Introduction & Importance
The modern Legislature is over-burdened with a heavy volume of work and has limited time at its disposal. It is impossible for every matter to be thoroughly and systematically scrutinized on the floor of the House. In such a scenario, Parliamentary Committees play a vital role, acting as a vibrant link between the Parliament, the Executive, and the general public.
Detailed Scrutiny
A Committee provides expertise on a matter referred to it. The matter is deliberated at length in a calmer, business-like atmosphere, allowing for in-depth consideration away from the political pressures of the House.
Public Engagement
Most committees involve the public either directly or indirectly through the submission of memoranda, on-site studies, and oral testimonies. These contributions are crucial in helping committees reach well-rounded conclusions.
Criteria for a Parliamentary Committee
- It is appointed or elected by the House or nominated by the Speaker/Chairman.
- It works under the direction of the Speaker/Chairman.
- It presents its report to the House or to the Speaker/Chairman.
- It has a secretariat provided by the Lok Sabha or Rajya Sabha.
*Note: Consultative Committees are not considered Parliamentary Committees as they do not fulfill these conditions.
Classification of Committees
Standing Committees
These are permanent committees constituted every year or periodically. They work on a continuous basis, dealing with subjects designated to them.
Ad Hoc Committees
These are temporary committees created for a specific purpose (e.g., Inquiry or Advisory). They cease to exist once they have completed their assigned task and submitted a report.
Major Financial Standing Committees
| Committee | Composition | Key Functions |
|---|---|---|
| Estimates Committee | 30 members, all from Lok Sabha. Members elected annually. A Minister cannot be a member. | Examines budget estimates and suggests "economies" in public expenditure. Can also suggest alternative policies. |
| Public Accounts Committee (PAC) | 22 members (15 LS + 7 RS). Elected annually. Chairman is from the Opposition by convention since 1967. | Examines the audit reports of the CAG to check for legality, economy, and propriety of expenditure. CAG acts as its guide. |
| Committee on Public Undertakings | 22 members (15 LS + 7 RS). Formed on the recommendation of the Krishna Menon Committee (1964). | Examines the reports and accounts of Public Sector Undertakings (PSUs). |
Departmental Standing Committees (DSCs)
There are 24 Departmental Standing Committees. Each committee consists of 31 members (21 from Lok Sabha and 10 from Rajya Sabha). Their primary function is to examine bills, demands for grants, and other specific matters related to the ministries under their jurisdiction. 16 of these work under the Lok Sabha and 8 under the Rajya Sabha.
Overview of Cabinet Committees
Cabinet Committees are extra-constitutional bodies set up by the Prime Minister to reduce the Cabinet's workload. They are of two types: Standing (permanent) and Ad hoc (temporary). They are mostly headed by the Prime Minister, and if the PM is a member, he invariably presides over it.
Committees To Inquire
Inquiry committees are constituted to investigate and report on specific subjects or cases. They play a crucial role in ensuring transparency, accountability, and upholding the integrity of parliamentary procedures and its members.
Committee on Petitions
This committee serves as a vital bridge between the public and the Parliament, providing a platform for citizens to voice their grievances.
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Composition: It consists of 15 members in the Lok Sabha and 10 members in the Rajya Sabha. The members are nominated by the Speaker / Chairman.
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Function: It examines petitions on bills and on matters of general public importance. It also considers representations, letters, and telegrams from individuals and associations on matters which are not covered by the rules relating to petitions. Its primary role is to act as a forum for the redressal of public grievances.
Committee of Privileges
This committee is tasked with safeguarding the freedom, authority, and dignity of the Parliament, its committees, and its members.
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Composition: The Lok Sabha committee has 15 members, while the Rajya Sabha committee has 10 members. These members are nominated by the Speaker / Chairman respectively.
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Function: Its function is semi-judicial in nature. It examines cases involving a breach of privilege of the House or its members and recommends appropriate action to the House. It ensures that parliamentary privileges are not violated.
Ethics Committee
Constituted to oversee the moral and ethical conduct of the members and to examine cases of misconduct referred to it.
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Composition: The Rajya Sabha committee was constituted in 1997 and the Lok Sabha committee in 2000. The Lok Sabha committee has 15 members, while the Rajya Sabha committee has 10 members, all nominated by the Speaker / Chairman.
