INTRODUCTION

KEY HIGHLIGHTS

1. Session and Number of Sittings in the 17th Lok Sabha

• The 17th Lok Sabha held 15 sessions between June 2019 and February 2024. In these five years on average, 17th Lok Sabha sat for 55 days per year.

• The longest session was the 1st session, from 17th June, 2019 to 6th August, 2019. It had 37 sittings.

2.  Bills Introduced and Passed in the 17th Lok Sabha

• Out of 240 bills introduced in the 17th Lok Sabha, 222 were passed, 11 bills were withdrawn and 6 bills remain pending. 1 bill was assented. 

• Key bills passed include: 

• The J&K Reorganisation Bill, 2019

• The Appointment of CEC Bill, 2023

• Three Labour Codes

• The Digital Data Protection Bill, 2023

• Three Farm laws (which were later repealed).

• Three Bills replacing the IPC, 1860, the CrPC, 1973, and the Indian Evidence Act, 1872.

• Jan Vishwas Amendment Bill, 2023

• Muslim Women (Protection of Rights on Marriage) Act in 2019

• Citizenship Amendment Bill

• Private Member Bills:

• A total of 729 Private Members’ Bills were introduced during this Lok Sabha session.

• No Private Member Bills (PMBs) were passed, only two PMBs were discussed.

                       Question Hour

• Question Hour functioned for 60% of scheduled time in Lok Sabha and 52% in Rajya Sabha. 

•  24% of questions listed for oral response were answered by Ministers in the House in Lok Sabha, and 31% in Rajya Sabha.

3. Committees Performances: 

• Parliamentary Committees (three Financial Committees and 24 Department-related Standing Committees (DRSCs)) held about 1,700 meetings, with an average duration of a Committee meeting was about 2 hours. 

• Parliamentary Standing Committees: They presented a total of 691 reports and more than 69% of Committee recommendations were accepted by the government.

 

4. Increase in Women MPs:

• The representation of women MPs in Lok Sabha is slowly improving from 5% in the 1st Lok Sabha to 14 % in the 17th Lok Sabha (78 Women MPs)

5. Other Important Facts:

• New Parliamentary Building: On September 19, 2023, Parliament moved to a new complex, marking a historic shift from the iconic circular building to a triangular edifice adorned with the lion capital on Central Vista, serving as India's democratic hub.

• Use of Digital Technology: 

• There's a significant emphasis on leveraging digital technology for parliamentary operations, moving towards the goal of a paperless office. 

• Currently, over 97 percent of question notices are submitted electronically.

KEY CONCERNS IN THE FUNCTIONING OF 17th LOK SABHA

1.  Lowest number of sittings :

• The 17th Lok Sabha had lowest sittings amongst all full-term Lok Sabha

• The declining number of sitting days and hours in the Lok Sabha limits the scope for debates and diminishes MPs’ participation. 

.Comparison with Previous Lok Sabhas

• The highest number of sittings in any Lok Sabha was recorded during the first Lok Sabha, which in its tenure from 1952 to 1957 had 677 sittings. The second and third Lok Sabhas had 581 and 578 sittings respectively.

• The 12th Lok Sabha had the fewest sittings with only 88 before the fall of the Atal Bihari Vajpayee government after thirteen months.

2. Bills passed within 2 weeks of introduction 

• 58% of the Bills were passed within two weeks of their introduction. 

• Example: The J&K Reorganisation Bill, 2019, and the Women’s Reservation Bill, 2023 were passed within two days of introduction.

• 35% of Bills were passed with less than an hour of discussion in Lok Sabha. The corresponding figure for Rajya Sabha was 34%.

3. Decline in No. of Bill Passed and its scrutiny

• The annual average of Bills passed declined from 65 in the 1952-1990 period to 48 in 1991-2023.

• 16% of Bills were referred to Committees for detailed scrutiny. This is lower than corresponding figures for the previous three Lok Sabhas

• Less than 20% of Bills referred to Committees

4. Lesser time spent discussing the budget

• Over the years, the time spent on budget discussions in Lok Sabha has reduced.

• The 17th Lok Sabha discussed the annual budget for 35 hours on average (in the Lower House).  Between 2019 and 2023, on average, about 80% of the budget has been voted on without discussion. 

• In 2023, the entire budget was passed without discussion. This has happened twice in the last decade - in 2018 and 2013.

• It will be the sixth shortest budget session since 1952. 

• Lok Sabha spent just 18 hours on financial business, out of which 16 hours were spent on the general discussion of the budget.

5. Decline in use of Parliamentary Tools:

Parliamentary tools allow MPs to ensure executive accountability and remediate potential issues for their constituents.

•  Half-hour discussion: It enables MPs to deliberate on responses to parliamentary questions. 

• Before the 1990s, there were 88 such discussions per Lok Sabha. Post-1990, there were only 11 half-hour discussions per Lok Sabha. 

