Chapter 21: Parliament of India — Lok Sabha and Rajya Sabha
Introduction
The Parliament of India is the supreme legislative body of the country.
It represents the will of the people and is responsible for making laws, controlling the executive, approving budgets, and amending the Constitution.
Parliament = President + Lok Sabha + Rajya Sabha.
(Art 79 of Constitution)
Structure of Parliament
| Component | Details |
|---|---|
| President | Part of Parliament but not a member of either House; summons, prorogues, dissolves Parliament, assents to Bills. |
| Rajya Sabha | Upper House, represents the States. |
| Lok Sabha | Lower House, represents the people directly. |
Why Two Houses (Bicameralism)?
- Balances interests of states and people.
- Checks hasty legislation.
- Provides room for more deliberations and scrutiny.
Composition of Lok Sabha (House of the People)
Strength
| Aspect | Detail |
|---|---|
| Maximum Strength (Constitution) | 552 members |
| Present Strength (2024) | 543 elected members |
Distribution:
- 530 from States,
- 13 from Union Territories,
- (Earlier 2 Anglo-Indian nominated seats — abolished by 104th Amendment, 2020).
Election Method
- Direct elections by the people.
- Based on Universal Adult Franchise (Art 326):
- Every citizen 18 years or above can vote.
- First-Past-The-Post system:
- Candidate with highest votes wins, even without absolute majority.
Term
- 5 years from the date of first sitting.
- Can be dissolved earlier by President.
- During a National Emergency, term can be extended by Parliament one year at a time.
Qualifications for Lok Sabha Membership
- Citizen of India.
- Minimum age: 25 years.
- Must possess other qualifications as prescribed by Parliament.
- No office of profit under government.
Composition of Rajya Sabha (Council of States)
Strength
| Aspect | Detail |
|---|---|
| Maximum Strength | 250 members |
| Present Strength (2024) | 245 members |
Distribution:
- 233 elected by State and UT legislatures,
- 12 nominated by President for special knowledge (art, literature, science, social service).
Election Method
- Indirect elections by elected members of State Legislative Assemblies.
- Proportional Representation by Single Transferable Vote.
Example:
- 31 Rajya Sabha seats allotted to Uttar Pradesh, 19 to Tamil Nadu, etc.
Term
- Permanent House — not subject to dissolution.
- One-third members retire every 2 years; elections held for vacant seats.
- Each member’s term is 6 years.
Qualifications for Rajya Sabha Membership
- Citizen of India.
- Minimum age: 30 years.
- Must possess other qualifications as prescribed by Parliament.
Presiding Officers
Lok Sabha
| Office | Present Holder (2024) |
|---|---|
| Speaker | Om Birla |
| Deputy Speaker | Position vacant (needs election) |
Rajya Sabha
| Office | Present Holder (2024) |
|---|---|
| Chairman (Vice-President of India) | Jagdeep Dhankhar |
| Deputy Chairman | Harivansh Narayan Singh |
Sessions of Parliament
- Summoned by President at least twice a year,
and maximum gap between two sessions cannot exceed 6 months.
| Session | Purpose |
|---|---|
| Budget Session | February–May; longest and most important. |
| Monsoon Session | July–September. |
| Winter Session | November–December. |
Powers and Functions of Parliament
1. Legislative Powers
- Makes laws on subjects in:
- Union List,
- Concurrent List.
- Can make laws on State List during emergencies.
2. Executive Control
- Controls Council of Ministers through:
- Question Hour,
- Zero Hour,
- No-confidence motions,
- Adjournment motions.
3. Financial Powers
- Approves budget, taxes, government expenditure.
- Money Bill can only be introduced in Lok Sabha.
- Rajya Sabha can only suggest amendments to Money Bills.
4. Constitutional Powers
- Amends Constitution (special majority needed).
- Ratifies certain constitutional amendments (e.g., affecting states).
5. Judicial Powers
- Impeaches:
- President,
- Vice-President,
- Judges of Supreme Court and High Courts,
- CAG,
- Election Commissioners.
6. Electoral Functions
- Elects:
- President (with State Legislatures),
- Vice-President (with Rajya Sabha and Lok Sabha only).
7. Other Functions
- Approval of Proclamations of Emergency.
- Creation or abolition of All-India Services.
- Changing names, boundaries of states (Art 3).