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Function: It enforces the Code of Conduct for members of Parliament. It examines complaints of unethical conduct of a member and can also take up matters suo motu. It recommends appropriate sanctions after its investigation, thus upholding the ethical standards of the institution.
Conclusion
The Committees to Inquire form the bedrock of Parliament's self-regulatory and accountability mechanism. By investigating petitions, breaches of privilege, and ethical misconduct, they ensure that the Parliament remains a credible and dignified institution responsive to the needs of the people and accountable for its own conduct.
Committees to Scrutinise and Control
These committees are established to perform the crucial function of parliamentary oversight over the Executive. They act as watchdogs, ensuring that the government operates within the boundaries set by the Constitution and the laws passed by the Parliament. Their work is fundamental to enforcing the accountability of the government to the legislature.
Committee on Government Assurances
- Established: In 1953.
- Composition: Consists of 15 members in the Lok Sabha and 10 members in the Rajya Sabha, nominated by the Presiding Officer.
- Function: It examines the assurances, promises, and undertakings given by ministers on the floor of the House from time to time. It reports on the extent to which such assurances have been implemented and whether the implementation has taken place within the minimum time necessary for the purpose.
Committee on Subordinate Legislation
- Established: In 1953.
- Composition: Both Houses have a committee with 15 members each. They are nominated by the Presiding Officer.
- Function: It examines and reports to the House whether the powers to make regulations, rules, sub-rules, and bye-laws (delegated/subordinate legislation) conferred by the Constitution or delegated by Parliament are being properly exercised by the Executive.
Committee on Papers Laid on the Table
- Established: In 1975.
- Composition: The Lok Sabha committee has 15 members, while the Rajya Sabha committee has 10 members.
- Function: It examines all papers laid on the table of the House by ministers to see whether there has been compliance with the provisions of the Constitution, Acts of Parliament, or rules. It scrutinizes for any delays in laying the papers and ensures accountability.
Committee on Welfare of SCs and STs
- Composition: This is a joint committee consisting of 30 members (20 from Lok Sabha and 10 from Rajya Sabha).
- Function: It considers all matters relating to the welfare of the Scheduled Castes and Scheduled Tribes. It examines the implementation of constitutional and statutory safeguards and scrutinizes the reports submitted by the National Commissions for SCs and STs.
Committee on Empowerment of Women
- Established: In 1997.
- Composition: A joint committee consisting of 30 members (20 from Lok Sabha and 10 from Rajya Sabha).
- Function: It considers the reports of the National Commission for Women and examines the measures taken by the Union Government to secure for women equality, status, and dignity in all matters. It assesses the practical implementation of welfare programmes for women.
Joint Committee on Offices of Profit
- Composition: A joint committee consisting of 15 members (10 from Lok Sabha and 5 from Rajya Sabha).
- Function: It examines the composition and character of committees and other bodies appointed by the Central, state, and UT governments and recommends which offices should disqualify a person from being elected as a Member of Parliament. Its work is of a technical and advisory nature.
Conclusion
The committees dedicated to scrutiny and control are the operational arms of Parliament's oversight function. They delve into the specifics of governance that cannot be discussed at length on the floor of the House, thereby ensuring that the executive remains answerable and that its actions are in conformity with the legislative intent and constitutional provisions.
Committees Relating to Day-to-Day Business
Often referred to as "House-Keeping Committees," these bodies are essential for ensuring the smooth, timely, and orderly conduct of business in Parliament. They deal with procedural matters, scheduling, and the provision of facilities, thereby forming the operational backbone of the legislative process.
Business Advisory Committee
- Composition: The Lok Sabha committee has 15 members, while the Rajya Sabha committee has 11 members.
- Chairperson: The Speaker (in Lok Sabha) and the Chairman (in Rajya Sabha) are the ex-officio chairpersons of their respective committees.
- Function: It regulates the programme and timetable of the House. It allocates time for the transaction of legislative and other business brought before the House by the government. Its recommendations are generally accepted by the House.
Committee on Private Members’ Bills & Resolutions
- Composition: This committee is exclusive to the Lok Sabha and consists of 15 members.
