i

Parliamentary Control and Oversight: A Study on the Performance of

Parliamentary Standing Committee on Ministry of Environment & Forests on
Environment Related Issues.

MD. OHIDUZZAMAN
ohid1986@fsmail.net

Abstract

The scope and limits of parliamentary control and oversight of environmental issues in
Bangladesh are explored in this research. It focuses on individual & collective techniques
of parliamentary control and identify constrains that limit their potential in ensuring
parliamentary accountability to achieve environmental sustainability. The role of
parliament and parliamentary committee on ministry of environment and forest to protect
our environment has largely been analyzed on the basis of collective and individual
activities of the members of parliament from seventh Bangladesh parliament. The
findings have shown that parliamentary committee on ministry of environment and forest
of the 7th parliament had given more importance to the routine matters of the ministry &
its department's activities (e.g., irregularities and corruption) than that of 8th parliament.
In 8th parliament, this committee had dealt with more on environmental issues.
Committees' discussions were general in nature on environmental issues and often
switched to other issues without completion of the discussion. This committee also has
worked in an environment with limited resources, without expertise which was
antagonistic to its natural growth. Although the relationship between this committee &
concerned ministry (environment & forest) had more harmonious during 8th Bangladesh
parliament than of 7th, still standing committee on ministry of environment and forest
needs to do more to protect the country's environment.
 ii

Acknowledgements

The author conveys his heartiest gratitude to Mr. Taiabur Rahman PhD, Associate
Professor, Department of Development Studies, University of Dhaka for his invaluable
guidance and supervision to the study and in preparing the manuscript. The author also
conveys his gratefulness to the Chairman and other teachers of the Department of
Development Studies, University of Dhaka for their invaluable suggestions to improve
this document. The author also acknowledges the indebtedness to the hon'ble Speaker of
Bangladesh Parliament and Chairman of the Standing Committee on Ministry of
Environment and Forest for giving approval of this study. The author acknowledges his
debt to the officer and staff of committee section-8 of Parliament Secretariat for providing
necessary documents for this research.
 iii

Abbreviations

AL Awami League
BFIDC Bangladesh Forest Industries Development Corporation
BFRI Bangladesh Forest Research Institute
BJS Bangladesh Jatiyo Sangsad
BNP Bangladesh Nationalist Party
CCF Chief Conservator of Forest
DFO Divisional Forest Officer
DoE Department of Environment
GOB Government of Bangladesh
JS Jatiyo Sangsad(Parliament)
KAFCO Karnaphuli Fertilizer Company
MBA Master of Business Administration
MoEF Ministry of Environment and Forest
MOU Memorandum of Understanding
MP Member of Parliament
PAC Public Accounts Committee
PD Project Director
PEC Public Estimate Committee
PMQT Prime Minister's Question Time
PS Parliament Secretariat
PUC Public Undertaking Committee
SCM Standing Committee on Ministries
SEMP Sustainable Environmental Management Program
UODA University of Development Alternative

Table of Contents
 iv

Abstract................................................................................................................................i
Acknowledgements.............................................................................................................ii
Abbreviations.....................................................................................................................iii
List of Table and Appendices............................................................................................iv
............................................................................................................................................v
Chapter One.........................................................................................................................1
Introduction......................................................................................................................1
Justification of Research..................................................................................................2
Broad and Specific Objectives of the Research...............................................................3
Methodology....................................................................................................................4
Theoretical/ Conceptual Framework ...............................................................................4
Accountability..............................................................................................................5
Parliamentary Control & Legislative Oversight...........................................................5
Mechanisms of Parliamentary Control and Oversight.................................................5
Parliamentary Control & Oversight: Individual Methods............................................6
Committees as a Collective Means of Accountability.................................................7
Chapter Two........................................................................................................................8
Bangladesh Parliament & Means of Accountability........................................................8
Enforceability of Individual Techniques........................................................................10
Enforceability of Committee System.............................................................................10
Chapter Three....................................................................................................................10
Types of Committees in Bangladesh..............................................................................10
Standing Committee.......................................................................................................11
Select Committee/Special Committee............................................................................11
Standing Committees on Ministries (SCMs).................................................................11
Committee Structure......................................................................................................11
Chapter Four......................................................................................................................13
Committee at Work........................................................................................................13
Formation of SCM on Environment and Forest.............................................................13
Background Characteristics of Committee Members....................................................13
Activism of the SCM on Environment and Forest of 7th Parliament............................14
Committee Recommendations & Relevancy ............................................................15
Committee - Ministry Relationship ...........................................................................17
Implementation Status of Recommendations.............................................................18
Activism of the SCM on Environment and Forest of 8th Parliament............................18
Committee Recommendations & Relevancy.............................................................20
Implementation Status of Recommendations.............................................................22
Committee Resources.....................................................................................................23
New Provision for Calling Attention Motions...............................................................23
Limitation of Parliamentary Control in Environmental Issues......................................24
A Comparative Perspective of SCM on Environment and Forest.................................24
Conflict of Interest.........................................................................................................26
Chapter Five......................................................................................................................27
Conclusion......................................................................................................................27
Recommendations..........................................................................................................28
References.........................................................................................................................30
Appendices........................................................................................................................33

