Rusen Kumar - Founder and Managing Editor of India CSR

The Mahua Moitra case, and the response of the Lok Sabha Ethics Committee, brings to the forefront the importance of ethics in political leadership. It underscores the mechanisms in place within the Indian parliamentary system to address allegations of misconduct and the ongoing debate about the ethical standards expected of public officials. The case also highlights the complexities and challenges in maintaining ethical conduct in politics, given the interplay of different political interests and the need for rigorous evidence and fair procedures in addressing such allegations.

India’s political landscape has been historically guided by strong ethical and moral principles. Since ancient times, rulers in India were expected to adhere to strict ethical values, with an unethical king facing severe consequences. This intertwining of ethics and politics was not only a norm but a cultural expectation.

The Era of Moral Leadership

During the freedom struggle, India’s national leaders, influenced by this tradition, exhibited remarkable probity and honesty. Mahatma Gandhi, a key figure in this era, was not only a preacher of morality in public life but also a practitioner. His belief that politics devoid of morality is undesirable set a high standard for political conduct.

The Current Political Climate and Its Challenges

In contrast to this rich legacy, recent developments in Indian politics have raised alarms. There is a growing perception of a decline in moral values within the political system. This trend is worrisome for the future of Indian democracy, as it suggests a diminishing capacity of the democratic framework to maintain integrity and ethics in public life. The urgency to address and rectify this decline is paramount.

The Crucial Role of People’s Representatives

The erosion of moral values is not limited to politics but is a broader societal issue. In this context, the role of people’s representatives, particularly Members of Parliament, becomes pivotal. They are seen as role models and guardians of the populace’s destiny. Unfortunately, the ideological foundation and the spirit of service that should drive these representatives are fading. The influence of undesirable elements on political parties and the political system raises questions about maintaining probity across the board.

The Need for Self-Discipline in Parliament

Among various strategies to ensure integrity in public life, a self-disciplining mechanism within institutions like Parliament seems the most effective. This approach could foster a culture of accountability and ethical conduct among political leaders, which is essential for the health and future of Indian democracy.

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The Vohra Committee Report: Addressing the Criminal-Political Nexus in India

Background and Formation of the Vohra Committee

In the early 1990s, India was grappling with rising concerns about corruption and the criminalization of politics. Amidst these allegations, the government established the Vohra Committee on July 9, 1993. Led by N.N. Vohra, then Home Secretary of the Government of India, the committee’s mandate was to investigate the connections between crime syndicates, government officials, and political figures.

Key Findings and Presentation to Parliament

The Vohra Committee, after a thorough investigation, submitted its report, which was presented in both Houses of Parliament on August 1, 1995, followed by discussions on August 8, 23, and 24. The report highlighted a disturbing nexus among criminal gangs, the police, bureaucracy, and politicians across various regions of India. It pointed out the inadequacies of the existing criminal justice system in dealing with mafia activities and the legal challenges in prosecuting economic offences and confiscating assets acquired through these activities.

Recommendations for Reform

The committee recommended the establishment of a nodal agency under the Ministry of Home Affairs. This agency, led directly by the Union Home Secretary and supported by selected ministry officers, would gather and compile information from various intelligence agencies to combat the criminal-political nexus.

Subsequent Developments and Proposals

Following the Vohra Committee’s recommendations, an All-Party Meeting was convened on September 15, 1995, chaired by the then Union Home Minister, Shri S.B. Chavan. The meeting aimed to delve deeper into the issues of criminal-politician connections and the disclosure of assets by MPs and Ministers. Key proposals from this meeting included:

Establishment of a Parliamentary Ethics Committee: Unlike the Committee of Privileges, this body would oversee the conduct of Parliament members.
Code of Conduct for Political Parties: This code would promote cleaner public life, including provisions such as not nominating candidates with criminal records.
Transparent Financial Practices for Political Parties: Parties would be required to maintain open, audited accounts and publish them annually.
Strengthening the Nodal Group: Enhancing the powers of the group formed as per the Vohra Committee’s suggestions.
Legal System Reforms: Proposals for simplifying procedures and ensuring the swift delivery of justice.

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The Establishment of the Ethics Committee in Rajya Sabha

Context and Initial Steps

The formation of the Ethics Committee in the Rajya Sabha, the upper house of the Indian Parliament, marked a significant milestone in the country’s legislative history. Concerns over ethical conduct in politics had been growing, prompting the Rajya Sabha’s Business Advisory Committee in 1996 to propose a focused discussion among party leaders on this issue. Following this, a meeting initiated by I.K. Gujral, the then External Affairs Minister and former Prime Minister, was held with party leaders in the Rajya Sabha.

Deliberation by the General Purposes Committee

In 1997, the General Purposes Committee of the Rajya Sabha took up the matter for detailed consideration. Recognizing the need for an internal self-regulatory mechanism, the committee recommended the establishment of an Ethics Committee within the house.

Formation of the Ethics Committee

On March 4, 1997, the Ethics Committee of the Rajya Sabha was formally constituted by the Chairman of the Rajya Sabha. This committee was tasked with overseeing the moral and ethical conduct of its members and examining cases of ethical and other misconduct. The procedural rules applicable to the Committee of Privileges were also made applicable to the Ethics Committee, subject to variations and modifications as deemed necessary by the Chairman.

