N4S:India’s Parliament isn’t playing the role it should in governance, and that’s a big problem. Fewer debates, weaker committee oversight, and a more powerful executive are making our democracy less accountable. UPSC often asks about how Parliament holds the government in check (like in the 2021 Mains question: “To what extent is Parliament able to ensure executive accountability?”). But many aspirants struggle to see how this decline in scrutiny affects real life—like how the Farm Laws (2020) passed with barely any discussion, sparking nationwide protests, or how the lack of committee review led to loopholes in the Data Protection Bill.This article breaks it all down. It gives you the numbers—only 16% of bills in the 17th Lok Sabha were sent to committees. It highlights shocking examples—like how the Farm Laws (2020) were cleared in just 7 minutes. And it makes things relatable by comparing India’s Parliament to others, like the UK’s Prime Minister’s Questions or the US Senate Committees.By the end, you’ll not only understand the issue but also have a solid, reform-based perspective—something that can make all the difference in UPSC Mains.

PYQ ANCHORING:

1.  To what extent, in your view, the Parliament is able to ensure accountability of the executive in India? [GS 2, 2021]
2. Do Department-related Parliamentary Standing Committees keep the adminis tration on its toes and inspire reverence for parliamentary control? Evaluate the working of such committees with suitable examples.  [GS 2, 2021]

MICROTHEMES: Executive Vs Legislature, Parliamentary Committees

“Parliament is the temple of democracy.” — Dr. B.R. Ambedkar.

But is this temple maintaining its sanctity? The 17th Lok Sabha convened for 274 sittings over five years, totaling 1,354 hours, with 387 hours lost to disruptions. Despite these challenges, the House passed 222 bills, yet only 16% were referred to committees for detailed scrutiny—the lowest in the past four Lok Sabhas. 

Why is parliamentary productivity declining even as governance becomes more complex? Are significant laws being enacted without sufficient debate, thereby weakening the foundations of our democracy? With shorter sessions and an increasing reliance on ordinances, is Parliament’s role being overshadowed by executive actions?

Current Status of the Indian Parliament Functioning  

Key Issues in Parliamentary Functioning

1. Declining Productivity: The 17th Lok Sabha had only 47% productivity, the lowest in recent history. The 2023 monsoon session saw just 18% functioning in the Lok Sabha and 28% in the Rajya Sabha due to frequent disruptions.
   
2. Decline in Debates: Budget session debates have drastically reduced from 123 hours in 1990 to just 12 hours in 2023. Many Bills passed with little discussion—42% were cleared in under 30 minutes in the 17th Lok Sabha. The Farm Laws (2020) were passed in just 7 minutes in the Rajya Sabha without a proper vote.
   
3. Fewer Sitting Days: Parliament now meets for around 70 days a year, compared to 120-140 days in the 1950s. Other democracies perform better—Britain’s Parliament sits for 150-170 days, and the U.S. Congress for 260 days.
   
4. Rise in Ordinances: Over 750 ordinances have been issued since 1950, bypassing parliamentary debate. From 2014 to 2023, 76 ordinances were passed, including the Farm Laws (2020).
   
5. Weaker Budget Scrutiny: In 2023, over 75% of budget requests were passed without discussion. Only 11% of government spending underwent proper parliamentary scrutiny.
   
6. Marginalization of Opposition: In 2023, 146 Opposition MPs were suspended in a single session for demanding a debate on security breaches.
   

Indian Parliament vs Other Democracies 

Country	Sitting Days Per Year	Productivity & Challenges	Committee System / Structured Sessions	Impact on Productivity
India	~60-70 days	Low productivity due to frequent disruptions (2023: Lok Sabha 34%, Rajya Sabha 24.4%).	Parliamentary committees exist but often lack autonomy and depth.	Disruptions and lack of structured debates slow down legislative work.
United States	~130-140 days	Political gridlock delays legislation, but sessions are consistent.	Standing Committees (e.g., Senate Judiciary, House Ways & Means) review bills before floor debates.	Reduces debate time in full Congress and allows specialized discussions.
United Kingdom	~150-160 days	Fewer disruptions, well-structured debates.	Prime Minister’s Questions (PMQs) ensures weekly accountability; Select Committees scrutinize government policies.	Streamlines debates and ensures government responsiveness.
Germany	~100-110 days	Strong committee system balances fewer plenary sittings.	Bundestag Committees (e.g., Finance, Foreign Affairs) shape legislation before votes.	Legislative work is done in committees, reducing full parliamentary workload.
Australia	~60-70 days	Despite fewer sittings, structured committees enhance legislative scrutiny.	Senate Estimates Committees review government spending and policies before budget approvals.	Increases transparency and prevents delays in financial legislation.
Canada	~120-130 days	Balanced productivity with efficient legislative oversight.	House of Commons Standing Committees (e.g., Public Safety) hold inquiries, hearings, and bill reviews.	Ensures informed decision-making before bills reach the final stage.

