
  • Coordinates activities requiring high-level policy decisions.
  • Deals with pricing of agricultural produce, essential commodities, investment proposals exceeding Rs 1,000 crore, industrial licensing policies, rural development, and the Public Distribution System.
• Appointments Committee of the Cabinet (headed by PM):
  • Makes appointments to top military positions, chiefs of Air and Army Commands, and key defence-related positions.
  • Decides on important empanelments and shifts of officers on Central deputation.
• Cabinet Committee on Security:
  • Addresses law and order, internal security, and policy matters in foreign affairs with security implications.
  • Considers capital defense expenditure exceeding Rs 1,000 crore.
  • Reviews issues related to the Department of Defence Production, Department of Defence Research and Development, and procurement of security-related equipment.
• Cabinet Committee on Parliamentary Affairs:
  • Formulates Parliament session schedules.
  • Monitors government business progress, scrutinizes non-government business, and decides on official Bills and resolutions.

• Cabinet Committee on Accommodation:
  • Determines guidelines for government accommodation allotment.
  • Decides on allotment to non-eligible persons, rent charges, and allocation from the General Pool to Members of Parliament.
  • Considers proposals for relocating Central Government Offices.
• Cabinet Committee on Investment and Growth:
  • Identifies key projects for time-bound implementation involving investments of Rs 1,000 crore or more.
  • Prescribes time limits for approvals and clearances, monitoring project progress.
• Cabinet Committee on Employment and Skill Development:
  • Directs policies, programs, and initiatives for skill development to enhance workforce employability.
  • Works towards closing gaps between skill availability and sector requirements.
  • Sets targets for speedy implementation and periodically reviews progress. 

Advantages of Cabinet Committees

Policy Examination and Coordination: Facilitates a thorough examination of policy issues and enhances coordination for more informed decision-making.

• Division of Labor: Operates on the principle of division of labor, ensuring the efficient utilization of human resources with specialized expertise.
• Safeguarding Collective Responsibility: Plays a crucial role in safeguarding the principle of collective responsibility, ensuring decisions are collectively owned by the Cabinet.
• Utilization of Ministerial Expertise: Facilitates the utilization of ministerial expertise by providing a platform for focused discussions and decision-making.
• Time Efficiency: Economises the valuable time of the Cabinet by handling specific issues in a focused manner.
• Enhanced Coordination: Promotes inter-governmental and inter-departmental coordination, ensuring a cohesive approach to complex matters.
• Effective Deliberation: Allows for more effective deliberation due to the smaller size of the committees, fostering in-depth discussions.
• Checks Arbitrary Actions: Acts as a check on arbitrary actions by ministers, ensuring decisions are well-considered and collectively agreed upon.
• Workload Reduction: Established to alleviate the workload of Cabinet Ministers, allowing them to concentrate on critical matters.

Critique of Cabinet Committees

Trivial Issue Establishment: Occasionally, they are instituted to address trivial issues, raising concerns about the allocation of resources and attention.

• Under-representation of Junior Ministers: Junior ministers are seldom appointed to these committees, limiting the diversity of perspectives and expertise.
• Irregular Meeting Schedule: Meetings are not consistently held, potentially hindering timely decision-making and action on critical matters.
• Political Considerations in Memberships: Memberships often depend more on political considerations than merit, potentially compromising the effectiveness of the committees.
• Over Reliance on Prime Minister’s Involvement: Excessive involvement of the Prime Minister in every Cabinet Committee may raise concerns about the distribution of decision-making responsibilities and potential bottlenecks.

Group of Ministers

Definition of Group of Ministers (GoM): “Group of Ministers” (GoM) in India refers to a temporary and ad-hoc committee of ministers formed by the Cabinet for the purpose of examining specific issues or policies that require in-depth analysis and consideration. 

• Purpose and Function: The Group of Ministers is tasked with studying and providing recommendations on the particular matter assigned to them.
• Role in Coordination: Group of Ministers (GoMs) has emerged as a practical and efficient tool for fostering coordination among ministries. 
• Formation and Dissolution: These bodies are established to provide recommendations to the cabinet on urgent matters and critical problem areas. 
  • Ministers in charge of the relevant ministries are appointed to the respective GoMs, and once their advice is formalised, the groups are dissolved.