List of Table and Appendices

Table 1: Background Characteristics of Committee Members of SCM on Environment

and Forest...........................................................................................................................13
 v

Appendix 1: Summary of Various Individual Techniques Practicing in Bangladesh

Parliament...........................................................................................................................33
Appendix 2 : Nature of Activism of Standing Committee on Ministry of Environment &
Forest..................................................................................................................................34
Appendix 3: Comparative Findings on Agendas and Recommendations of SCM on
Environment and Forest between 7th and 8th Parliament..................................................36
 1

Chapter One
Introduction

Bangladesh is widely recognized to be one of the most climate vulnerable countries in the
world. She experiences frequent natural disasters, which cause loss of life, damage to
infrastructure and economic assets, and adversely impacts on lives and livelihoods,
especially of poor people. In coming years, it is predicted that there will be increasingly
frequent and severe floods, tropical cyclones, storm surges, and droughts, which will
disrupt the life of the nation and the economy(MoEF 2008:1).

The environment of Bangladesh has gone on degrading during the last two decades and a
half. But the ministry that was exclusively created to address this worsening
environmental situation seemed to do little as the environment steadily deteriorated and
environmental concerns multiplied and intensified (Rasul 2008). Bangladesh faces many
environmental problems both naturally occurring and those caused by humans. The major
environmental problems are: deforestation, deteriorating water quality, sea level rise,
natural disasters, land degradation, salinity, unplanned urbanization, discharge of
untreated sewage and industrial wastes, loss of biodiversity and so on.

According to the allocation of business, matters relating to environment & ecology,

environmental pollution control, conservation of forests and afforestation of the country
are allocated to the Ministry of Environment & Forest (GOB 2000: 30). Similarly as per
Rules of Procedure (hereafter, Rules) of Bangladesh parliament, parliamentary oversight
and scrutiny of this ministry's activities are done by Standing Committee on Ministry of
Environment & Forest (hereafter, SCM on Environment and Forest). Therefore it is
needed to explore the working of this committee to identify the scope & limits of
parliamentary control and to what extent this committee are able to protect our
environment through exercising its parliamentary duties.

Parliament or Legislature is the supreme representative body of a democratic country. It is

the keystone of democratic governance. Lijphart (1991: ix) argues Legislature should
probably be regarded the most important institutions in a democracy. The primary
function of parliament is to keep in closest touch with the emerging needs and to iterate
their urges and aspirations. It has to keep vigilant eye on the executive to ensure that laws
and public policies are implemented efficiently and effectively in a way that cause no
injustice to any individual or any section of the society (Shrivastava & Shrivastava
1999:2).

Parliamentary committees are ubiquitous and a small group of legislators normally

assigned specific organizational tasks. Longley and Davidson (1998:2) observe
parliamentary committees increasingly serving as the main center of both legislation and
parliamentary oversight of activities.
 2

There is a several parliamentary means used for enforcing government accountability. It

can be group as individual & collective. The collective means of ensuring accountability
are a system of committees. Committees demonstrate a unique legislative technique
collectively used by MPs to do their oversight job and monitor the governmental actions
(Hasanuzzaman 2007:38). Compared with other techniques, committees have better scope
to go in deep of a particular matter, examining it in greater detail and exploring possible
remedies (Ahmed 2006:24).

