The competitive disruptions of Parliament by both the Opposition and the Treasury benches, made the recently-concluded winter session of the legislature a travesty. 

About Parliamentary Disruption

• Parliamentary disruptions refer to actions that obstruct legislative proceedings, such as shouting slogans, entering the well of the House, and showing placards. 
• Legitimate protests like walkouts do not fall under disruptions. 
• These have become increasingly common in Indian Parliament, affecting legislative efficiency and democratic processes​.

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Key Statistics on Disruptions 

17th Lok Sabha (2019-2024)

• Sittings and Productivity: The 17th Lok Sabha held 274 sittings, averaging 55 days per year—the lowest in parliamentary history. 
  • It functioned for 88% of its scheduled time, while the Rajya Sabha worked for 73%.
• Disruptions and Suspensions: There were 206 instances of MPs being suspended across both Houses due to serious misconduct. 
  • In the Winter Session of 2023 alone, 146 MPs faced suspension.
• Question Hour: Question Hour functioned for 60% of its scheduled time in the Lok Sabha and 52% in the Rajya Sabha. 
  • Only 24% of questions listed for oral responses were answered by ministers in the Lok Sabha, and 31% in the Rajya Sabha.
• Legislative Business: Approximately 58% of bills were passed within two weeks of introduction, with 35% discussed for less than an hour in the Lok Sabha. 
  • Notably, 80% of the budget was passed without discussion, with the entire budget for 2023 approved without any debate.

18th Lok Sabha (2024-Present)

• Winter Session 2024: The Lok Sabha functioned for only 52% of its scheduled time, while the Rajya Sabha operated at 39%, both experiencing frequent disruptions. 
  • Question Hour did not function for 15 out of 19 days in the Rajya Sabha and for more than 10 minutes on 12 out of 20 days in the Lok Sabha, undermining legislative scrutiny.
• Legislative Output: Only one bill, the Bharatiya Vayuyan Vidheyak, 2024, was passed from parliament during this session, marking the lowest legislative productivity in the last six Lok Sabha terms. 
  • Additionally, no private members’ business was conducted in the Lok Sabha due to disruptions.
• Deputy Speaker Vacancy: The 18th Lok Sabha continued without electing a Deputy Speaker since 2019, violating constitutional mandates for timely appointments.

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Reasons for disruptions

• Discussion on matters of controversy and public importance: Intense ideological and political differences between ruling and opposition parties often lead to confrontations.
  • Disruptions over the Adani Group allegations in the Winter Session 2024.
• Rushed Legislation: Over 35% of bills introduced in the 17th Lok Sabha were passed in less than an hour of debate.
  • The Farm Laws were repealed in November 2021 without a detailed discussion, reflecting a trend of hurried decision-making.
• Ruling Party Evading Responsibility: Disruptions can sometimes be tactically advantageous for the ruling party to avoid addressing contentious questions or policy failures.
  • Question Hour during the Monsoon Session 2023 was frequently disrupted, limiting scrutiny of government actions.
• Reduced Number of Sittings: Parliament’s average annual sitting days down to 55 in the 17th Lok Sabha, compared to 120-140 days in the 1950s.
  • The monsoon and winter sessions have increasingly shorter durations, limiting time for meaningful debate.
• Limited Role of Opposition: Opposition MPs were suspended en masse during the Winter Session 2024, further polarizing parliamentary proceedings.
  • Without adequate time or space for dissent, debates devolve into confrontations.
• Weak Enforcement of Rules: Despite persistent disruptions, rule enforcement remains inadequate. 
  • For example, despite multiple suspensions in Winter Session 2024, disruptions continued unabated, undermining parliamentary discipline.
• Dominance of Executive Over Legislature: The Prime Minister rarely attends parliamentary debates, unlike earlier practices, reflecting a declining emphasis on deliberative discussions.
  • Bills are frequently passed without thorough debate, as seen with the hurried approval of critical amendments.
• Party Loyalty and Whip System: MPs disrupt proceedings under party instructions, reflecting collective political strategies.
  • Coordinated disruptions by opposition MPs over GST issues.
• Electoral Influence: Approaching elections can incentivize MPs to disrupt proceedings as a strategy to gain public attention and connect with voters.
  • Politicians raising state-specific issues or staging protests on the floor of the House to highlight their stance ahead of elections.

Role of the Presiding Officer in Case of Disruptions

• Maintaining Order: The Presiding Officer (Speaker in Lok Sabha, Chairman in Rajya Sabha) is responsible for ensuring orderly conduct during proceedings.
  • The Speaker can call for the withdrawal of unruly MPs to restore decorum in the House.
• Authority to Suspend Members: The Presiding Officer can suspend MPs for persistent disruption under the rules of the House.
  • Rule 374A of the Lok Sabha allows the Speaker to suspend members for five consecutive sittings or the remainder of the session if they cause grave disorder by entering the well of the House or shouting slogans.
• Power to Adjourn the House: When disruptions become uncontrollable, the Presiding Officer may adjourn proceedings temporarily or for the entire day.
  • During the Winter Session 2024, multiple adjournments were declared by the Speaker due to protests over the Adani Group allegations.
• Role in Mediating Disputes: The Presiding Officer acts as a mediator between opposing parties to resolve conflicts and resume proceedings.
  • The Speaker often holds discussions with party leaders to reach a consensus on contentious issues.
• Implementing Codes of Conduct: The Presiding Officer ensures adherence to the parliamentary code of conduct and etiquette.
  • MPs are directed not to obstruct proceedings, shout slogans, or enter the well of the House.
• Enforcing Rules of Procedure: The Presiding Officer interprets and enforces rules to handle disruptions effectively.
  • Points of order raised by MPs during disruptions are addressed based on established parliamentary procedures.
• Promoting Bipartisanship: The Presiding Officer encourages bipartisan dialogue to facilitate meaningful debates and discussions.
  • Convening all-party meetings to resolve deadlocks and ensure smooth functioning of the House.

