Laxmikanth Summary: Parliamentary Committees

Table of Contents
1. What is a Parliamentary Committee?
2. Classification of Parliamentary Committees
3. Standing Committees
4. Ad Hoc Committees
5. Consultative Committees
6. Powers, Functioning and Working Methods of Committees
7. Advantages and Limitations of the Committee System
8. Key Points for Examination and Revision
9. Summary
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The Parliament is a large and complex body; it cannot discuss and decide every matter in full detail on the floor of the House. To manage detailed scrutiny, deliberation and oversight, the Parliament relies on committees. The Constitution of India refers to committees in a general manner but does not prescribe their detailed composition or procedure; these are governed by the rules of the two Houses and by established parliamentary practice.

What is a Parliamentary Committee?

A parliamentary committee is a body appointed, elected or nominated by either House of Parliament, or jointly by both Houses, to perform specific functions on behalf of the House(s). A committee normally works under the direction of the Speaker/Chairman, presents reports to the House or to the Speaker/Chairman, and is provided with a secretariat by the Lok Sabha/Rajya Sabha Secretariat as per rules and practice.

Essential features:

• The members are drawn from Parliament (Lok Sabha and/or Rajya Sabha).
• The committee is constituted by the House or by the Speaker/Chairman in accordance with rules.
• It discharges the duties assigned to it and submits reports to the House or to the Presiding Officer.
• It is assisted by a secretariat supplied by the parliamentary secretariats.

Note: Consultative committees, though composed of Members of Parliament, do not meet all these conditions and therefore are not parliamentary committees in the strict sense (they are advisory and informal forums attached to ministries).

Parliamentary Committee

Classification of Parliamentary Committees

Parliamentary committees are broadly classified into two types:

• Standing Committees: Permanent committees constituted periodically (annually or for a specified term) and functioning continuously to provide legislative and supervisory support to the House.
• Ad Hoc Committees: Temporary committees constituted for a specific purpose or to inquire into a particular matter; they cease to exist once their task is completed.

Standing Committees

Standing committees are permanent in character and perform routine, recurring and continuing tasks of parliamentary scrutiny. They improve parliamentary functioning by enabling detailed examination away from the time-constrained floor of the House. Standing committees may be classified into the following six categories according to the nature of their work.

1. Financial Committees

These committees focus on money matters, public expenditure and financial accountability of the executive.

• Public Accounts Committee (PAC): Established in 1921, the PAC examines the accounts of the Union government as laid before Parliament and scrutinises the reports of the Comptroller and Auditor General (CAG) relating to government expenditure. The PAC performs a post-facto examination of accounts, pointing out irregularities and inefficiency. The committee has 22 members and, since 1967, its chairman has been drawn from the opposition. The PAC does not itself frame policy; it analyses financial administration and compliance.
• Estimates Committee: This committee examines the budgetary estimates presented to the House and suggests economies in public expenditure and better organisation of departments to ensure efficiency. It aims at suggesting improvements in organisation and administrative machinery for better utilisation of public funds.
• Committee on Public Undertakings: This committee examines the reports and accounts of public sector undertakings and evaluates their efficiency and financial management. It seeks to ensure that public undertakings operate in accordance with sound commercial principles and public interest.

2. Departmental Standing Committees

These committees are assigned to scrutinise the work of specific government departments or ministries. They examine bills, budgets (demands for grants), policies, programmes and expenditure of the departments, enabling subject-wise and department-wise oversight.

• Role: Examine bills referred to them, scrutinise demands for grants, examine annual reports and policy matters of the department, and make recommendations for improvement.
• Composition and functioning: Members belong to both Houses as per rules; committees consult experts, officials and stakeholders as required and submit reports for the House's consideration.

3. Committees to Inquire

These committees receive and consider petitions, examine breaches of privilege, and deal with questions of member conduct and ethics.

• Committee on Petitions: Examines petitions submitted by citizens and recommends action when grievances raise issues of public importance.
• Committee of Privileges: Considers cases of alleged breach of parliamentary privileges of members and recommends action where necessary.
• Ethics Committee: Reviews complaints of unethical conduct by members and suggests measures or sanctions to uphold standards of behaviour in Parliament.

4. Committees to Scrutinise and Control

These committees monitor the executive's implementation of promises, subordinate legislation and other documents presented to Parliament, and protect the interests of specific social groups.

• Committee on Government Assurances: Monitors fulfilment of assurances, promises and undertakings given by ministers on the floor of the House.
• Committee on Subordinate Legislation: Examines rules, regulations and by-laws made by the executive under delegated legislation to ensure they conform to the parent enactment and do not exceed delegated powers.
• Committee on Papers Laid on the Table: Reviews documents and papers laid on the table of the House for compliance and relevance.
• Committee on Welfare of Scheduled Castes and Scheduled Tribes: Monitors implementation of safeguards, policies and programmes for SCs and STs and recommends measures to improve their welfare.
• Committee on Empowerment of Women: Examines issues concerning women's welfare, equality and the implementation of relevant laws and schemes.
• Joint Committee on Offices of Profit: Examines whether certain offices held by members amount to offices of profit under the government and makes recommendations.

