PARLIAMENTARY DEMOCRACY IN INDIA NEEDS A PRIME MINISTER OF THE PEOPLE

PARLIAMENTARY DEMOCRACY IN INDIA NEEDS A PRIME MINISTER OF THE PEOPLE

Not a nominee of political dictators

By Amba Charan Vashishth

BJP has announced its prime ministerial candidate for the 2014 Lok Sabha elections. The ruling Congress continues to maintain the suspense as it toys with various options. 

It is a travesty of India's parliamentary democracy that after Mr. P. V. Narasimha Rao (1996) with the exception of NDA (1998-2004), the post of prime minister (PM) has been reduced to an accident of maneuvers and manipulations. For the first time in independent India's history the country is carrying the baggage of a prime minister for over nine years the party has foisted on the people.

The very fact that elections are held only after every five years on the expiry of the term of House of the People, i.e. the Lok Sabha (LS), or earlier on its dissolution, is a clear indication that in the letter and spirit of the Constitution and the tradition formation of a government at the Centre (or in States) depends upon the verdict of the people given out through the exercise of their right to franchise. Since we follow the Westminster model of parliamentary democracy, it clearly means that the person who is duly and democratically elected by the elected LS members as their leader is the Prime Minister of the country and should be one of the LS members. This had been the tradition since the dawn of parliamentary democracy in India till the United Front government of Mr. H. D. Deve Gowda in 1996. He was not a LS member but he maintained the tradition availed himself of the first opportunity to enter Lok Sabha after becoming PM.

There have been only two instances of exception to the rule and tradition – that of Mrs. Indira Gandhi and Mr. Inder Kumar Gujral. Mrs. Gandhi was a RS member when she succeeded Mr. Lal Bahadur Shastri in late January 1966 following his unfortunate death. In between the Election Commission, for reasons best known to it, did not hold by-election to Allahabad Mr. Shastri represented or any other constituency. She did contest the LS elections next year in 1967 and won.

Mr. Inder Kumar Gujral became United Front's PM after the incumbent Mr. Deve Gowda was eased out on Congress Party's insistence on whose ventilator support from outside the Government was breathing. Before he could think of finding a seat to contest for LS, he was dethroned.

Now it looks as if our great erudite framers of the Constitution failed to visualize that in about fifty years our political parties will turn so bankrupt of mass leaders that though they would like to nominate a person as prime minister yet dare not expose him to the people dreading the vagaries of an uncertain electoral climate. That is why our political parties, particularly those in power, have turned the Constitution into just a wax which can be moulded to give any shape and form to promote their political goals.

They now exploit the absence of any specific provision in the Constitution stipulating in so many unambiguous words that a prime minister shall always be a LS member. They quote Article 75 which provides: (1)" The Prime Minister shall be appointed by the President……", (2) that the "ministers shall hold office during the pleasure of the President" and (3) that the "Council of Ministers shall be collectively responsible to the House of the People" (LS)".  It would be too simplistic and naïve to construe the wording of this Article as if it gives the President dictatorial powers to "appoint" anybody as a PM who need not be an MP at all.

Another shelter they seek behind is the provision in Article 75(5) that a "Minister who for any period of six consecutive months is not a member of either House of Parliament shall, at the expiration of that period, cease to be a Minister". This, again, is an attempt at arm twisting of the Constitution to make it subserve a party's or individual's purpose. This provision was inserted, as the debates in the Constituent Assembly indicate, with the purpose just to utilize the services and talent as ministers in the government of technocrats and specialists in their own fields because they otherwise shy away from the arena of elections. This Article was not meant to induct into the council of ministers, through the back door, persons rejected by the people during elections.

If the intention of the Constitution makers had been to stipulate that a prime minister could be from either House of Parliament, they were free to add the words "Prime Minister" too alongside "Minister" in Article 75(5). To infer that a "Minister" includes the prime minister is stretching a misnomer too far without logic.  Whether a prime minister is considered as "first among equals" or "the moon among the stars", the fact remains that a prime minister is a prime minister and a minister is just a minister. Even our Constitution makes a clear-cut distinction between the two and puts the position of the prime minister superior: "The Prime Minister shall be appointed by the President and the other Ministers shall be appointed by the President on the advice of the Prime Minister". Further, a prime minister is the leader of the majority party elected by its members; ministers are just MPs hand-picked by the prime minister or the party bosses. Therefore, trying to read prime minister in the word "Minister" is nothing short of denying the reality of the day.

There is an unambiguous distinction between a member of Rajya Sabha and that of Lok Sabha. The former is indirectly elected; the latter democratically elected directly by the people through the exercise of their right to franchise. The former has a tenure of six years, the latter's – and that of the council of ministers, even of those who are RS members – is only five years. After every five years, the latter has to go to the people for a fresh bout of elections; the latter has just to seek another round of maneuvers and manipulations of favour from the party bosses.

Further, if the intention of the Constitution had been that a prime minister need not necessarily be a LS member but could also be a RS member, then why is it that the life of the Council of Ministers coincides with that of the tenure of LS and not with that of RS?

It is customary for the incumbent prime minister to resign following the declaration of LS election results even if the party in power has won another mandate to rule the country. This is done because tenure of the Prime Minister and his Council of Ministers is coterminous with that of LS. They have to take oath as MPs afresh. If it is not mandatory that a prime minister should be a LS member, in that case if his party is voted to power again the PM need not resign at all because he continues to be RS member for which he has not to take a fresh oath. He needs just to get himself elected again as leader and reconstitute his ministry.

If PM is not a LS member, how can he and his "Council of Ministers be "collectively responsible" to the LS (Article 75(3)? If one is not a shareholder or stakeholder of a company, how can one be a director or CEO of that company and responsible to it?

In the alternative, one could go on stretching the argument to any length. No Article of the Constitution makes it mandatory that a prime minister must compulsorily be a member of either House of Parliament. As per Article 75(1) he is just "appointed by the President"; it doesn't say he must be an MP at all. While the Constitution stipulates as to who can and who cannot be a member of Parliament, no such condition has been prescribed for a person to be "appointed" as prime minister for six months without being a member of either House of Parliament {Article 75(5)). In that case a person needs only to manipulate to get himself "appointed" as the prime minister and command a majority in the LS to which he as head of the Council of Ministers "is collectively responsible" {Article 75(3)}.

Further, a prime minister could continue indefinitely, with a one or two day's break, to hold his office without being a member of the either House. In that case, a prime minister can resign a day before completion of his six months period without being a member of either House. The President, as per the tradition, will ask him to continue in office till alternative arrangements are made. After two days he can again get himself elected as leader and lay claim to majority in Parliament and seek to be invited to form government again. This exercise he can repeat a number of times and complete his tenure of five years as prime minister without being a member of either House of Parliament and without infringing a single word of the Constitution.  

Now that elections to the Lok Sabha are just about six months away, it is time all those eyeing the post of prime minister after elections respect both the letter and spirit of the Constitution "We, the people of India" gave unto ourselves." We need to make democracy truly a government of the people, by the people and for the people of India.

The writer is a Delhi based political analyst.

(Published in the SOUTH ASIA POLITICS November 2013 issue.