• The 17th Lok Sabha permitted only one such discussion, marking an all-time low. 

• Short-duration discussions: It permits members to initiate discussions on matters of public importance.

• Before 1990, averaging 46 per Lok Sabha. 

• Post-1990, this number diminished to 39, with the 17th Lok Sabha engaging in only 13 such discussions. 

• Calling attention: It is a vital tool allowing MPs to draw attention to issues and elicit responses from ministers was extensively used between 1957 and 1990, with an average of 300 notices allowed per Lok Sabha. 

• Post-1990, only 40 notices have been allowed per Lok Sabha. 

• The 17th Lok Sabha allowed only one such discussion. 

• Adjournment motion: It is employed to address urgent issues with a subsequent vote, and serves as an expression of disagreement with the government’s policies.

•  Pre-1990, the Lok Sabha permitted discussion and voting on four such motions on average. 

• Post-1990, this number decreased to three. 

• The 16th and 17th Lok Sabha allowed no adjournment motions

Ministries Response:

• The Prime Minister's Office faced 1,146 questions from Rajya Sabha MPs, but only 28 were answered. 

• Likewise, there was a notable decrease in notices to the PMO in the Lok Sabha, highlighting diminished interest in seeking responses from the executive.

6. Interruptions, Walkouts, and Suspensions

• Almost all sessions witnessed significant interruptions and walkouts by the Opposition. 

• The 2023 Budget Session lost the most time to interruptions. 

• Interruptions: 437 hrs

• Walkouts: 120

• To compensate, the Parliament had to extend working hours.

• Suspension of MPs:

• 115 members faced suspension, marking the highest number of suspensions in the history of Lok Sabha.

• This surpasses both the previous Lok Sabha and the 8th Lok Sabha during Congress rule from 1984 to 1989.

• The 2023 Winter Session witnessed a record-breaking number of MP suspensions, with the Lok Sabha accounting for 100 suspensions and an additional 40 from the Rajya Sabha.

• Lok Sabha passed significant legislation such as criminal reform Bills when more than 70% of the Opposition MPs were suspended, and the Prime Minister did not answer any questions orally and only one in writing.

7. Major Security Breach

• On December 13, 2023, during Zero Hour, a major security breach occurred in the Lok Sabha chamber, coinciding with the anniversary of the Parliament attack. 

• Two individuals leaped from the public gallery, released yellow smoke from canisters, and shouted slogans.

8. Increased Criminalization:

• The Association for Democratic Reforms (ADR) reported that 43% of the elected Members of Parliament in the 17th Lok Sabha had pending criminal cases against them

REASON BEHIND LEGISLATIVE DECLINE

• Executive Dominance:

• Increasing executive dominance diminishes the legislature's authority, with strong ruling party majorities often rushing bill passage without sufficient debate or amendments, undermining checks and balances.

• Party Discipline:

• Strict party discipline limits MPs' ability to exercise independent judgement and scrutinise the executive effectively.

• For example, in India, the anti-defection law, which disqualifies MPs for defying the party whip, has been criticised for undermining MPs' independence.

• Bypassing Legislature: The increasing use of executive orders, ordinances, and delegated legislation has contributed to the decline of parliamentary authority.

• Ex- Passing of the Citizenship Amendment Act (CAA), the National Register of Citizens (NRC), and farm legislation.

• Declining Decorum:Rising disruptions, protests, and disorderly conduct in Parliament hamper constructive debate and deliberation, eroding public confidence in its effectiveness.

• Criminalization of Politics: The increasing presence of criminal elements in the legislature undermines public trust and hinders effective lawmaking.

• In the 2019 Lok Sabha elections, 159 MPs had declared serious criminal cases against them, including those of rape, murder, attempt to murder, kidnapping, crimes against women.

• Other Reasons for disorder in legislatures:

• The lack of time available to MPs for raising important matters

• The unresponsive attitude of the government 

• Deliberate disruption by parties for political or publicity purposes

• The absence of prompt action against MPs disrupting Parliamentary proceedings.

IMPLICATIONS OF DECLINE IN FUNCTION OF LOK SABHA

• Affects the Institutional Credibility: 

• The Lok Sabha's failure to fulfill its legislative duties could weaken parliamentary credibility, undermining democracy and elected representatives' legitimacy.

• Wasted Resources:

• The Lok Sabha's low productivity wastes taxpayers' money, as MPs' salaries and allowances are funded by the public exchequer. 

• This inefficient use of resources due to disruptions or low productivity diverts funds that could have been used for development.

• Delayed Legislation:

• Lower productivity in the Lok Sabha leads to delays in passing vital bills and legislation. 

• This hampers the country's progress by postponing crucial policies and reforms related to taxation, infrastructure, and social welfare, thus hindering their implementation.

• Quality of Legislation:The decrease in bills referred to Parliamentary Standing Committees raises concerns about thorough examination and evaluation of proposed legislation.