Features of Group of Ministers

Task-Specific Formation: GoMs are established to address a particular task or national issue that necessitates collaborative decision-making involving multiple ministries.

• Temporary Nature: These are temporary entities that disband upon the completion of their assigned task.
• Variable Membership: The number of members in a GoM may vary, depending on the nature of the issue and the involvement required from different ministries.
• Leadership by Cabinet Minister: Typically, a senior cabinet minister, possessing expertise in the relevant subject, chairs GoMs.
• Implementation of Decisions: Decisions made by GoMs are generally implemented by the concerned ministries and departments.
• Formation Basis: The establishment of a GoM is typically based on recommendations from the concerned minister or department or at the direction of the Prime Minister.
• Accountability to Prime Minister and Cabinet: GoMs are accountable to the Prime Minister and the Cabinet for their actions.
• Periodic Reporting: GoMs may be required to provide regular reports on the progress of their work to the Cabinet or the Prime Minister.

Functions of Group of Ministers

Policy Analysis and Recommendations: Analyzing and offering recommendations on specific policy issues that demand inter-ministerial coordination and decision-making.

• Resolution of Inter-Ministerial Conflicts: Resolving conflicts between different ministries or departments regarding significant policy matters and proposing solutions for their resolution.
• Examination of Security and Defense Issues: Examining and suggesting approaches to address matters related to law and order, internal security, and national defense.
• Performance Evaluation and Recommendations: Reviewing and assessing the performance of various government programs and policies and recommending changes or enhancements as necessary.
• Expert Advice on Specialized Issues: Providing expert advice and guidance on specific issues and challenges that demand in-depth knowledge and expertise.

2nd Administrative Reforms Commission Recommendations related to GoMs

• Observations on GoM Functioning: The Second Administrative Reforms Commission (2005–2009) offered observations and suggestions regarding the functioning of GoMs:
  • Challenges in Regular Convening: The Commission noted that the formation of a large number of GoMs has resulted in many being unable to convene regularly, causing substantial delays in addressing crucial issues.
• Suggestions for Enhanced Coordination: The Commission suggested that a more judicious use of GoMs might enhance coordination, especially if they are granted the authority to make decisions on behalf of the Cabinet within prescribed time limits for completing their assigned tasks.
• Recommendations for Effective Functioning: The Commission recommended the need to ensure the effective functioning of the existing coordination mechanism of GoMs, emphasizing the importance of selective but impactful use of GoMs with a clear mandate and specified time limits to aid in the timely resolution of issues.

Extent of Executive Power of The Union

• Overview of Article 73: Article 73 of the Constitution of India delineates the extent of the executive power vested in the Union. According to Article 73(1), the executive power of the Union extends to:
  • Legislative Competence: Matters falling within the legislative competence of Parliament as specified in the Union List of the Seventh Schedule.
  • Treaty and Agreement Authority: The exercise of rights, authority, and jurisdiction by the Government of India as per any treaty or agreement.
• Limitations on Executive Power: It is noteworthy that the executive power mentioned in first sub-clause does not extend to any matters over which the State Legislature possesses the authority to legislate, except as expressly provided in the Constitution or any law enacted by Parliament.
• Retention of Executive Functions (Article 73(2)): Additionally, as per Article 73(2), until Parliament determines, a State and its officers retain the ability to exercise executive power or functions in areas within the legislative purview of Parliament, which the State or its entities could perform immediately before the commencement of the Constitution.

Conclusion

Cabinet Committees play a vital role in the Indian government’s decision-making process by facilitating thorough examination of policy issues and enhancing inter-departmental coordination. 

• While they provide numerous advantages, including efficient resource utilization and improved policy deliberation, they also face criticisms such as irregular meetings and potential political bias. 
• Overall, Cabinet Committees and Groups of Ministers (GoMs) are crucial in ensuring streamlined governance and effective policy implementation.

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