One of the most unedifying sights in public life is lawmakers taking to organised disruption of legislative business. Such displays became common in Parliament in the past decade as political parties and legislators demonstratively advertised their points of view without recourse to debate. A number of crucial bills have taken an inordinate time to be enacted due to disruption, while others were not enacted despite a broad consensus — such as the Women’s Reservation Bill — due to the behaviour of a few naysayers. Many sessions of Parliament in the recent past saw little business being done due to repeated disruption. In this context, Vice President Venkaiah Naidu’s exhortation to political parties to incorporate a model code of conduct for their legislators in State Assemblies and in Parliament is welcome. He suggested that the code should include stipulations on members not entering the well of the House, and desisting from sloganeering and unruly acts. If indeed parties adopt a code, it will go a long way in making parliamentary work meaningful. Otherwise, the general public will lose interest in the procedural aspects of parliamentary democracy and limit their participation to just voting in the elections.
But the absence of disruption alone does not make for meaningful debate. The current Budget session sailed through with minimal disruption. Yet the high productivity during the session came without sufficient deliberation over crucial bills, several of which were rushed through without vetting by parliamentary standing and select committees. These committees have in the past been useful in expanding discussion over laws with civil society and experts from various streams of the larger society. They have also facilitated an enhanced cross-party coordination over issues. By not sending a single Bill among the 28 that were introduced and passed to a standing or select committee for scrutiny, the current session accentuated the trend that has minimised the importance of such committees over the last few years. Unlike the 15th Lok Sabha (2009-2014), when 71% of the bills were referred to such committees, in the 16th Lok Sabha, they constituted only a fourth of the overall number of bills. Time spent on debates in the current session in both the Lok Sabha and Rajya Sabha was barely a third of the overall business. This does not augur well for lawmaking. As Mr. Naidu has also pointed out correctly, deliberation is an important component of parliamentary democracy apart from legislation and accountability of lawmakers. All three aspects must cohere for a thoroughgoing procedural democracy.