Parliament's Working Groups: Standing, Select, Financial, and Ad Hoc Committees Explained

Parliamentary Committees

Parliament is a large body with diverse, complex, and extensive responsibilities. Given the constraints of time and the technical depth required for legislative scrutiny, Parliament cannot effectively handle all matters in full session. It therefore delegates detailed examination work to smaller, specialized groups called Parliamentary Committees. These bodies allow focused, expert deliberation on issues before they are brought back to the House.

The Constitution of India references these committees at various points but does not prescribe detailed rules for their composition, tenure, or working procedures. These are instead governed by the Rules of Procedure of each House.

For a committee to qualify as a Parliamentary Committee, it must satisfy all four of the following conditions:

1. It is appointed or elected by the House, or nominated by the Speaker (Lok Sabha) / Chairman (Rajya Sabha).
2. It functions under the direction of the Speaker / Chairman.
3. It presents its report to the House or to the Speaker / Chairman.
4. Its secretariat is provided by the Lok Sabha or Rajya Sabha.

Important Distinction: Consultative Committees — though composed of MPs — do not qualify as Parliamentary Committees because they fail to satisfy these four conditions.

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Parliamentary Committees are broadly of two types:

A. Standing Committees

These are permanent bodies, constituted annually or periodically, and function on a continuing basis. They are classified into six categories:

1. Financial Committees
2. Departmental Standing Committees (24 in number)
3. Committees to Inquire
4. Committees to Scrutinise and Control
5. Committees Relating to Day-to-Day Business of the House
6. House-Keeping (Service) Committees

B. Ad Hoc Committees

These are temporary bodies constituted for a specific purpose. They cease to exist once their assigned task is complete. They are of two types:

• Inquiry Committees – Set up to investigate specific subjects.
• Advisory Committees – Mainly select or joint committees constituted to examine particular bills.

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These are the three most important committees for financial oversight of the executive:

1. Public Accounts Committee (PAC)

• Established: 1921 under the Government of India Act, 1919.
• Composition: 22 members — 15 from Lok Sabha and 7 from Rajya Sabha.
• Election: By Parliament annually through proportional representation using the single transferable vote (STV). All parties receive proportionate representation.
• Term: One year.
• Chairperson: Appointed by the Speaker from among members. Since 1967, by convention, the Chair is drawn from the Opposition.
• Ministers are ineligible to be members.

Primary Function: Examines the annual audit reports of the Comptroller and Auditor General (CAG), which are laid before Parliament by the President. The CAG submits three reports: audit report on appropriation accounts, on finance accounts, and on public undertakings.

Detailed Functions:

• Verifies that expenditure was legally authorized and conforms to governing rules.
• Ensures every re-appropriation followed prescribed procedures.
• Examines accounts of state corporations, trading and manufacturing entities, autonomous/semi-autonomous bodies (audited by CAG).
• Reviews any case where spending exceeded the amount sanctioned by Parliament.

Role of CAG: Acts as guide, philosopher, and friend to the PAC.

Limitations of PAC:

• Does not concern itself with broad questions of policy.
• Conducts a post-mortem review — expenditure has already occurred.
• Cannot intervene in day-to-day administration.
• Its recommendations are advisory, not binding on ministries.
• Has no power to disallow expenditure.
• Not an executive body — cannot issue orders; only Parliament acts on its findings.

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2. Estimates Committee

• Origin: Traces back to the 1921 standing financial committee; reconstituted in 1950 on the recommendation of Finance Minister John Mathai. Membership raised from 25 to 30 in 1956.
• Composition: 30 members — all from Lok Sabha only. Rajya Sabha has no representation.
• Election: By Lok Sabha annually through STV proportional representation.
• Term: One year.
• Chairperson: Appointed by Speaker; invariably from the ruling party.
• Ministers are ineligible to be members.

Primary Function: Examines budget estimates and suggests economies. Also called a 'continuous economy committee'.

Detailed Functions:

• Reports on possible economies and improvements in organization, efficiency, and administrative reform.
• Suggests alternative policies for greater efficiency.
• Examines whether funds are being deployed appropriately within policy limits.
• Recommends how estimates should be presented to Parliament.

Limitations:

• Examines estimates after Parliament has voted them — not before.
• Cannot question policies already laid down by Parliament.
• Recommendations are advisory only.
• Examines only selected ministries per year — covers all ministries on rotation over several years.
• Lacks the expert support of the CAG (unlike PAC).
• Work is post-mortem in character.

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3. Committee on Public Undertakings

• Created: 1964, based on the recommendation of the Krishna Menon Committee.
• Composition: Originally 15 members; raised to 22 in 1974 (15 from Lok Sabha, 7 from Rajya Sabha).
• Election: By Parliament annually through STV proportional representation.
• Term: One year.
• Chairperson: Appointed by Speaker from among Lok Sabha members only. Rajya Sabha members cannot be Chairperson.
• Ministers are ineligible to be members.

Functions:

• Examines reports, accounts, and CAG audit reports of public undertakings.
• Assesses whether public undertakings are managed on sound business and commercial principles.
• May exercise functions of the PAC and Estimates Committee over public undertakings as assigned by the Speaker.