• The percentage of bills referred to parliamentary committees has reduced from 71% in the 15th Lok Sabha (2009-14) to 28% in the 16th Lok Sabha (2014-19), and to only around 16% since 2019. 

• Even the bill revoking Article 370 was not referred to a parliamentary committee.

• Limited Parliamentary Business: This has led to an increasing recourse to ordinances that circumvent parliament, and the bypassing of the parliament on several important initiatives.

• Due to such actions,  a global democracy report by V-Dem Institute has characterised India’s democracy as an “electoral autocracy”.

• Economic Impact:

• A less productive Lok Sabha harms the economy by causing delays in crucial economic legislation, hindering growth, investment, and development. 

• This uncertainty and inefficient decision-making erode investor confidence, further slowing economic progress.

• Increases Corruption:

• The link between crime and politics fosters corruption, as politicians with criminal histories may resort to bribery, extortion, and other illegal activities to retain power. 

• This undermines anti-corruption efforts and hampers transparency and integrity in governance.

WAY FORWARD

• Greater Role for Opposition: Greater participation of the opposition groups in allocating business of the House would serve as a measure of limiting the executive role and ensure greater accountability of the ruling government.

• Dedicating one day per week, preferably Mondays, for discussions led by Opposition members will reduce disruptions.

• Code of Conduct for Parliamentarians: Code of conduct for members of the Lok Sabha, the Rajya Sabha, State Assemblies, and Councils is needed to minimise disruptions in the House.

• Inner Party Democracy:  The parties need to be held accountable for their obligations under various laws, rules, as well as their own constitutions, including incorporating natural justice rules in the process of expulsion of party members.

• Improve the Quality of Members:

• Advocate for political parties to adopt merit-based selection criteria for parliamentary candidates, prioritising qualifications, experience, and dedication to public service.

•  Additionally, strive to enhance diversity and inclusivity by ensuring representation of marginalised communities and underrepresented groups.

• Increase Women Participation:

• Need of the hour is to pass the Women Reservation bill for increasing parliamentary efficiency.

• Promote Cross-Party Collaboration:

• Promote a cooperative environment and bipartisan or multi-party collaboration within parliamentary committees to prioritise national interests above partisan goals. 

• Encouraging constructive dialogue and consensus-building can improve the effectiveness of scrutiny processes and bolster parliamentary oversight.

• Strengthen Scrutiny Support:

• Empower parliamentary committees with independent research support to aid in scrutiny efforts. 

• This may involve setting up dedicated research units or collaborating with external organisations for expertise on complex issues.

• Enhance Parliament's public perception.

• Implement measures to boost transparency in parliamentary activities, including live streaming of sessions, expanded access to parliamentary documents, and public disclosure of MPs' attendance and performance, to improve Parliament's image.

Best Practices

• ENGLAND:

• Shadow Cabinet:India could adopt a shadow cabinet system similar to the British Parliament by establishing an opposition structure mirroring the government's cabinet. 

• This would involve assigning specific portfolios to opposition members who would scrutinise and offer alternative policies to the government's proposals, enhancing accountability and providing a robust check on executive power.

• Setting Agenda: When parliament meets over 100 days a year opposition sets agenda for 20 days

• Questioning the Prime Minister: In the Indian Parliament, Question Hour and Zero Hour often lead to disruptions instead of fostering debate.

• The Prime Minister responds to MPs’ questions weekly, leading to fewer disruptions and more spirited debates.

• Thus, the UK practice of posing questions to the Prime Minister within the Lok Sabha and Rajya Sabha rules can be adopted.

• Parliamentary Disruptions Index (PDI): It can be used for a “naming and shaming” approach aligning with norms prevalent in the UK Parliament.

• The names of MPs with the highest PDI values can be shared weekly in the media. 

• The widespread dissemination of such information could negatively impact MPs’ public image, potentially restraining them from further disruptions.

• Estonia and New Zealand: 

• E-Parliament System: Following the example of Estonia and New Zealand, India can develop a robust e-Parliament platform. 

• This would allow for efficient management of legislation, online access to documents, and potentially even remote participation for committee meetings.

• Iceland and Canada: 

• Online Forums and Petitions: These would allow citizens to submit petitions, express their views on proposed legislation, and participate in online discussions, fostering a more inclusive legislative process.

• Australia: 

• There exists a practice where an institution external to Parliament conducts evaluations of enacted laws after their passage. 

• Similar mechanisms could be established in India to assess the effectiveness and impact of legislation post-enactment.

CONCLUSION

By implementing the comprehensive set of reforms and adopting best practices from around the world, India can strengthen its parliamentary system, enhance accountability, promote inclusivity, and improve legislative efficiency. These efforts will not only

Tags:
Polity

Keywords:
PARLIAMENT LOK SABHA 17TH LS