Module 37. Parliamentary Committees, Fora etc.

The Parliament of India, as the supreme legislative body, carries out a wide range of functions including law-making, financial control, policy scrutiny, and executive accountability. Given the volume and complexity of its work, it is not feasible for Parliament to deliberate on every issue in detail within the limited time of its sessions. To ensure efficiency and in-depth examination, the Indian Parliament has established a system of committees and fora that function as extensions of the legislature. These committees play a crucial role in maintaining transparency, accountability, and efficiency in parliamentary functioning.

Nature and Importance of Parliamentary Committees

Parliamentary Committees are subordinate groups of Members of Parliament (MPs) appointed or elected to perform specific functions assigned by either House of Parliament or by both. They operate under the direction of the Speaker of the Lok Sabha or the Chairman of the Rajya Sabha, and submit reports on various issues for consideration by Parliament.
Significance of Parliamentary Committees:

• Ensure detailed scrutiny of legislative and financial matters.
• Facilitate non-partisan, technical, and expert discussions on issues beyond political debate.
• Strengthen executive accountability and parliamentary oversight.
• Provide continuity of work between sessions of Parliament.
• Enable specialisation and division of labour among MPs.

Classification of Parliamentary Committees

Parliamentary Committees can broadly be classified into two categories: Standing Committees and Ad Hoc Committees.
1. Standing CommitteesThese are permanent committees constituted regularly and working continuously throughout the year. They are reconstituted annually or periodically.
Major types of Standing Committees include:
(a) Financial CommitteesThese committees are pivotal for ensuring parliamentary control over public finance.

• Public Accounts Committee (PAC): Examines the accounts showing the appropriation of sums granted by Parliament to ensure that expenditure has been incurred in accordance with parliamentary approval. It works based on the Comptroller and Auditor General’s (CAG) reports.
• Estimates Committee: Evaluates budgetary estimates and suggests improvements in efficiency and economy in administration.
• Committee on Public Undertakings (COPU): Reviews the performance of public sector enterprises and ensures accountability in their functioning.

(b) Department-related Standing Committees (DRSCs)Introduced in 1993, these committees correspond to various ministries and departments. They examine Demands for Grants, scrutinise bills referred to them, and oversee the policies and functioning of ministries. There are 24 such committees, covering all major ministries such as Defence, Finance, Education, and Health.
(c) Committees to Inquire and Examine

• Committee on Petitions: Considers petitions from citizens on grievances and suggestions regarding legislation.
• Committee of Privileges: Examines cases of breach of parliamentary privilege.
• Committee on Ethics: Looks into complaints regarding the conduct of MPs.

(d) Committees to Scrutinise and Control

• Committee on Subordinate Legislation: Reviews rules, regulations, and bye-laws framed by the Executive under the authority of parliamentary laws.
• Committee on Government Assurances: Ensures that promises and assurances made by Ministers on the floor of the House are fulfilled.

(e) Housekeeping CommitteesThese regulate internal affairs and procedures of the Houses.Examples include the Business Advisory Committee, Rules Committee, Committee on Private Members’ Bills and Resolutions, and General Purposes Committee.

2. Ad Hoc CommitteesAd Hoc Committees are temporary and task-specific, created for a particular purpose and dissolved once their task is completed.
Types of Ad Hoc Committees:

• Select Committees: Formed to scrutinise particular Bills in detail. After examination, they submit their report recommending changes.
• Joint Committees: Include members from both Houses for investigating or examining specific issues or bills (e.g., the Joint Parliamentary Committee on the 2G Spectrum issue).

Composition and Working Procedure

• Members of Parliamentary Committees are appointed or elected by the Speaker (Lok Sabha) or Chairman (Rajya Sabha).
• Committees function in camera (closed sessions) to ensure free and unbiased discussion.
• Reports are submitted to the respective House or to both Houses, depending on their constitution.
• Although committee reports are not binding, they carry significant persuasive value and often influence legislative decisions and executive actions.

Major Financial Control and Accountability Mechanisms

The financial committees are central to ensuring fiscal accountability and transparency:

• Public Accounts Committee (PAC), established in 1921 under British rule and continued post-independence, examines the CAG reports on government expenditure. It comprises 22 members (15 from the Lok Sabha and 7 from the Rajya Sabha), with the Chairperson traditionally from the Opposition.
• Estimates Committee, with 30 Lok Sabha members, analyses budgetary allocations and performance.
• Committee on Public Undertakings ensures accountability of state-owned enterprises, bridging the gap between Parliament and the Executive in matters of public spending.

Parliamentary Fora

To encourage informal and focused interaction among Members of Parliament on specific national issues, several Parliamentary Fora have been established. These fora provide a platform for dialogue between MPs, experts, and stakeholders from relevant sectors.
Major Parliamentary Fora include:

1. Parliamentary Forum on Water Conservation and Management (2005) – Discusses sustainable use and conservation of water resources.
2. Parliamentary Forum on Youth (2006) – Focuses on youth-related policies and programmes.
3. Parliamentary Forum on Population and Public Health (2006) – Examines public health initiatives and demographic challenges.
4. Parliamentary Forum on Children (2006) – Advocates for child rights and welfare.
5. Parliamentary Forum on Disaster Management (2011) – Deals with strategies and policies for disaster prevention and mitigation.
6. Parliamentary Forum on Global Warming and Climate Change (2008) – Addresses climate-related challenges and India’s international commitments.
7. Parliamentary Forum on Millennium Development Goals (2013) – Monitors progress on global development goals and sustainable development targets.

Each forum is chaired by the Speaker of the Lok Sabha, with the Deputy Chairman of the Rajya Sabha as Co-Chairperson. These fora do not have legislative or financial powers but play an advisory and awareness-building role.

Joint Parliamentary Committees (JPCs)

The Joint Parliamentary Committee is one of the most important ad hoc mechanisms used for investigating major issues of public concern or legislative scrutiny. It includes members from both Houses of Parliament and is constituted by a motion passed in one House and agreed to by the other.Notable JPCs include:

• JPC on the Bofors Scandal (1987)
• JPC on the Stock Market Scam (2001)
• JPC on the 2G Spectrum Allocation (2011)
• JPC on the Data Protection Bill (2021)

Such committees enhance transparency and public trust by holding inquiries into significant national issues.

Role in Strengthening Parliamentary Democracy

Parliamentary Committees and Fora enhance the efficiency and credibility of the legislative process by performing specialised scrutiny that the main Houses cannot achieve in full session