The committee system is sometimes referred to as the 'essence of the parliamentary

system' and most effective means of monitoring executive (Ahmed & Obaidullah
2008:1). Benda (1997:17) argues committees allow the parliament to perform numerous
functions that otherwise might not be conducted at all. Committees have a special role to
play in ensuring government accountability. In particular, committees are considered as
one of the most important means of keeping the government on its toes.

Committees are an important feature of a parliament. Bangladesh Parliament has no

exception. From very beginning it has introduced committees namely standing
committees, select committees and special committees. Standing committees are
permanent in nature have several categories, the most important of which are standing
committees for ministries (hereafter, SCMs). SCMs are parallel to the government
departments/ministries.

Some significant changes in the scope of operation of committees have taken place over
the years in Bangladesh parliament. In particular, SCMs have wide mandate to examine
bills and matters sent by parliament and to review concerned ministries activities and to
enquire into irregularities and complaints with respect to ministry and make
recommendations to improve them (Rahman M.2008:51; Hasanuzzaman 2007:45). At
present, parliament of Bangladesh has 37 SCMs, of which our special attention will be
given to the activities of Standing Committee on Ministry of Environment & Forest.

Justification of Research

Parliaments are found around the globe. The legislatures, irrespective of government
system, all over the world are the legitimate and representative institutions entrusted with
securing public sector accountability (Rahman 2008:1). After 1990s, the increased
prominence of legislatures has prompted a greater scholarly interest in their existence and
functions (Norton 1998: xi). In fact, legislatures are so pervasive, diverse and resilient
makes them a legitimate source of scholarly attention (Norton & Ahmad 1999:1)
Committees are seen as [one of] the most effective means of underpinning the authority
of the assembly against the executive (Hague & Harrop 1982:157)

Rahman argues that legislatures as a whole have been a relatively unexplored spectrum of
research for the social scientists. Very few authoritative researches have been conducted
in the arena of parliamentary politics & development. There are some good works on
 3

parliament & committees working in Bangladesh parliament. Ahmed's book (2002) is a

very good piece of scholarly work on the nature and working in parliament of
Bangladesh. Another recent scholarly book by Rahman (2008) is an excellent research
works on comparative legislature particularly parliamentary committees in south Asia.
This research contains in-depth survey of MPs & staffs of parliaments to elicit their
opinion of the working of parliaments & its committees to understand the efficacy of
parliamentary committee in Bangladesh, India and Sri Lanka.

Ahmed (1997a, 1997b, 1998a, 1998b, 2000, 2001a, 2001b, 2003, 2004) has published
widely on different dimension of Bangladesh Parliament. Two scholarly articles (2000,
2001a and one book (2006) are available on the parliamentary committee system of
Bangladesh. These are excellent reviews on the role of committees on the government
behave (Rahman 2008:4). Another article by M. Rahman (2008) has general information
on parliamentary committees and other techniques of accountability ensuring good
governance. A chapter by Hasanuzzaman (2007) of a book also presents general overview
of the working of committee system of Bangladesh parliament.

The available studies are mostly descriptive in nature and none specifically focus on the
Standing Committee on the Ministry of Environment and Forest. Most of the research had
focused on three financial committees (PAC, PUC & PEC) and only 7 SCMs (Education,
Finance, Health, Post & Telecommunications, Defense, Agriculture, and Establishment).
In fact, we have little understandings about SCM on Environment and Forest regarding its
types of activities undertakes, the nature of problems it face, and the strategies it adopt to
cope with uncertainties. We do not know much about the way(s) members of this
committee perceive their role, or /and define inter-role relationships. Nor do we have any
'real' idea about significance of the discussion and recommendations they made in the
committee.

It is, therefore, required in-depth analytical study on the role & working of Parliament in
general and specifically SCM on Environment and Forest to identify the scope & limits
of this committee to protect our environment.

Broad and Specific Objectives of the Research

The broad objective of the research is to explore the scope and limits of parliamentary
control and oversight of environmental issues in Bangladesh. It focuses on individual &
collective techniques of parliamentary control and to identify constrains that limit their
potential in ensuring parliamentary accountability (Ahmed 2006:11) to achieve
environmental sustainability.

The specific objectives of the research are: to examine the operations and activities of
SCM on Environment and Forest of the 7th, 8th and 9th parliament of Bangladesh; to
identify how far recommendations of this committee were implemented and how the
performance of the committee can be improved; to compares the nature of activism of this
 4

committee and role of individual committee members in overseeing the environment

issues of 7th, 8th & 9th parliament.

