How Will the Opposition Balance Parliamentary Committees?

Dr Shashi Tharoor, a former UN diplomat, has been reappointed as the chair of the External Affairs Committee.

Parliamentary committees serve as crucial threads of Indian democracy, weaving together oversight, expertise, and bipartisan cooperation. The recent appointments to these committee chairs for the 2024-25 session have once again brought to light the significant role of Opposition leaders in the legislative process. At the forefront of this development is the reappointment of Dr Shashi Tharoor, the erudite Congress leader and former UN diplomat, as chair of the External Affairs Committee. This move, along with several other key appointments, underscores a commitment to leveraging Opposition perspectives and ensuring diverse voices in governance.

The practice of appointing Opposition members to lead parliamentary committees is not merely a gesture of inclusivity; it is a cornerstone of robust democratic functioning. By entrusting leaders like Tharoor with pivotal roles, the government acknowledges the wealth of experience and critical viewpoints that Opposition figures bring to the table. This approach not only enhances the committees' ability to scrutinise government actions effectively but also fosters an environment of collaborative governance on matters of national importance. 

Historical Context and Recent Shifts

Parliamentary committees in India, established in their current form following the 1993 reforms, were designed as instruments to enhance legislative scrutiny and provide a platform for detailed policy examination. The inclusion of Opposition members in leadership roles has been a deliberate strategy to ensure diverse perspectives and maintain democratic checks and balances.

The 2024-25 committee appointments reflect a significant shift in the balance of power between the ruling party and Opposition compared to the previous term. This change is a direct result of the increased strength of Opposition parties following the 2024 general elections. During the 2019-2024 term, the BJP and its allies held a dominant position in parliamentary committees due to their overwhelming majority.

The Congress party, for instance, held chairmanship of only three committees: Science and Technology (Jairam Ramesh), Commerce (Abhishek Singhvi), and Chemicals and Fertilisers (Shashi Tharoor). 

The new appointments represent a marked departure from this previous imbalance. In addition to Tharoor's reappointment to the External Affairs Committee, other significant appointments include Saptagiri Ulaka (Congress) heading Rural Development and Panchayati Raj, and Digvijaya Singh (Congress) leading Education, Women, Children, Youth, and Sports. The diversity of Opposition representation is further evident in appointments such as Dola Sen (Trinamool Congress) chairing the Labour Committee, and Kanimozhi Karunanidhi (DMK) heading the Environment and Forests Committee.

Notably, only two of the 24 committees are chaired by women, an area where inclusivity continues to lag. Kanimozhi and Dola Sen, both experienced parliamentarians, represent this minority. Their roles in these key committees highlight the need for greater gender representation within the leadership of India’s parliamentary system. Gender parity remains an elusive goal in Indian politics, particularly in spaces of legislative power. 

These changes demonstrate a commitment to leveraging diverse expertise across party lines and provide a platform for experienced Opposition leaders to contribute meaningfully to governance. However, despite these appointments, the BJP and its allies still retain control of 15 committees, including many of the most influential ones, maintaining a firm grip on the legislative agenda. 

Political Implications and Challenges

The distribution of committee chairs reveals a carefully calibrated political strategy. While the Opposition secured several key positions, the BJP and its allies retained control of the majority of committees, including the critical ones on Finance, Defence, and Home Affairs. This arrangement allows the ruling party to demonstrate a commitment to inclusive governance while ensuring it maintains control over the broader legislative process.

For Opposition parties, participation in this system presents a complex challenge. It offers a chance to remain engaged in the policy-making process and demonstrate governance capabilities. However, there’s a risk of co-option, potentially lending legitimacy to a system where their influence is ultimately limited.

The ruling party, meanwhile, benefits from this arrangement by projecting an image of openness to alternative viewpoints without ceding significant power.

Despite the symbolic significance and potential benefits of these appointments, the actual influence of Opposition-led committees often falls short of expectations. While these committees produce comprehensive reports and recommendations, their impact on policy-making remains limited. The government's selective engagement with committee suggestions underscores a fundamental tension between inclusive governance and political control. 

Strengthening Democratic Institutions

As India confronts increasingly complex policy challenges, from economic reforms to geopolitical shifts, enhancing the effectiveness of parliamentary committees becomes crucial. Several reforms could strengthen these bodies. Granting committees more statutory power, including mandatory government responses to recommendations within specified timeframes, would be a significant step. Enhancing research capabilities and ensuring timely access to information would also bolster their effectiveness.

Increasing public engagement with committee proceedings could transform them from technocratic entities into vital links between policy-making and public opinion. Additionally, encouraging media coverage of committee activities would create public awareness and pressure for the implementation of recommendations. 

For Opposition leaders, maximising the impact of their roles requires a delicate balance between working within established structures and pushing for meaningful oversight.

The appointment of seasoned opposition leaders to chair parliamentary committees represents both an opportunity and a challenge for Indian democracy. While it falls short of true power-sharing, it provides a mechanism for diverse voices to contribute to the policy-making process. 

What Lies Ahead for Parliamentary Committees? 

The vitality of India’s democratic institutions remains a work in progress. The role of opposition-led parliamentary committees in this journey is not just a matter of political manoeuvring but a reflection of the country’s commitment to pluralistic governance. The coming years will reveal whether this practice can evolve from symbolic gestures into a cornerstone of India's parliamentary democracy, fostering a governance model that truly harnesses the nation’s diverse expertise and perspectives.

The gender imbalance in committee leadership, with only two women chairing committees, stands as a reminder of the need for further progress in political inclusivity. If parliamentary committees are to serve as engines of accountability and governance, they must reflect the full spectrum of Indian society — across party lines, genders, and regions. 

(Ashraf Nehal is a foreign policy analyst and a columnist who mainly tracks South Asia. He can be reached on Twitter at @ashrafnehal19 and on Instagram at ___ashraf___19. This is an opinion piece and the views expressed are the author's own. The Quint neither endorses nor is responsible for his reported views.)