Inauguration and Significance

The Ethics Committee was inaugurated on May 30, 1997, by the then Vice-President of India and Chairman of the Rajya Sabha, K.R. Narayanan. The establishment of this committee was a crucial development in the evolution of Indian parliamentary democracy. Such committees are rare globally, and with the inauguration of the Ethics Committee, India joined a select group of countries that have institutionalized mechanisms to oversee the ethical conduct of their legislators.

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The Ethics Committee in Rajya Sabha: Composition and Initial Actions

Composition and Leadership of the Ethics Committee

The Ethics Committee of the Rajya Sabha, an essential body for maintaining parliamentary integrity, is composed of ten members, including its Chairman. Members are nominated by the Chairman of the Rajya Sabha, typically including the leaders, deputy leaders, or chief whips of their respective parties or groups within the Rajya Sabha. The Chairman of the Committee is generally from the largest party in the House.

The Role and Prestige of the Committee

K.R. Narayanan, while inaugurating the Committee on May 30, 1997, emphasized the significance of including party leaders in the committee. He noted that this decision was made to endow the committee with prestige and influence. It also aimed to create an indirect and informal connection with the political parties, all of which have a vested interest in upholding high ethical standards in parliamentary life. This approach was seen as a way to unify different political entities on the common ground of maintaining the integrity of Parliament.

The Ethics Committee has also been guided by the wise words of the then Chairman of Rajya Sabha, K.R. Narayanan, who, while inaugurating the committee,
had said :

“The institutions are the projection of a people’s character, experience and genius. They become strong and lasting only when they are in keeping with the people’s character and thinking, or else they tend to wither away. The Parliament and its organs cannot be expected to function much above the prevailing moral temper of the society of which they are the products. But they can function as guides and role models and help in defining the standards of conduct and maintaining the standards.”

Initial Deliberations and Consultations

After its establishment, the Ethics Committee began its work by engaging in detailed discussions regarding its mandate. This process involved consultations with representatives from various political parties, legal experts, and senior officials from the Union Ministry of Home Affairs, Cabinet Secretariat, and state home affairs departments. The committee also examined how parliamentary watchdog bodies in other countries dealt with moral and ethical aspects of parliamentary conduct.

Nationwide Interaction and Research

To gain a broader perspective, the committee conducted visits to various Indian states. During these visits, members interacted with diverse groups, including state legislators, civil servants, industrialists, legal experts, former judges, university vice-chancellors, and journalists. These interactions aimed to gather a wide range of opinions and insights on the issues at hand.

Guiding Philosophy of the Ethics Committee

K.R. Narayanan, in his inaugural speech for the committee, articulated a guiding philosophy. He highlighted that institutions reflect the character, experience, and genius of the people they represent. For these institutions to be robust and enduring, they must align with the moral temperament of the society. While Parliament and its bodies are products of society and cannot be expected to operate significantly above the society’s prevailing moral standards, they can serve as guides and role models, helping to define and maintain conduct standards.

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The Activities and Impact of the Rajya Sabha Ethics Committee

Overview of the Committee’s Work

Since its establishment, the Ethics Committee of the Rajya Sabha has been actively engaged in its mandate to oversee the moral and ethical conduct of its members. This has involved both consulting with experts and conducting its own internal deliberations.

Meeting Milestones

The Committee has demonstrated its commitment and diligence by holding a total of 50 meetings. These gatherings have been instrumental in shaping the committee’s approach and decisions regarding various ethical issues within the Rajya Sabha.

K.R. Narayanan while inaugurating the Committee on the 30 May 1997 said :

“By choosing the leaders of parties as Members we have tried to invest the
Committee with prestige and influence. In this way we have also sought to forge
a link, though indirectly and informally, with the political parties all of whom are
intensely interested in maintaining the highest ethical standards in our
parliamentary life. This, indeed, is a common platform on which all of us can
meet together to sustain the high standards of the august institution of Parliament.”

Presentation and Adoption of Reports

One of the key outputs of the Ethics Committee has been the formulation and presentation of reports to the Rajya Sabha. So far, the Committee has presented three significant reports:

First Report: Presented on December 8, 1998.
Second Report: Presented on December 13, 1999.
Third Report: Presented on August 12, 2002.

Parliamentary Discussions and Actions

The first two reports presented by the Ethics Committee were discussed and subsequently adopted by the Rajya Sabha on December 15, 1999. These discussions and adoptions signify the House’s commitment to addressing ethical concerns and implementing the recommendations of the Committee. However, the third report, as of the last update, is still pending discussion and adoption by the House.

The Ethics Committee has also been guided by the wise words of the then Chairman of Rajya Sabha, K.R. Narayanan, who, while inaugurating the committee,
had said :

“The institutions are the projection of a people’s character, experience and
genius. They become strong and lasting only when they are in keeping
with the people’s character and thinking, or else they tend to wither away.
The Parliament and its organs cannot be expected to function much above
the prevailing moral temper of the society of which they are the products.
But they can function as guides and role models and help in defining the
standards of conduct and maintaining the standards.”

Significance of the Committee’s Reports

The reports of the Ethics Committee play a crucial role in setting the standards for ethical conduct among Rajya Sabha members. They provide guidance, establish norms, and sometimes recommend actions or reforms to address specific ethical issues. The adoption of these reports by the Rajya Sabha reflects the House’s endorsement of these standards and its willingness to enforce them.

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