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Impact on Democracy

• Erosion of Public Trust: Frequent disruptions and inefficiencies in parliamentary proceedings have led to diminished public confidence in the institution. 
  • Social media often criticizes Parliament for prioritizing partisan theatrics over meaningful debates, alienating citizens from democratic processes.
• Decline in Legislative Quality: Rushed legislation without thorough debates compromises the quality of laws. 
  • Over 35% of bills in the 17th Lok Sabha were passed in less than an hour, undermining the scrutiny essential for effective governance.
• Declining Productivity of Lagislatures: The Budget Session 2024 recorded only 45% productivity in the Lok Sabha and 31% in the Rajya Sabha.
  • Key legislation and discussions on national issues were postponed or passed without adequate debate.
• Weakening of Accountability: Disruptions during Question Hour limit the opportunity for MPs to hold the government accountable.
  • In the Monsoon Session 2023, Question Hour functioned for less than 15 minutes on several days, leaving critical governance issues unaddressed.
• Wastage: Each minute of parliamentary proceedings costs approximately ₹2.5 lakh.
  • The Winter Session 2024 disruptions led to over ₹90 crore in losses due to unproductive hours.
• Polarization of Politics: The limited role of the opposition and frequent confrontations in Parliament deepen political divides. 
  • Mass suspensions of opposition MPs in the Winter Session 2024 created a hostile environment, reducing the scope for collaborative policymaking.
• Executive Dominance: The increasing tendency to bypass parliamentary debates undermines the legislature’s role as a check on executive power.
  • The hurried repeal of the Farm Laws in November 2021 highlighted the dominance of the executive over legislative deliberation.
• Disengagement of Citizens: The perception of inefficiency and theatrics in Parliament dissuades public engagement with democratic institutions.
  • Reduced voter enthusiasm and declining trust in elected representatives can weaken the democratic fabric in the long term.

Comparisons with Other Parliaments of the World

• Number of Sitting Days
  • United Kingdom: The UK Parliament sits for over 170 days a year, with structured debates on opposition and government business.
  • Canada: The Canadian Parliament meets for around 127 days annually, including specific days for opposition-led discussions.
• Role of Opposition
  • United Kingdom: The main opposition party gets 20 days annually to decide the parliamentary agenda, fostering more constructive engagement.
  • Canada: Opposition parties are allocated “Opposition Days” to set the agenda and debate key issues.
• Debates and Deliberations
  • Germany: The Bundestag (Parliament) emphasizes detailed and transparent debates, often broadcast live to engage citizens.
• Legislative Productivity
  • United States: The U.S. Congress uses committees extensively to deliberate on bills before introducing them on the floor, ensuring robust scrutiny.
• Question Hour
  • Australia: The Australian Parliament dedicates “Question Time,” ensuring ministers answer questions directly from MPs, promoting transparency.
• Enforcement of Discipline
  • United Kingdom: MPs engaging in disorderly conduct are quickly suspended or reprimanded by the Speaker.
• Citizen Engagement
  • South Africa: The National Assembly uses digital platforms to engage citizens directly and promotes transparency in legislative processes.

Way Forward

• Structural Reforms: Increasing the number of parliamentary working days to ensure sufficient time for debates and discussions is essential. 
  • A fixed annual calendar for sessions should be announced to prevent ad hoc curtailments​.
• Legislative Reforms: Strictly enforce parliamentary rules, including suspension of MPs for unruly behavior and disruptions.
  • Rules should guarantee the discussion of motions supported by a certain percentage of MPs.
  • Inadequate enforcement leads to repeated disruptions; adopting practices from the UK and Australia can enhance discipline.
• Accountability Measures: Introducing a Parliamentary Disruption Index to track and monitor disruptions would help increase accountability. 
  • Additionally, deducting salaries of MPs causing frequent disruptions can act as a deterrent​.
  • A “Productivity Meter” could track the number of hours lost to disruptions and adjournments, monitoring the daily productivity of both Houses of Parliament.
• Empower the Opposition: Allocate specific days for opposition-led debates, as practiced in the UK (20 Opposition Days annually).
  • Structured opportunities for opposition can reduce disruptions and foster more constructive discussions.
• Improve Legislative Scrutiny: Enhance the role of parliamentary committees in examining bills before they are introduced on the floor.
  • The U.S. Congress uses committees effectively, ensuring bills are well-prepared and reducing rushed legislation.
• Revive Public Trust: Focus on meaningful debates and transparency by prioritizing public-interest issues over partisan theatrics.
  • Engaging citizens through transparent debates and better media portrayal can rebuild confidence in parliamentary institutions.
• Ensure Effective Use of Question Hour: Safeguard Question Hour from disruptions and ensure ministers provide detailed answers.
  • Question Hour is a vital accountability mechanism; its frequent disruptions weaken Parliament’s oversight function.
• Technological Interventions: Leveraging artificial intelligence to analyze trends in disruptions and improve accountability can enhance the efficiency of parliamentary proceedings.
  • AI tools can be used to monitor MPs’ behavior and assess productivity, providing data-driven insights for reforms.

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Conclusion

Revival of parliamentary dignity and deliberative practices is essential to restore its role as the cornerstone of democracy. Mutual trust, enforcement of rules, and public accountability are crucial for reversing the decline.

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