The Indian state, like many other states, is restructuring its regulatory framework with more powers being delegated to non-elected institutions. This process of delegation has been effectively carried out over the years, especially after liberalization, and this can, and has, increased transparency and accountability. Hence, to maintain dynamism along with parliamentary accountability there is need now more than ever to strengthen parliamentary oversight of these institutions; the executive is also to be strengthened by reducing their need to function by increasing the number of ordinances that are used as a substitute for legislation and weak financial oversight.
Day-to-day parliamentary scrutiny of the executive in financial matters is an area where greater emphasis and high degree of focus would greatly enhance the value of parliamentary functioning, and give much needed experience especially to the increasing numbers of the young and first-time members. The vitality of our parliamentary democracy has resulted in the proliferation of active participants, from five political parties in the first Lok Sabha to nearly fifty in the fourteenth Lok Sabha. The abundance of political parties in Parliament needs to be taken advantage of; and their functioning in Parliament has to be facilitated in a manner that strengthens both Parliament and the parties, thereby removing the barriers to collective action. These measures will soon narrow the growing gap between the complex demands that modern legislation places upon MPs on the one hand, and their capacity and inclination for attending to that legislation on the other.
Individual MPs doing good work in Parliament need to be consciously recognized and politically rewarded in their constituencies and within their political parties and coalitions. This will enhance the incentives for good parliamentary performance. As in the early days after freedom, Parliament has to once again become an effective voice on fiscal management, on the economy, on social policy and on the terms on which India is integrating into the global economy. There are no uncontrollable exogenous factors coming in the way of measures to strengthen the voice of Parliament, and encouraging positive, visionary leadership will surely encourage parliamentarians to shoulder new and challenging responsibilities for accountability and good governance.
Eminent personalities have made suggestions after several years of close observation of the functioning of Parliament. Some of them need to be considered seriously for implementation.
1. In the political plane
Adopt measures to counter the threat of destabilization of a coalition government by a small party, in the same way as measures exist to prevent defection of one or more members from a particular party. A small party (with say less than 10 or 15 per cent of seats in Lok Sabha), which first opts to join a coalition and then defects, can be disqualified.
All parties while in coalition should function under the banner of a single parliamentary party for purposes of parliamentary business.
Ministries should set annual targets and ministers must be held individually responsible for the actual performance in relation to announced targets in Parliament.
Carry out constitutional amendment to enable a government with a majority in Parliament to appoint, if it so wishes, up to 25 per cent of members of the Cabinet from outside Parliament.
Public funding of elections should be introduced.
Legislation should be made that either House cannot be adjourned more than twice in a week unless the listed business has been completed.
‘Voice vote’ should not be allowed procedurally to approve a Bill or legislative business. Counting of votes to be made compulsory.
The Speaker/Chairman is required by mandate to suspend or expel members who frequently disrupt the House.
2. In the administrative plane
Centralization: Transfer powers for internal security from states to Centre.
Decentralization: Transfer powers and responsibility for financing development programmes from Centre to states.
A Central Commission to be set up to decide on devolution of all forms of Central assistance related to approved anti-poverty programmes and relate such devolution to actual physical performance.
Specialized bodies need to be set up like UPSC for all appointments in autonomous institutions, regulatory bodies, and public enterprises, banks, financial, educational and cultural institutions in the public sector.
Reforms within government are made more urgently as the overall rate of growth has accelerated due to resurgence in the private sector.
New institutional initiatives urgently required for enforcing individual ministerial responsibility for efficient delivery of public services.
Planning Commission should be made responsible for placing before Parliament a report on actual achievements in relation to agreed annual physical targets.
A lid has to be placed on the tolerance levels of corruption at least at the ministerial levels.
Finally, in the judicial plane, reform of legal system can no longer be postponed.
As I have mentioned already, the emergence of multiparty coalitions as a regular form of government has significant implications for the working of India’s democratic institutions. The role and effectiveness of parliamentary functioning has therefore proportionately diminished. Enhancing the majesty of the role of Parliament is essential, so that its functioning adds considerable value to the executive in the conduct of its business, through shouldering of greater responsibilities through parliamentary oversight. Hence, such reforms are necessary to make the Parliamentary system more viable and more stable to fulfil the high expectations of our Constitution. Above all, these concerns are overshadowing the urgent need to strengthen internal security to cope with global terrorism and domestic lawlessness.
