India’s Parliamentary Committee System: Unveiling its origin, significance and challenges

The 18th Lok Sabha has been elected, but the formation of the Department-Related Parliamentary Standing Committees (DRSCs) has been delayed. Despite ongoing discussions and intense negotiations between the government and the opposition regarding the selection of members, these crucial committees are yet to be constituted.  

What are Committees of Parliament?

• Parliamentary Committee means a committee which is appointed or elected by the House or nominated by the Speaker and which works under the direction of the Speaker and presents its report to the House or to the Speaker and the Secretariat for which is provided by the Lok Sabha Secretariat.

The Need for Parliamentary Committees

• The primary role of Parliament is to legislate, but with 545 members in the Lok Sabha, the sheer size often hinders efficient functioning. During parliamentary sessions, debates can sometimes devolve into chaos, with MPs more focused on gaining media attention than engaging in substantive discussions. The adversarial nature of the relationship between the government and the opposition often leads to conflict, and when a bill is introduced, meaningful debate can be overshadowed by these dynamics.
• Parliamentary committees play a crucial role in addressing these challenges. Unlike the often chaotic environment of the Lok Sabha, committee meetings occur behind closed doors, allowing members to work collaboratively, irrespective of party affiliation. These committees provide a platform for focused, in-depth discussions that are not always possible in the full House.
• For instance, the budget, a critical piece of legislation, cannot always be thoroughly debated in the Lok Sabha due to time constraints or opposition boycotts. However, in committee rooms, every aspect of the budget is carefully scrutinised, with members considering each point in detail. This thorough review process ensures that the Parliament’s work is done effectively.

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Origins of the Parliamentary Committee System

• India’s modern parliamentary committee system, inherited from the British parliamentary model, has been adapted and refined to address the unique needs of Indian governance. Similar committee structures are also present in other democratic systems, such as the U.S. Congress. While our system has its roots in British practices, India has introduced innovations to better suit its local circumstances.
• The origins of the parliamentary committee system in India can be traced back to 1921 with the establishment of the Public Accounts Committee (PAC) under the Government of India Act, 1919. This was a significant step in developing a system for scrutinising government expenditures and ensuring financial accountability. 
• The standing advisory committees which were not elected by the people were abolished after the first Lok Sabha was elected in 1952. 

Financial Committees

• Public Accounts Committee (PAC): The PAC is responsible for examining and investigating the Comptroller and Auditor General’s (CAG) reports. It focuses on identifying financial irregularities and ensuring that government expenditures are justified and transparent. Traditionally, the chairperson of the PAC is from the opposition, often the leader of the opposition, reflecting the committee’s role in providing unbiased oversight.
• Estimate Committee: The Estimate Committee’s main function is to review the estimates presented in the budget. It assesses whether the estimates align with the government’s policies and suggests alternative approaches to enhance efficiency and cost-effectiveness. This committee plays a crucial role in refining budgetary allocations and ensuring that public funds are used judiciously.
• Committee on Public Undertakings: This committee reviews the performance of public sector undertakings (PSUs), such as ONGC and NTPC, to ensure they operate efficiently and effectively. It examines whether these organisations are facing issues like corruption or mismanagement and provides recommendations for improvement.

These committees, including the PAC, Estimate Committee, and Committee on Public Undertakings, are integral to the financial oversight and effective functioning of India’s parliamentary system. They embody the evolution and adaptation of inherited practices to meet the specific needs of Indian democracy.

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Other Committees

• Rules Committee: This existed before independence and continued even after India gained freedom. It is responsible for overseeing and recommending changes to parliamentary processes and house rules as needed.
• Business Advisory Committee: It is chaired by the Speaker of the Lok Sabha, this committee sets the daily agenda of the House. It determines the order of business, including which bills will be discussed and the time allocated for various stages of debate.
• Committee on Government Assurances: This committee monitors the fulfilment of promises made by ministers in the Lok Sabha and Rajya Sabha. It maintains a list of assurances and evaluates whether these commitments have been implemented, thereby ensuring ministerial accountability. 
• Business Advisory Committee and Committee on Government Assurance were the Indian innovations in parliamentary democracy. Another major landmark was the creation of the Committee on Public Undertakings during the third Lok Sabha. 

Expansion of the Committee System

The committee system in India saw significant expansion during the 1990s, marking a period of considerable development and enhancement in parliamentary oversight.