- Chairperson: The Deputy Speaker of the Lok Sabha is its ex-officio chairman.
- Function: It classifies bills and allocates time for the discussion on bills and resolutions introduced by private members (i.e., members other than ministers).
Rules Committee
- Composition: The Lok Sabha committee has 15 members, and the Rajya Sabha committee has 16 members.
- Chairperson: The Speaker / Chairman is the ex-officio chairperson of the committee in their respective House.
- Function: It considers matters of procedure and conduct of business in the House. It is responsible for recommending any necessary amendments or additions to the Rules of the House, thereby ensuring that parliamentary procedures remain relevant and effective.
Committee on Absence of Members
- Composition: This committee is also exclusive to the Lok Sabha and consists of 15 members.
- Function: It considers all applications from members for leave of absence from the sittings of the House. It also examines the cases of members who have been absent for a period of 60 days or more without permission and recommends the course of action to the House.
Conclusion
The smooth functioning of a legislative body as large and diverse as the Indian Parliament depends heavily on its internal organisation and adherence to procedure. These house-keeping committees are the institutional mechanisms that provide this crucial structure, enabling the Parliament to conduct its business efficiently and systematically.
House-Keeping Committees (or Service Committees)
These committees are concerned with the internal administration of the House and the provision of facilities and services to its members. They are indispensable for the orderly and efficient conduct of parliamentary proceedings and for ensuring that members can perform their duties effectively.
General Purposes Committee
- Composition: In each House, this committee consists of the Presiding Officer as its ex-officio chairman, Deputy Presiding Officer, members of the panel of chairpersons/vice-chairpersons, chairpersons of all departmental standing committees, and leaders of recognised parties and groups.
- Function: It considers and advises on matters concerning the affairs of the House that do not fall within the jurisdiction of any other parliamentary committee. It is an advisory body.
House Committee
- Composition: The Lok Sabha committee has 12 members.
- Function: It deals with the residential accommodation of members and supervises facilities like food, medical aid, and other amenities provided to them in government residences and hostels in Delhi.
Library Committee
- Composition: This is a joint committee of both Houses, consisting of 9 members (6 from Lok Sabha and 3 from Rajya Sabha).
- Function: It considers all matters relating to the Library of Parliament and assists members in utilizing the library's services.
Joint Committee on Salaries and Allowances of Members
- Established: Constituted under the Salary, Allowances and Pension of Members of Parliament Act, 1954.
- Composition: A joint committee consisting of 15 members (10 from Lok Sabha and 5 from Rajya Sabha).
- Function: It is responsible for framing rules for regulating the payment of salary, allowances, and pension to the members of Parliament.
Conclusion
Collectively, the House-Keeping or Service Committees form the administrative backbone of the Parliament. By managing everything from legislative schedules to member accommodations and library services, they create a structured and supportive environment, enabling the legislature to focus on its primary functions of law-making and executive oversight.
Consultative Committees
Consultative Committees are a distinct category of committees attached to various ministries and departments of the Central Government. It is crucial to note that these are not Parliamentary Committees. They serve as a unique platform for informal discussions between ministers and Members of Parliament on the policies and functioning of the government.
Key Features
Why They Are NOT Parliamentary Committees
A committee must meet four conditions to be a Parliamentary Committee. Consultative Committees do not fulfill any of them:
- They are not appointed or elected by the House nor nominated by the Speaker/Chairman.
- They do not work under the direction of the Speaker/Chairman.
- They do not present their report to the House.
- Their secretariat is provided by the Ministry of Parliamentary Affairs, not the Lok Sabha/Rajya Sabha secretariat.
Functions of Consultative Committees
- To provide a platform for dialogue between ministers and MPs on government policies, programmes, and their implementation.
- To utilize the knowledge and expertise of MPs for the benefit of the ministry.
- To help the ministry gauge the popular mood and public opinion on its policies through the members.
- To enable members to have a deeper and more informed understanding of the working of the ministries.
Conclusion
While not formal components of the parliamentary committee system, Consultative Committees play a valuable supplementary role. They foster greater understanding and cooperation between the Legislature and the Executive, contributing to a more responsive and democratic governance framework through their informal yet insightful deliberations.