Turning Points (18 page)

In the government and public sector, we need marked improvement at all levels not only in terms of output, profits and public savings, but also in provision of vital public services in the fields of education, health, water and transport. Many eminent scholars have also studied the functioning of Parliament, and identified the wide variety of institutional challenges facing the Indian Parliament. I have reviewed them carefully, and shall voice some of their important observations and concerns.

There is an all-pervading feeling in the nation that the time is ripe for improvement in the effectiveness of Parliament as an institution of accountability and oversight. Parliament can use many instruments for ensuring accountability of governmental performance, such as motions on the floor, oversight powers, and the committee system. But these instruments increasingly need rejuvenation. The fact that the Indian economy is globalizing has strengthened our economy. The nation is richer, but great vigilance is needed to enhance the power of Parliament in two respects. Much of economic decision making is now increasingly governed by international treaties, and the
Indian Parliament is one of the few parliaments in the world that does not have a system of effective treaty oversight in place
. These treaties are by and large a fait accompli by the time they come to Parliament. Hence the power to oversee and legislate on treaties and agreements with foreign nations is urgently required for Parliament.

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

1. 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.
   
2. All parties while in coalition should function under the banner of a single parliamentary party for purposes of parliamentary business.
   
3. Ministries should set annual targets and ministers must be held individually responsible for the actual
   performance in relation to announced targets in Parliament.
   
4. 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.
   
5. Public funding of elections should be introduced.
   
6. Legislation should be made that either House cannot be adjourned more than twice in a week unless the listed business has been completed.
   
7. ‘Voice vote’ should not be allowed procedurally to approve a Bill or legislative business. Counting of votes to be made compulsory.
   
8. The Speaker/Chairman is required by mandate to suspend or expel members who frequently disrupt the House.
   

2. In the administrative plane

1. Centralization:
   Transfer powers for internal security from states to Centre.
   
2. Decentralization:
   Transfer powers and responsibility for financing development programmes from Centre to states.
   
3. 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.
   
4. 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.
   
5. Reforms within government are made more urgently as the overall rate of growth has accelerated due to resurgence in the private sector.
   
6. New institutional initiatives urgently required for enforcing individual ministerial responsibility for efficient delivery of public services.
   
7. Planning Commission should be made responsible for placing before Parliament a report on actual achievements in relation to agreed annual physical targets.
   
8. A lid has to be placed on the tolerance levels of corruption at least at the ministerial levels.
   
9. 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 governance 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

T
here 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.