Establishment of Departmental-Related Standing Committees (DRSCs):

• Initial Expansion: In 1989, the Rules Committee approved the establishment of three Departmental-Related Standing Committees (DRSCs) focused on Agriculture, Science and Technology, and Environment and Forest. These committees were designed to provide continuous and detailed oversight of their respective ministries.
• Further Expansion: By 1993, the system was expanded to include 17 DRSCs, each comprising 45 members. This expansion aimed to improve the effectiveness of parliamentary activities, enhance executive accountability, and utilise available expertise and public opinion for better governance.
• Role and Scope: DRSCs are permanent committees responsible for overseeing the executive branch. Unlike ad hoc committees, which are temporary and issue-specific, DRSCs provide regular and ongoing scrutiny of the executive’s actions.
  • For example, if the Ministry of Agriculture publishes a report or proposes a bill, the relevant DRSC scrutinises and oversees all aspects of the ministry’s work, including demands for grants and expenditures.
• Enhanced Accountability: These committees play a crucial role in ensuring that ministries adhere to parliamentary recommendations and maintain transparency in their operations. They are empowered to review departmental reports, expenditures, and legislative proposals, ensuring that the executive branch remains accountable to Parliament.
• Challenges of Coalition Politics: The 1990s were marked by coalition politics, which often led to inefficiencies and disruptions in parliamentary functioning. During this period, DRSCs became increasingly important as they helped maintain oversight and accountability despite the general decline in parliamentary effectiveness. 

Restructuring of Parliamentary Committees

In July 2004, the Department-Related Standing Committees (DRSCs) were restructured, increasing the number of committees to 24—16 under the Lok Sabha and 8 under the Rajya Sabha. The membership of each committee was reduced to 31, with 21 members from the Lok Sabha and 10 from the Rajya Sabha.

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Significance of Parliamentary Committees

• Detailed Scrutiny: As administrative functions become more complex, the extensive nature of parliamentary debates makes detailed examination challenging. Committees, which may include experts or specialists, provide valuable insights and recommendations, allowing MPs to scrutinize issues in depth.
• Collaboration between two houses: Committees facilitate cooperation between the Lok Sabha and Rajya Sabha, promoting bipartisan deliberations and enhancing the legislative process.
• Executive Accountability: Committees, particularly the DRSCs, play a crucial role in holding the executive accountable by producing detailed reports and recommendations that influence policy and administration.
• Ensure Quality legislation: Several recommendations from parliamentary committees have been incorporated into significant legislation, such as the Consumer Protection Act of 2019 and the National Medical Commission Act of 2019.
• Inclusion of Non-Ministerial MPs: Membership in committees offers MPs, who may not hold ministerial positions, an opportunity to contribute to developmental work. Their expertise can be effectively utilized in committee discussions and recommendations.

Challenges Faced by Parliamentary Committees

• Short Tenure: Most parliamentary committees have a one-year term, which limits their effectiveness and continuity. Changes in composition can lead to the loss of specialisation, and new committees may take time to adjust.
• Delay in Establishment: The establishment of committees can be delayed, affecting their efficiency.
• Partisanship and Absenteeism: Political bias and poor attendance hinder the functioning of some committees.
• Resource Constraints: Inadequate staffing and a lack of expert advice can significantly impact the performance of committees. The Venkatachaliah Commission (2000) highlighted issues such as insufficient resources, inadequate staff strength, and a lack of expert advisers. These problems continue to affect the committee system today.
• Decline in Bills Referred to Committees: The number of bills referred to committees has decreased, with several important legislations—such as the Chief Election Commissioner and Other Election Commissioners Bill, 2023; the abrogation of Article 370 of the Indian Constitution; and the four farmers bills in 2020—being passed without committee scrutiny. Since the 16th Lok Sabha, there has been a significant reduction in the number of bills referred to standing committees, a trend that continued into the 17th Lok Sabha.

Way Forward

• Expertise and Security of Tenure: Ensuring that committee members and chairs possess relevant expertise—such as having agriculture experts on agricultural committees or science graduates on science-related committees—and providing longer tenures could enhance the quality of deliberations. For example, Kerala’s model, which features committees with a fixed tenure of 30 months and a clear procedure and time limit for referring bills, could be adopted to improve effectiveness.
• Learning from Other Models: India can benefit from adopting best practices from other systems, such as those used in Kerala, to strengthen its committee system.

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Conclusion

India’s parliamentary committee system is crucial for democratic functioning, ensuring thorough examination of legislation and executive accountability. Addressing current challenges and incorporating best practices from other systems can further bolster this essential institution.

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