Special Powers of Rajya Sabha
- Empowers Parliament to make laws on State List subjects (Art 249).
- Creates new All-India Services (Art 312).
- Only Rajya Sabha can initiate a resolution for these by 2/3rd majority.
Comparison: Lok Sabha vs Rajya Sabha
| Feature | Lok Sabha | Rajya Sabha |
|---|---|---|
| Tenure | 5 years | Permanent |
| Strength | 543 elected | 233 elected + 12 nominated |
| Money Bill | Exclusive power | Only advisory |
| Control over Executive | Direct | Indirect |
| Leadership | Speaker | Vice-President (Chairman) |
Legislative Procedure in Parliament
Ordinary Bill
- Introduced in either House (except Money Bill).
- Passes through:
- First Reading (Introduction),
- Second Reading (Detailed examination),
- Third Reading (Final Approval).
- Sent to other House for similar process.
- Assent of President.
Money Bill (Art 110)
- Can only be introduced in Lok Sabha, on recommendation of President.
- Rajya Sabha has no power to reject — can only suggest changes.
- Must return within 14 days.
Speaker’s decision final whether a bill is Money Bill or not.
Deadlock and Joint Sitting (Art 108)
- If deadlock between Houses (ordinary bills only),
- President summons a Joint Sitting of Lok Sabha and Rajya Sabha.
- Presided over by the Speaker.
Examples:
- Dowry Prohibition Bill, 1961,
- Banking Service Commission Bill, 1977.
Privileges of Parliament
- Freedom of speech inside Parliament.
- Freedom from arrest (in civil cases) during session and 40 days before and after.
- No court proceedings for speeches made inside Parliament.
- Parliament can punish members for breach of privilege.
Recent Developments
- Frequent disruptions affecting Parliament’s productivity.
- Debates over misuse of Money Bill route (e.g., Aadhaar Bill, 2016).
- Calls for strengthening Parliamentary Committees.
- Growing demands for filling Deputy Speaker post.
Conclusion
The Parliament of India is the central pillar of India’s democracy.
It not only makes laws, but also ensures accountability, stability, financial control, and upholds constitutional values.
For democracy to thrive, it is essential that Parliament functions efficiently, independently, and responsibly.
“A strong Parliament means a strong democracy.“
Important Quick Facts for Prelims & Mains
| Fact | Detail |
|---|---|
| Parliament consists of | President + Rajya Sabha + Lok Sabha |
| Money Bill introduction | Only in Lok Sabha |
| Joint Sitting chaired by | Lok Sabha Speaker |
| Rajya Sabha maximum strength | 250 members |
| Lok Sabha maximum strength | 552 members |
| Current Lok Sabha (2024) | 18th Lok Sabha |
Chapter 22: Parliamentary Committees
Introduction
The Parliament, due to its large size and heavy workload, cannot manage all its business efficiently through open debates.
Hence, a lot of detailed work is carried out by Parliamentary Committees.
These Committees ensure:
- Better scrutiny of legislation,
- Monitoring of the executive,
- Efficient functioning of Parliament.
“Committees are the mini-Parliaments.”
Constitutional Status
- Parliamentary Committees are not specifically mentioned in the Constitution (except for Public Accounts Committee in Article 148 related to CAG).
- They are created under Rules of Procedure and Conduct of Business in Parliament.
Definition
According to the Parliament:
“A Parliamentary Committee means a committee that is appointed or elected by the House or nominated by the Speaker/Chairman and works under the direction of the House.“
Classification of Parliamentary Committees
1. Based on Nature
| Type | Details |
|---|---|
| Standing Committees | Permanent; work throughout the year. |
| Ad hoc Committees | Temporary; created for a specific purpose and disbanded after completion. |
2. Based on Subject
| Type | Examples |
|---|---|
| Financial Committees | Public Accounts Committee, Estimates Committee, Committee on Public Undertakings. |
| Departmental Standing Committees | 24 Committees covering ministries/departments (e.g., Defence, Finance, Health). |
| Other Standing Committees | Rules Committee, Privileges Committee, Ethics Committee. |
| Ad hoc Committees | Joint Parliamentary Committees (JPCs), Select Committees on Bills. |
Standing Committees: In Detail
1. Financial Committees
(Super Important for Exams)
| Committee | Main Function |
|---|---|
| Public Accounts Committee (PAC) | Examines CAG reports; audits government expenditure. |
| Estimates Committee | Suggests economies, efficiency improvements; examines estimates. |
| Committee on Public Undertakings (COPU) | Reviews functioning of public sector companies. |
Public Accounts Committee (PAC)
- Established: 1921 (under Montagu-Chelmsford Reforms).