Does NOT examine:

• Major government policy matters (distinct from commercial functions).
• Day-to-day administration.
• Matters that fall under a special statutory mechanism of the relevant undertaking.

Limitations:

• Can examine only 10–12 undertakings per year.
• Work is post-mortem.
• Members are not technical experts.
• Recommendations are advisory and not binding.

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• Established: 17 committees set up in 1993 on the recommendation of the Rules Committee of Lok Sabha. Expanded to 24 in 2004.
• Coverage: All 24 committees collectively cover all ministries and departments of the Central Government.
• Composition: Each committee has 31 members — 21 from Lok Sabha (nominated by Speaker) and 10 from Rajya Sabha (nominated by Chairman).
• Ministers are ineligible; if a member becomes a minister, they cease to be a committee member.
• Term: One year from constitution.
• Distribution: 8 committees function under Rajya Sabha; 16 under Lok Sabha.

Main Objectives:

• Strengthen executive accountability to Parliament, especially financial accountability.
• Facilitate more effective budget debates in Parliament.

Functions of Each Standing Committee:

1. Examines demands for grants of concerned ministries before they are voted in Lok Sabha (reports cannot contain cut motion-type suggestions).
2. Examines bills introduced in either House and referred to it.
3. Reviews annual reports of ministries and departments.
4. Considers national basic long-term policy documents laid before the Houses.

Restrictions:

• Cannot consider day-to-day administration of ministries.
• Should not duplicate the work of other parliamentary committees.
• Recommendations are advisory and not binding on Parliament.

Budget Examination Procedure:

• General budget discussion in the House concludes → Houses are adjourned for a fixed period.
• During adjournment, committees examine relevant demands for grants.
• Committees must submit reports within the allotted time — no extension allowed.
• The House then considers demands in light of these reports.
• Separate reports are made for each ministry.

Advantages of the DRSC System:

• Proceedings are free from party bias.
• More flexible procedure than full House proceedings.
• Enables detailed, continuous, in-depth parliamentary scrutiny of the executive.
• Promotes economy and efficiency — ministries are more careful with their demands.
• Allows all MPs to participate meaningfully in governance.
• Committees can call experts and eminent persons to depose before them.
• Strengthens the role of opposition parties and Rajya Sabha in financial oversight.

List of 24 DRSCs

Under Rajya Sabha (8):

• Commerce
• Home Affairs
• Human Resource Development
• Industry
• Science & Technology, Environment & Forests
• Transport, Tourism and Culture
• Health and Family Welfare
• Personnel, Public Grievances, Law and Justice

Under Lok Sabha (16):

• Agriculture; Information Technology; Defence; Energy; External Affairs; Finance; Food, Consumer Affairs and Public Distribution; Labour; Petroleum & Natural Gas; Railways; Urban Development; Water Resources; Chemicals and Fertilizers; Rural Development; Coal and Steel; Social Justice and Empowerment

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Committee on Petitions

• Examines petitions related to bills and matters of general public importance.
• Also considers representations from individuals and associations on Union subjects.
• Lok Sabha: 15 members; Rajya Sabha: 10 members.

Committee of Privileges

• Performs semi-judicial functions.
• Examines cases of breach of privileges of the House and its members and recommends action.
• Lok Sabha: 15 members; Rajya Sabha: 10 members.

Ethics Committee

• Constituted in Rajya Sabha in 1997 and in Lok Sabha in 2000.
• Enforces the code of conduct for MPs.
• Examines cases of misconduct and recommends appropriate punishment.
• Maintains discipline and decorum in Parliament.

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Committee on Government Assurances

• Constituted: 1953.
• Tracks whether assurances, promises, and undertakings given by ministers on the floor of the House have been fulfilled.
• Lok Sabha: 15 members; Rajya Sabha: 10 members.

Committee on Subordinate Legislation

• Constituted: 1953.
• Scrutinizes whether the Executive is properly exercising delegated legislative powers — i.e., making regulations, rules, sub-rules, and bye-laws within the bounds set by Parliament or the Constitution.
• Both Houses: 15 members each.

Committee on Papers Laid on the Table

• Constituted: 1975.
• Examines all papers laid before the House by ministers to verify compliance with constitutional or statutory requirements.
• Does not examine statutory notifications/orders under the jurisdiction of the Subordinate Legislation Committee.
• Lok Sabha: 15 members; Rajya Sabha: 10 members.

Committee on Welfare of SCs and STs

• Composition: 30 members — 20 from Lok Sabha, 10 from Rajya Sabha.
• Considers reports of the National Commissions for SCs and STs.
• Examines implementation of constitutional and statutory safeguards and welfare programmes for SCs and STs.

Committee on Empowerment of Women

• Constituted: 1997.
• Composition: 30 members — 20 from Lok Sabha, 10 from Rajya Sabha.
• Considers reports of the National Commission for Women.
• Examines government measures to secure status, dignity, and equality for women.