Economic disparities during this period of high growth have widened. The role of ministers in governance has increased and hence it is imperative that their accountability has to be increased substantially. Care has to be taken that their wide discretion in exercise of commercial and other statutory powers does not lead to diversion and misuse of public funds. The system of governance has to be redesigned so that there is no mismatch between supply and demand for political offices at higher levels that could lead to increase of ‘scarcity value’ of such offices.
Encouraging parliamentarians to play a more active role in planning and implementation of socio-economic missions would result in the emergence of a wide base of parliamentary leaders and diminish the influence of those who enjoy a ‘monopoly’ in the use and benefits of power. This will also result in a situation of positive leadership that will deny opportunities of entry into politics of persons with a history of criminal offences and other legal violations. Engaging parliamentarians more effectively to coordinate between various institutions would ensure effective socio-economic growth and make certain that multiple agencies and government departments do not work at cross-purposes, that differences in views and policy approaches are settled at the right time and stage of project work, and decisions do not have to be taken at higher and higher levels for resolution. This would result in Cabinet committees and Groups of Ministers having to address really important matters where even empowered parliamentarians have been unable to resolve these. With frequent nation- and state-and institution-wide elections and short party tenures, the enhanced role of parliamentarians would ensure effective functioning of the administrative system as a whole and ensure that the country need not repetitively face crises of governance.
Parliament has now to emerge with a new vision and leadership to make our nation not only enlightened, united, harmonious, rich and prosperous, but above all, a safe nation, invulnerable forever to invasion and infiltration across its borders. I visualize the following distinctive profile for India by the year 2020, if the Parliament today resolves to implement the Mission India 2020 for a strong, prosperous and happy nation.
The challenges in realizing the developed India 2020 vision also provide opportunities for innovation in every aspect of governance and legislative actions. As we review the govern
ance system and legislative processes for the twenty-first century, the full advantages and implications of technological revolutions, national and global connectivities, globalization and international cooperation and competition have to be taken into account.
The members of Parliament might like to debate these suggestions and evolve, with unified and harmonious leadership, a vision for the nation, in the same manner as when our Constitution was first drawn up. This twenty-first-century Parliamentary Vision for India needs to have a global and long-term perspective, and needs to be underpinned with implementation strategies, integrated structures and action plans for transforming India into a developed country by 2020 with National Prosperity Index as a measure and acquire energy independence before 2030.
It is this unique parliamentary vision and its effective implementation that would make our billion people smile. Working together in unity and harmony for a national vision is the greatest need of the hour for our parliamentarians. You will agree with me that this is one of the most important missions of our Parliament today.
The national awakening on issues relating to corruption, governance and others is emphasizing the need for Parliament to act with urgency and acumen.
AFTERWORD
There was always a feeling in my mind that what I have done in the area of nuclear weapons is against the ethos, philosophy and deeds of great human beings, till the day I met Acharya Mahapragya. Acharya Mahapragya was a fountainhead of knowledge who purified every soul that came into contact with him. It was around midnight, in October 1999, and Acharyaji had prayed three times with his monks for the welfare of the nation and the people. After the prayers, he turned to me and said words that still reverberate in my mind. He said, ‘Kalam, God bless you for what you have done with your team. But the Almighty has a bigger mission for you and that is why you are here with me today. I know our country is a nuclear nation now. But your mission is greater than what you and your team have done; it is indeed greater than what any human being has ever done. Nuclear weapons are proliferating in tens and thousands in the world. I command you and you only with all the divine blessing at my disposal to evolve a system of peace wherein these very nuclear weapons will become ineffective, insignificant and politically inconsequential.’
When Acharyaji finished his message, a hush fell over the hall. It appeared to me as though all nature concurred with the saintly message. For the first time in my life, I felt shaken. Since then, Acharyaji’s message has become my guiding light, and making it a reality a challenge that has given a new meaning to my life.
The action we took on the letter from a young girl that I quoted in Chapter 1 took a surprising, and pleasant, turn. The person we referred it to for help was a banker. He contacted the family. Together with them he worked out ways that helped them resolve all their financial issues. She got married and is happily settled. We were happy to know that our actions helped her achieve at least some of her dreams.
APPENDIX-I
Interview
I was interviewed by Manoranjana Singh of NeTV when I was in Mizoram after a visit to a number of states in 2006. I share this interview as it throws light on a number of issues, concerns and activities.