Key Inferences:

• India’s parliamentary productivity is among the lowest, largely due to frequent disruptions.
  
• Other democracies manage to maintain steady legislative activity through structured schedules and strong committee systems.
  
• The number of sitting days alone is not an accurate measure—committee work and session efficiency are also crucial.

Reasons for the Decline of the Indian Parliament

Here is the summarized table:

Category	Reason	Explanation	Substantiation (Data and Examples)
Disruptions and Partisanship	Frequent Disruptions	Regular interruptions hinder legislative work and reduce productive time.	In 2023 Monsoon Session, Lok Sabha functioned for only 43% of its scheduled time, Rajya Sabha for 55%.
	Lack of Bipartisanship	Political polarization limits consensus and constructive debates.	The 2016 GST Bill was a rare instance of bipartisan cooperation.
Weakening of Parliamentary Processes	Decline in Committee Scrutiny	Fewer bills are referred to committees, leading to inadequate review.	Only 17% of bills in the current Lok Sabha have been referred to committees.
	Rapid Passage of Bills	Laws are passed with minimal debate, impacting legislative quality.	In 2023 Monsoon Session, 20 out of 22 bills were passed with less than an hour of discussion each.
Executive Overreach and Judicial Intervention	Executive Dominance	The executive’s increasing control weakens Parliament’s role.	Frequent ordinance usage and the misuse of the Money Bill provision (e.g., Aadhaar Act 2016).
	Judicial Activism	Judiciary steps in due to legislative gaps, reducing Parliament’s authority.	In Kalpana Mehta v. Union of India (2018), the Supreme Court stressed greater parliamentary scrutiny.
Structural and Institutional Challenges	Criminalization of Politics	A significant number of MPs have criminal records, affecting integrity.	In 2024 Lok Sabha elections, 46% of winning candidates had criminal cases, up from 43% in 2019.
	Lack of Research Support	MPs lack independent research assistance, affecting informed decision-making.	Unlike the U.S. and U.K., India lacks a dedicated Parliamentary Budget Office.
	Diminished Debate Quality	Parliamentary debates focus more on personal attacks and disruptions.	Increased instances of walkouts, sloganeering, and personal accusations.
	Lack of Institutional Reforms	Proposed reforms to improve efficiency and oversight remain unimplemented.	The M.N. Venkatachaliah Committee (2002) recommended limiting ministers, but it remains unimplemented.

Impact of Parliamentary  Decline

Here is the summarized table:

Category	Reasons	Explanation	Substantiation (Data and Examples)
Weakening of Democratic Accountability	Reduced Oversight	Curtailment of Question Hour limits MPs’ ability to scrutinize the government.	Question Hour was suspended in the 2020 Monsoon Session, reducing transparency on COVID-19 policies.
	Rubber-Stamp Legislature	Bills are passed without thorough debate, undermining legislative scrutiny.	The Farm Laws (2020) were passed without parliamentary committee review, leading to protests and repeal.
Rise of Executive Dominance	Ordinance Raj	The executive bypasses Parliament by issuing ordinances.	The Aadhaar Act (2016) was initially implemented via an ordinance, bypassing scrutiny.
	Majoritarian Politics	Opposition voices are sidelined, reducing balanced decision-making.	The abrogation of Article 370 (2019) was pushed through with limited opposition consultation.
Impact on Federalism	Strained Centre-State Relations	Governors are allegedly used to destabilize opposition-ruled states.	In Maharashtra (2022), the governor’s role in government formation led to instability and legal battles.
	Marginalization of Regional Interests	State-specific concerns are overlooked in national policy debates.	GST compensation delays (2020-21) caused financial distress in states like Punjab and Kerala.
Decline in Public Trust	Trust Deficit	Poor attendance and disruptions reduce public faith in Parliament.	The 2021 Winter Session had only 47% productivity in Rajya Sabha due to repeated disruptions.
	Disillusionment with Democracy	People lose faith in Parliament as a platform for real change.	The Lokpal Bill took decades to pass despite strong public demand, highlighting inefficiency.
Polarization of Politics	Lack of Dialogue	Reduced bipartisan discussion increases hostility.	The Citizenship Amendment Act (CAA) was passed in 2019 amid protests and limited opposition participation.
	Divisive Electoral Strategies	Parties use aggressive rhetoric rather than consensus-building.	Hate speech during elections led to communal tensions, as seen in the Delhi riots (2020).
Erosion of Constitutional Principles	Bypassing Constitutional Norms	Government bypasses constitutional provisions in lawmaking.	The Finance Act (2017) was passed as a Money Bill to avoid Rajya Sabha scrutiny.
	Weakening of Parliamentary Traditions	Declining institutional respect and adherence to norms.	In 2021, Lok Sabha had a record low of only 33 sittings, weakening democratic practices.