Joint Committee on Offices of Profit

• Composition: 15 members — 10 from Lok Sabha, 5 from Rajya Sabha.
• Examines the character and composition of committees and bodies set up by Central, state, and UT governments.
• Recommends which office-holders should be disqualified from standing for Parliament.

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Business Advisory Committee

• Regulates the programme and timetable of the House.
• Allocates time for legislative and other government business.
• Lok Sabha: 15 members including the Speaker as ex-officio Chairman.
• Rajya Sabha: 11 members including the Chairman as ex-officio Chairman.

Committee on Private Members' Bills and Resolutions

• Classifies bills and allocates time for discussion on private members' bills and resolutions.
• Lok Sabha only — 15 members including the Deputy Speaker as Chairman.
• Rajya Sabha has no such separate committee; the Business Advisory Committee of Rajya Sabha performs this function.

Rules Committee

• Considers matters of procedure and conduct of business in the House.
• Recommends amendments or additions to procedural rules.
• Lok Sabha: 15 members including the Speaker as ex-officio Chairman.
• Rajya Sabha: 16 members including the Chairman as ex-officio Chairman.

Committee on Absence of Members

• Considers applications for leave of absence from sittings.
• Examines cases of members absent for 60 or more days without permission.
• Lok Sabha only — 15 members. Rajya Sabha has no such committee; the House itself handles these matters.

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General Purposes Committee

• Advises on miscellaneous matters concerning the affairs of the House not covered by any other committee.
• Composition: Speaker/Chairman (ex-officio Chair), Deputy Speaker/Deputy Chairman, panel of chairpersons/vice-chairpersons, all DRSC Chairpersons, leaders of recognised parties and groups, and nominated members.

House Committee

• Deals with residential accommodation, food, medical aid, and other amenities for MPs in Delhi.
• Lok Sabha: 12 members.

Library Committee

• Manages all matters relating to the Parliament Library and assists MPs in using its services.
• 9 members — 6 from Lok Sabha, 3 from Rajya Sabha.

Joint Committee on Salaries and Allowances of Members

• Constituted under the Salary, Allowances and Pension of Members of Parliament Act, 1954.
• 15 members — 10 from Lok Sabha, 5 from Rajya Sabha.
• Frames rules regulating salary, allowances, and pension of MPs.

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Inquiry Committees

Constituted from time to time — either by both Houses through a motion, or by the Speaker/Chairman — to investigate specific subjects. Examples:

• Joint Committee on Bofors Contract
• Joint Committee to Enquire into Irregularities in Securities and Banking Transactions
• Joint Committee on Stock Market Scam
• Joint Committee on Telecom Licences and Spectrum Allocation
• Committee on MPLADS
• Committee on Food Management in Parliament House Complex

Advisory Committees (Select/Joint Committees on Bills)

• Constituted to consider and report on specific bills.
• A bill may be referred to a Select Committee (one House) or a Joint Committee (both Houses) by a motion in the House.
• For a Joint Committee: the other House is requested to nominate its members.
• The committee examines the bill clause by clause; members may move amendments.
• Can invite evidence from associations, public bodies, or experts.
• Members disagreeing with the majority may append minutes of dissent.
• Procedure is governed by Rules of Procedure and Directions of the Speaker/Chairman.

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• Attached to various Central Government ministries/departments.
• Composed of members of both Houses of Parliament.
• The Minister-in-charge of the concerned ministry acts as the committee's Chairman.
• Provide a forum for informal discussion between ministers and MPs on government policies and their implementation.
• Constituted by: Ministry of Parliamentary Affairs, which also sets guidelines for composition, functions, and procedures, and arranges meetings during sessions and inter-session periods.
• Membership is voluntary — left to the choice of members and party leaders.
• Minimum membership: 10; Maximum membership: 30.
• Constituted after each new Lok Sabha is formed; dissolved upon dissolution of the Lok Sabha.
• Separate Informal Consultative Committees are also constituted for all Railway Zones — meetings are held during session periods only (unlike regular consultative committees, which also meet in inter-session periods).

Key Distinction: Consultative Committees are not Parliamentary Committees — they do not satisfy the four defining conditions. They are attached to ministries for informal dialogue, not formal legislative scrutiny.

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• PAC vs Estimates Committee vs Committee on Public Undertakings — know the differences in composition, source of members, chairperson rules, and the role of CAG in each.
• Post-mortem nature of all three financial committees is a recurring theme.
• PAC Chairperson is from the Opposition (since 1967); Estimates Committee Chairperson is from the ruling party.
• Estimates Committee is the only major financial committee with no Rajya Sabha representation.
• DRSCs — 24 committees, 31 members each (21 LS + 10 RS), set up in 1993, expanded in 2004.
• Ethics Committee — RS (1997), LS (2000).
• Committee on Absence and Committee on Private Members' Bills and Resolutions — Lok Sabha only.
• The four defining conditions of a Parliamentary Committee is a frequent question.
• Consultative Committees: voluntary, min 10, max 30, constituted by Ministry of Parliamentary Affairs, dissolved with Lok Sabha.