- Strength:
- 22 members (15 Lok Sabha + 7 Rajya Sabha).
- Chairman:
- Traditionally from Opposition Party (since 1967).
Main Role:
Examines whether money granted by Parliament has been properly used.
Estimates Committee
- Largest Committee (30 members from Lok Sabha only).
- Suggests alternative policies for economy and efficiency.
- Does not audit past expenditures (future-focused).
Committee on Public Undertakings (COPU)
- 22 members (15 Lok Sabha + 7 Rajya Sabha).
- Reviews performance and financial efficiency of Public Sector Undertakings (PSUs).
2. Departmentally Related Standing Committees (DRSCs)
- Introduced in 1993.
- Total: 24 Committees as of now.
- Cover all major ministries and departments.
| Examples |
|---|
| Committee on Defence |
| Committee on Finance |
| Committee on External Affairs |
| Committee on Health and Family Welfare |
Main Work:
- Examine Demands for Grants,
- Examine bills referred to them,
- Scrutinize performance of ministries,
- Frame long-term policy suggestions.
3. Other Standing Committees
| Committee | Function |
|---|---|
| Rules Committee | Frame rules for conduct of business. |
| Privileges Committee | Deals with breach of privilege cases. |
| Ethics Committee | Examines complaints related to MPs’ conduct. |
| Committee on Petitions | Examines petitions submitted by the public. |
Ad hoc Committees
- Appointed for specific purposes and disbanded after task is completed.
| Type | Examples |
|---|---|
| Inquiry Committees | JPC on Bofors Scandal, JPC on 2G Spectrum. |
| Select Committees on Bills | Examine details of particular bills. |
Examples of Important Ad hoc Committees
- Joint Parliamentary Committee (JPC) on Stock Market Scam (2001).
- JPC on 2G Spectrum Case (2011).
- Select Committee on Citizenship Amendment Bill (2019).
Powers and Functions of Parliamentary Committees
- Examine bills in detail before passing.
- Scrutinize budget allocations and spending.
- Check misuse of power by government departments.
- Hold Ministries accountable.
- Improve quality of legislation.
- Create transparency and informed debate in Parliament.
Advantages of the Committee System
| Advantage | Details |
|---|---|
| Better Scrutiny | Small groups can go into greater detail. |
| Time-saving | Saves Parliament’s valuable time. |
| Expert Input | Committees call experts for opinions. |
| Bipartisan | Committees include members from all political parties. |
| Transparency | Reports published for public scrutiny. |
Limitations of Parliamentary Committees
- Recommendations are often advisory, not binding.
- Government may ignore committee reports.
- Politicization of Committees sometimes hampers work.
- Lack of media focus → public pressure on government missing.
Recent Developments
- Demand for referring more bills to Committees for better scrutiny.
- Debates about weakening of financial accountability due to reduced sittings.
- Criticism for bypassing Parliamentary scrutiny (e.g., farm laws 2020 not sent to Standing Committee).
Important Differences: Public Accounts Committee vs Estimates Committee
| Feature | PAC | Estimates Committee |
|---|---|---|
| Focus | Past expenditure | Future expenditure and estimates |
| Reports | CAG reports | Demand for grants |
| Membership | Lok Sabha + Rajya Sabha | Lok Sabha only |
| Chairmanship | Opposition party member | Ruling party member |
Conclusion
Parliamentary Committees are essential to India’s democracy.
They ensure that Parliament is not just a law-making machine but an institution of accountability, efficiency, and transparency.
Thus, strengthening the Committee system will strengthen Indian Parliament itself.
“A strong Committee system is the spine of legislative efficiency.“
Important Quick Facts for Prelims & Mains
| Fact | Detail |
|---|---|
| PAC established in | 1921 |
| Estimates Committee introduced in | 1950 |
| Strength of Public Accounts Committee | 22 members |
| Standing Committees total | 24 Departmentally Related |
| Committee examining CAG reports | Public Accounts Committee |