Let me know if you need any modifications!

Way Forward

Revitalizing the Indian Parliament requires a multi-pronged approach focusing on institutional reforms, political accountability, and public engagement. Key steps include:

1. Increasing Parliamentary Sitting Days: Implementing recommendations of the NCRWC (2002) and Rajya Sabha Committee (2008) to ensure a fixed calendar and a minimum of 100 sitting days annually.
2. Strengthening Parliamentary Committees: Ensuring all Bills undergo detailed scrutiny by committees with adequate research support, as suggested by the Standing Committee on Personnel, Public Grievances, and Law (2018).
3. Establishing a Parliamentary Budget Office (PBO): Modeled on the U.S. Congressional Budget Office, it would provide independent fiscal analysis, improving budget scrutiny and accountability.
4. Reforming the Anti-Defection Law: Following the Law Commission’s 170th Report, limiting disqualification to confidence and money bills, allowing MPs to dissent freely.
5. Enhancing Public Participation: Expanding digital platforms like MyGov for wider public consultations and greater transparency in legislative debates.

India’s Parliament, once celebrated as the “temple of democracy,” risks becoming a mere formality. The erosion of debates, declining accountability, and reduced legislative oversight weaken democratic governance. A revival demands structural reforms, political commitment, and active public engagement. Strengthening Parliament is not just an institutional necessity but a constitutional imperative to ensure a vibrant and responsive democracy.

#BACK2BASICS: Enhancing Parliamentary Productivity: Key Mechanisms and Practices

Parliamentary productivity relies on mechanisms that improve efficiency, accountability, and legislative effectiveness. In India, these tools ensure that Parliament fulfills its core functions of legislation, oversight, and representation.

1. Parliamentary Committees

Role: These specialized groups of MPs conduct in-depth scrutiny of bills, budgets, and policies, enabling detailed deliberation that may not be feasible in full parliamentary sessions.

Impact: By referring bills to committees, Parliament ensures higher-quality legislation, enriched by expert analysis and bipartisan discussions.

2. Question Hour and Zero Hour

Question Hour: A dedicated session where MPs question ministers on departmental functioning, ensuring executive accountability and transparency.

Zero Hour: A platform for MPs to raise urgent matters of public interest without prior notice, ensuring responsiveness to immediate national concerns.

3. Legislative Debates

Purpose: Parliamentary debates provide a structured space for MPs to discuss proposed laws, policies, and national issues, ensuring diverse perspectives are considered before decision-making.

4. Leveraging Information and Communication Technology (ICT)

E-Parliament Systems: Digital tools such as electronic voting, live streaming of proceedings, digital bill tracking, and e-libraries enhance transparency and accessibility.

Digitization of Records: Official transcripts (Hansard), reports, and committee minutes are digitized, ensuring easy access for MPs and the public.

5. Citizen Engagement Mechanisms

Public Consultations: Draft bills undergo public review, allowing citizens to contribute to the legislative process.

Petitions: Citizens can formally raise concerns and suggest policy changes, strengthening democratic participation and trust.

6. Time Management Tools

Scheduled Sessions: Structured time slots for debates, voting, and discussions optimize parliamentary functioning.

Productivity Metrics: Measures such as the Parliamentary Productivity Index track disruptions and session efficiency, promoting accountability.

7. Capacity Building for MPs

Training Programs: Workshops on legislative procedures, digital tools, and policy analysis equip MPs with the necessary skills to enhance their legislative contributions.

8. Oversight Mechanisms

Institutional Oversight: Reports from the Comptroller and Auditor General (CAG), the Public Accounts Committee (PAC), and departmental standing committees scrutinize government actions, ensuring transparency and fiscal discipline.

By effectively utilizing these tools, Parliament can strengthen governance, ensure democratic accountability, and produce more robust legislative outcomes.

PRACTICE QUESTION

Declining productivity and disruptions have raised concerns about the effectiveness of the Indian Parliament. Critically analyze whether the Parliament is losing its democratic edge. 

DEMAND:  The question demands a critical analysis of the Indian Parliament’s declining productivity, exploring causes, consequences, and whether it is weakening its role as a democratic institution.