5. Committees Relating to the Day-to-Day Business of the House

These committees help manage parliamentary business, procedures and private member legislation so that the House functions in an organised manner.

• Business Advisory Committee: Plans the business of the House, allocates time for various items and prepares the legislative timetable.
• Committee on Private Members' Bills and Resolutions: Considers bills and resolutions introduced by private members and recommends which should be taken up for discussion.
• Rules Committee: Examines and recommends amendments to the rules of procedure of the House to ensure orderly conduct of business.
• Committee on Absence of Members from Sittings of the House: Monitors attendance and reports unexplained absences when required.

6. House-Keeping or Service Committees

These committees attend to administrative, staff and facility matters that enable Parliament to function smoothly.

• General Purposes Committee: Handles general administrative matters concerning members and House functioning.
• House Committee: Looks after residential, accommodation and other facilities provided to members.
• Library Committee: Manages parliamentary library services and resources for members' reference and research.
• Joint Committee on Salaries and Allowances of Members: Examines and recommends pay, allowances and related facilities for members of Parliament.

Ad Hoc Committees

Ad hoc committees are temporary and set up for specific tasks. They are constituted when a detailed, time-bound inquiry or specialised examination is needed and are dissolved after submitting their report.

Ad hoc committees are commonly grouped into two broad categories:

1. Inquiry Committees

• Constituted to inquire into particular issues, incidents, or administrative matters by voting or decision of the House.
• Examples include special committees on railway accidents, security concerns, technology deployment for members, or food management in the Parliament complex.
• They collect evidence, examine documents, call witnesses and submit a report with findings and recommendations.

2. Advisory Committees

• Set up to examine specific bills or policy issues referred by the House and to advise on amendments, technical details or stakeholder inputs.
• They may consult experts, stakeholders and officials and include minority or dissenting opinions in their reports when members disagree.
• After submission of their report, the House decides whether to accept the recommendations and the committee is then wound up.

Consultative Committees

Consultative committees are informal bodies attached to ministries and provide a forum for non-partisan discussion between ministers and Members of Parliament on policy and programme matters. They are not parliamentary committees in the strict sense but are an important channel for executive-legislature interaction.

• They comprise members from both Houses of Parliament and are usually chaired by the Minister in charge of the respective ministry.
• They provide an informal platform for discussion on policies, programmes and their implementation, and enable MPs to raise constituency or policy concerns directly with ministers.
• The Ministry of Parliamentary Affairs issues guidelines regarding their constitution, composition and procedures.
• Consultative committees are reconstituted after the formation of each new Lok Sabha and are dissolved on its dissolution.
• Membership is voluntary and normally decided by members and their parties; the usual strength ranges between a minimum of 10 and a maximum of 30 members.
• Separate informal consultative committees are also formed for each Railway Zone, composed of MPs from the respective area.

Powers, Functioning and Working Methods of Committees

To understand the practical role of committees, it is important to note how they work and what powers they possess.

• Selection and tenure: Members are appointed, elected or nominated in accordance with the rules of the House. Tenures vary: some standing committees are reconstituted annually, others have longer specified terms.
• Chairmanship: Chairpersons may be drawn from the ruling party or opposition (for example, the PAC chairman is traditionally from the opposition).
• Secretariat support: Parliamentary secretariats provide administrative and research support, clerking, record-keeping and drafting of reports.
• Evidence and witnesses: Committees summon documents and call witnesses (officials, experts, stakeholders) to give evidence; this enables fact-finding and technical examination.
• Report and follow-up: Committees submit reports to the House; the government usually places a written response to the recommendations and, where necessary, takes action. Parliament monitors implementation through follow-up and subsequent scrutiny.
• Confidentiality and consensus: Much committee work is confidential and conducted behind closed doors to allow frank evidence and detailed deliberation; many committees function on the principle of consensus across party lines.

Advantages and Limitations of the Committee System

• Advantages: Enables detailed, expert and continuous scrutiny; reduces pressure on floor time; facilitates bipartisanship and technical examination; improves accountability and transparency by producing focused reports.
• Limitations: Committee recommendations are not legally binding on the government; their effectiveness depends on the quality of membership, resources and political will for implementation; secrecy may limit public scrutiny of proceedings.

Key Points for Examination and Revision

• Understand the difference between standing and ad hoc committees, and between parliamentary and consultative committees.
• Remember the principal financial committees - Public Accounts Committee, Estimates Committee and Committee on Public Undertakings - and their broad functions.
• Be able to list major departmental, inquiry, scrutiny and housekeeping committees and their general roles.
• Know the working methods: appointment, secretariat support, evidence, reports and follow-up.

Summary

Parliamentary committees are indispensable instruments of legislative scrutiny and executive accountability. By delegating detailed work to permanent and temporary committees, Parliament ensures continuous examination of policy, expenditure and administration. While committee recommendations guide parliamentary action and improve governance, their impact depends on timely government responses and effective implementation.