New Delhi: In a significant address at the National Conference of Estimates Committees held in Mumbai on June 25, 2025, Lok Sabha Speaker Om Birla emphasized that Parliamentary Committees are not adversarial to the government but serve as vital instruments for guiding and advising the administration. The two-day event, marking 75 years of the Estimates Committee of Parliament, underscored the critical role these committees play in promoting transparency, accountability, and efficiency in governance.
Understanding Parliamentary Committees: Structure and Functions
Parliamentary Committees are specialized panels of Members of Parliament (MPs) constituted to scrutinize government functioning and uphold executive accountability. These committees operate under the direction of the Lok Sabha Speaker or Rajya Sabha Chairman and are serviced by the respective secretariats. Their authority is derived from the Indian Constitution under Article 105 (powers and privileges) and Article 118 (regulation of business), drawing inspiration from the British parliamentary system.
Types of Parliamentary Committees
- Standing Committees: These are permanent bodies reconstituted annually under the Rules of Procedure or Acts of Parliament. They include:
- Financial Committees, such as the Public Accounts Committee, which oversees financial matters.
- Departmentally Related Standing Committees (DRSCs), comprising 24 panels that examine ministry budgets, bills, and policy documents.
- Other Standing Committees, like the Committee on Petitions, Committee on Subordinate Legislation, and Committee on Government Assurances.
- Ad Hoc Committees: These are temporary panels formed for specific purposes and dissolve upon task completion. Examples include:
- Select and Joint Committees on Bills, such as the Select Committee on GST.
- Joint Parliamentary Committees (JPCs) for specific legislation or inquiries, like the Railway Convention Committee.
These committees act as “mini-parliaments,” enabling in-depth scrutiny of issues that the full House may lack the time or expertise to address comprehensively.
Significance of Parliamentary Committees in Governance
Parliamentary Committees are pivotal in strengthening India’s parliamentary democracy. Their key contributions include:
Ensuring Executive Accountability
Though their recommendations are advisory and non-binding, committees create a public record that pressures the government to reconsider controversial decisions. For instance, the Public Accounts Committee plays a crucial role in financial oversight, ensuring vigilance over executive actions. The closed-door nature of committee meetings fosters candid, collaborative discussions free from political posturing, enhancing accountability.
Facilitating Informed and Inclusive Lawmaking
Committees serve as platforms for MPs to consult experts, civil society, and government officials, ensuring evidence-based deliberations. They conduct clause-by-clause scrutiny of bills, engage in stakeholder consultations, and incorporate public participation, improving legislative quality and democratic legitimacy.
Promoting Bipartisan Consensus
With proportional representation from all parties, committees foster non-partisan debates and inter-ministerial coordination. Their year-round functioning allows for sustained examination of budgets, annual reports, and policy proposals, building consensus across political divides.
Enhancing Legislative Efficiency
Since Parliament’s sitting time is limited—averaging just 67 days per year from 2009 to 2019—committees bridge the gap by working throughout the year. They handle detailed legislative tasks, ensuring policies and budgets are thoroughly vetted.
Capacity Building and Governance Reform
Committees provide authentic insights and actionable recommendations, strengthening legislation and governance. They serve as informal training grounds for young MPs, fostering expertise and shielding deliberations from populist pressures and party whips.
Lok Sabha Speaker’s Vision for Parliamentary Committees
At the Mumbai conference, Lok Sabha Speaker Om Birla articulated a vision for Parliamentary Committees as supportive and corrective instruments. “Parliamentary committees do not work in opposition to the government, but work to supplement the government, guide the government, and advise the government,” he said. Birla emphasized that MPs, through their direct engagement with the public, bring ground-level insights into committee discussions, enabling them to assess the impact of government schemes and policies effectively.
Birla urged lawmakers to involve more stakeholders—experts, citizens, and officials—in committee deliberations to enhance the quality of reports. He highlighted the committees’ role in reviewing whether social welfare schemes reach the intended beneficiaries and evaluating their socio-economic impact. “Through parliamentary committees, we bring transparency, accountability, and responsibility in governance,” he added.
The conference, attended by Estimates Committee head Sanjay Jayaswal, Maharashtra Governor CP Radhakrishnan, Rajya Sabha Deputy Chairperson Harivansh, and other state legislative leaders, discussed ways to increase the acceptance of committee recommendations by state governments. One suggestion was for committees to highlight policy achievements while identifying areas for improvement, fostering constructive dialogue with the administration.
Birla also proposed standardizing the number of committee reports and introducing capacity-building exercises and training programs to enhance MPs’ expertise in budget scrutiny and financial analysis. These measures aim to make committees more effective in their oversight role.
Challenges Facing Parliamentary Committees
Despite their significance, Parliamentary Committees face several challenges that hinder their effectiveness:
Limited Powers and Weak Follow-Up
As advisory bodies, committees lack enforcement powers, and their recommendations are not binding. There is no institutional mechanism to ensure follow-up, undermining their ability to hold the executive accountable.
Resource and Research Constraints
Committees face shortages of staff, infrastructure, and specialist advisors. The Venkatachaliah Commission (2000) and the National Commission to Review the Working of the Constitution (2002) noted inadequate research support and technical staff limited to secretarial tasks, hampering in-depth scrutiny.
Low MP Attendance
In the 17th Lok Sabha, the average attendance at subject committee meetings was only 47%, compared to 84% in regular Parliament sessions. Factors like conflicting schedules, low incentives, and lack of interest contribute to this issue.