1. Do you also keep monitoring whether the state governments do act as per your detailed development missions of the states? Is there an effective monitoring mechanism?
I have given the road map using the experience I had through my visits to the states, inputs from the Planning Commission, inputs from the state government and the central ministries and independent evaluation. My team had spent sleepless nights preparing the presentations. I emphasized that the development of the state is more important and the state is bigger than the political parties. Also, I allowed discussions on the missions by the participating members. After my presentations, a number of state assemblies have conducted full-fledged sessions for discussing the implementation plan of the proposed missions. Also whenever I have visited the state later and addressed the universities, chambers of commerce and other business and service institutions, I have always referred to the missions and created linkages between the institutions and the missions of the state. For example, Karnataka, Madhya Pradesh, Bihar have taken follow-up action on all the missions and they are on the way to implementing them. In Kerala, the media also took the initiative and facilitated discussion with the government, intellectuals and other stakeholders. They have given an action plan for implementing the missions, thus, the media has become one of the partners of the state government. In the north-east, I gave the missions for Sikkim, Mizoram, Arunachal Pradesh and Meghalaya. These states specially have to give attention to harvesting hydro power and networking of water bodies and action to prevent damage to agriculture produce during bamboo flowering.
2. Is your road map an addition to the planned development as laid down in the annual and five-year plans? Is there any conflict between the two?
When we were preparing the road map, we asked for details from all the ministries, state governments and also the Planning Commission. We took the development radar prepared by the Planning Commission on an eight-point criteria. Our aim was to improve on all the parameters of the development radar and to integrate all the developmental activities leading to accelerated realization of goals. The missions that we proposed were based on the core competence of the state and were complementary to the state plan and the five-year Plans of the Planning Commission.
What we gave is a long-term perspective for making the state a developed one before 2015, since it is developed states that will make India developed before 2020.
3. Your intellectual breadth and vision and hands-on experience with science and technology applications have played a major role in framing these road maps. But does it not project a challenge to your successors in this august office that you have been holding with such distinction?
I personally believe any good system, irrespective of the incumbents, it will survive. What I have found in the past four years, there is a general awakening in the country about economic development. There are also some good successes. That is one reason, I think, a number of state assemblies have given me an opportunity to discuss the development missions. When I started with one or two assemblies, other state assemblies also wanted me to come and address them. I therefore see that the Indian people, Indian political system have started believing in the concept of mission-oriented development programmes for national growth. It requires a road map and an action-oriented plan, which may be fine-tuned based on mid-course performance review.
I personally believe, the President’s Office has to have a professional team to generate the type of documents they prepared and presented to assemblies. Of course as you rightly pointed out it is a new initiative for the President’s Office and is a very purposeful national mission. Also, this provides an opportunity to the president to be in constant touch with the needs of the citizens.
4. Though the Constitution sets down the presidential powers and the government’s responsibilities, in the last four years have you found many areas of overlap, conflict and grey areas in the relationship between the president and the prime minister?
The system is very good and resilient; it allows for plenty of opportunities to work together. When the tasks are executed keeping in mind the philosophy that the nation is bigger than any individual, there is no relationship problem. The two governors’ conferences show the type of integrated working by the president and the prime minister.
5. One such area where the differences came up in the public was the Office of Profit legislation. How did you react when the Bill you objected to was returned to you, forcing you to sign it irrespective of your better judgement?
The issues connected with the Office of Profit Bill are quite clear. The decision we took was in strict conformity to the constitutional provisions both in letter and spirit. You will notice that the further actions by both the Houses of Parliament in terms of formation of the JPC and the general mood of the
people and political parties vindicated our stand. I signed the Bill only after the formation of the JPC for evolving the guidelines for the members of Parliament on the definition of office of profit.
6. In your favourite area of science and technology and your remarkable campaign to wake up young minds to the opportunities in science, what new steps should the government take, according to you?
a. The entire primary and secondary education requires a revamping in terms of making children creative. Of course, the Right to Education Bill passed by Parliament was under discussion in the state legislature. Eventually the Right to Education Act will lead to the provision of compulsory and free education to all the children in the nation in the age group 6 to 14.
b. Major reform is needed in primary education. The expert team on primary education has to evolve a creative syllabus, creative classroom and above all deploy trained creative teachers.
c. Science and technology should be oriented towards realizing the India 2020 missions.