Declining Bill Referrals
The number of bills referred to committees has significantly decreased. Only 16% of bills in the 17th Lok Sabha were referred, compared to 60% in the 14th Lok Sabha, limiting detailed legislative scrutiny.
Inadequate Parliamentary Time
With Parliament sitting for just 37 days in the 17th Lok Sabha’s first session, there is insufficient time for oversight. Only 17% of the Union Budget was discussed in the 16th Lok Sabha, reflecting the constraints on comprehensive scrutiny.
Political Influence
Political interference from party leadership and external pressures compromises committee impartiality. Political considerations in member nominations further dilute their objectivity.
Overburdened Committees
DRSCs often oversee multiple, unrelated ministries, reducing subject-specific focus. Short one-year tenures limit the development of expertise and sustained oversight.
Measures to Strengthen Parliamentary Committees
To address these challenges, several reforms have been proposed to enhance the functioning of Parliamentary Committees:
Strengthening Institutional and Research Support
Committees require well-equipped secretariats with access to domain experts, research staff, and modern technological tools. This would enable evidence-based recommendations and improve deliberation quality.
Institutionalizing Accountability Mechanisms
Mandating ministries to submit Action Taken Reports (ATRs) within a defined timeframe and requiring written justifications for accepting or rejecting recommendations would enhance accountability.
Increasing Bill Referrals and Specialization
Amending the Rules of Procedure to make bill referrals to committees mandatory or strongly recommended would ensure thorough scrutiny. Rationalizing DRSC mandates to focus on fewer, related ministries would promote specialization.
Improving MP Participation
Incentives, penalties, or formal recognition could boost MP attendance. Regular training programs for new MPs would enhance their legislative capacity and awareness of committee work’s importance.
Promoting Transparency and Citizen Engagement
Simplifying committee reports for public accessibility and leveraging digital platforms for e-consultations and stakeholder interactions would enhance transparency and public trust.
Recent Developments: Justice Verma Report Delay
Ahead of the monsoon session, Parliament is yet to receive the Supreme Court-appointed committee’s report on allegations of cash recovery at the residence of Delhi High Court Judge Justice Yashwant Varma. A top-ranking official, speaking anonymously, noted that an elaborate process, including a potential internal probe and Justice Varma’s defense, would follow before any impeachment motion could be considered.
Conclusion: Revitalizing Parliamentary Committees for Robust Governance
Parliamentary Committees are the backbone of legislative oversight and democratic accountability in India. Lok Sabha Speaker Om Birla’s call for greater respect for committee recommendations underscores the need to revitalize these institutions. By addressing challenges like limited powers, resource constraints, and low participation, and implementing reforms such as enhanced research support and mandatory bill referrals, committees can evolve into engines of reform. As India moves toward data-driven and transparent governance, Parliamentary Committees must play a central role in ensuring policies are well-crafted and effectively implemented, ultimately strengthening the nation’s democratic framework.
Frequently Asked Questions (FAQs)
1. What are Parliamentary Committees, and what is their role in Indian governance?
Parliamentary Committees are panels of Members of Parliament (MPs) constituted by the Lok Sabha or Rajya Sabha, or nominated by the Speaker/Chairman, to scrutinize government functioning and ensure executive accountability. They guide and advise the government by reviewing policies, budgets, and bills, fostering transparency, accountability, and efficiency in governance. Operating under Articles 105 and 118 of the Indian Constitution, they act as “mini-parliaments,” providing in-depth analysis and bipartisan consensus on legislative matters.
2. What are the types of Parliamentary Committees in India?
There are two main types:
Ad Hoc Committees: Temporary panels formed for specific tasks, such as Select or Joint Committees on Bills (e.g., GST Committee) or Joint Parliamentary Committees (JPCs), which dissolve after completing their purpose.
Standing Committees: Permanent bodies reconstituted annually, including Financial Committees (e.g., Public Accounts Committee), 24 Departmentally Related Standing Committees (DRSCs) for ministry oversight, and others like the Committee on Petitions.
3. Why are Parliamentary Committees considered significant for governance?
Parliamentary Committees enhance governance by ensuring executive accountability through detailed scrutiny, facilitating informed lawmaking with expert consultations, and promoting bipartisan consensus. They improve legislative efficiency by addressing issues year-round, unlike the limited parliamentary sessions (averaging 67 days annually from 2009-2019). They also provide actionable recommendations, review social welfare schemes, and act as training grounds for MPs, strengthening parliamentary democracy.
4. What challenges do Parliamentary Committees face in India?
Key challenges include:
- Limited Powers: Their advisory, non-binding recommendations lack enforcement mechanisms.
- Resource Constraints: Inadequate staff, infrastructure, and expert advisors, as noted by the Venkatachaliah Commission (2000).
- Low MP Attendance: Average attendance in the 17th Lok Sabha was 47% for committee meetings.
- Declining Bill Referrals: Only 16% of bills in the 17th Lok Sabha were referred to committees, compared to 60% in the 14th Lok Sabha.
Political Interference: Party pressures and short tenures hinder impartiality and expertise development.
5. How can the functioning of Parliamentary Committees be strengthened?
Reforms include:
- Enhanced Research Support: Providing secretariats with domain experts and modern tools.
- Accountability Mechanisms: Mandating Action Taken Reports (ATRs) from ministries within a set timeframe.
- Mandatory Bill Referrals: Amending rules to ensure all non-finance bills go to committees.
- Improved MP Engagement: Introducing incentives or training to boost attendance and expertise.
Transparency: Simplifying reports and using digital platforms for public consultations to enhance trust and participation.