The rationale for selecting committees of 7th, 8th & 9th parliament is that previously
committees were headed by ministers. Empirical evidence showed that the minister's
presence as chairmen in the committee meetings seriously limited the committees' role as
watchdog (Rahman M. 2008:52).

Methodology

The study is critically reviewed, attempted to synthesize & interpret the proceedings of
SCM on Environment and Forest, and relevant debates of Bangladesh parliament. The
role of parliament and parliamentary committee on environment is largely analyzed on
the basis of collective and individual activities of the MPs to protect our environment in
securing parliamentary control & oversight.

The data were collected in this study through review of available parliamentary studies,
examination of the proceedings of parliament & records of decisions of committee,
newspapers reports on parliament & committees. Documentary data both primary &
secondary were collected from parliament secretariat. Special emphasis was given on
two core methods: review of the proceedings of parliament & committee, and compare &
contrast the findings.

The review of proceedings was necessary to collect information on different aspects of

parliament & committees to make the government accountable. In the examination of
proceedings, the focus was given to the frequency of committee meetings; the regularity
of member's attendance; the time spent on deliberation and relevancy to the environment;
committee mandate; power of agenda setting; expert hearings; enquires; and the
committee recourses. Attempts are also made to identify how far recommendations of
committee were implemented and how the performance of the committee can be
improved. The study compares the nature of activism of this committee and role of
individual members in overseeing the environment issues of 7th, 8th & 9th parliament
with member's background information.

The collected data have analyzed & compared to measure the performance of SCM on
Environment and Forest of 7th, 8th & 9th parliament and put forward suggestions to
improve the effectiveness of this committee. Finally it has tried to interpret the result of
the study & suggested avenues for future study.

Theoretical/ Conceptual Framework

Parliamentary control or oversight refers to checks on the implementation of the law by

the executive and the investigation of some particular issue or controversy. The behavior
of officials' can be influenced through parliamentary scrutiny, i.e. they behave as per
legislative intention. Accountability is not optional in a democracy; as Sahgal (1999:1)
 5

observes, it is the price paid in exchange for power and delegation of authority. One of
the greatest strengths (and also the pitfall) of the Westminster system is the fusion of the
executive and legislative organs of government. The former woes its origins and remains
accountable to the latter (Ahmad 2006:17).

Accountability

The concept of accountability is complex and multifaceted (Rahman 2008:8). The

traditional concepts of accountability, which presupposes responsibility, hierarchy & and
answerability, centers at the heart of the Westminster system of government (Ahmad
2006:19). In a parliamentary democracy system, the parliament represents the people and
the government comprises political and administrative executive is accountable to the
parliament.

In a modern parliament, accountability is associated with certain procedures such as

committee enquires or (in parliamentary system) the questioning of ministers. It also
entails with legislative debates or financial authorization or committee hearings where
members of the government are required to explain their actions & take the consequences
(Rahman 2008:12). Thus legislatures are pivotal institutions for securing accountability
(Mulgan 2000:515).

Parliamentary Control & Legislative Oversight

One of the most important functions of the modern legislature is to make the government
behave. Both John Stuart Mill and Walter Bagehot considered the legislature as unfit to
draft the laws and observed that its proper office was to watch and control the
government (Williams 1968: 41). Legislative oversight of administration is desirable
because it provides mechanisms by which administer, who implemented public policies,
can be hold accountable and their programs can be evaluated (Aberbach.1982:390).

Rockman argues the principle value of justifying "legislative monitoring" of the executive
is to ensure the triumph of representative government by lines of accountability running
through the organ that embodies popular sovereignty. There are many specific objectives
through legislative oversight can be achieved. But the following deserve mention: to
check against dishonesty and waste; to guard against harsh & callous administration; to
evaluate implementation in accordance with legislative objectives and to ensure
administrative compliance with statutory intent (Rockman 1984:414-15)

Mechanisms of Parliamentary Control and Oversight

There is no 'single best way' of ensuring the accountability of the government. Different
legislatures may use different methods to realize this objective. Most of the Parliament
patterned after the Westminster model utilize almost similar techniques to ask the
government to account for its actions. Those can be grouped into two categories:
 6

individual & collective. The individual category includes a number of techniques, such as
question, adjournment motions, half an hour discussion, short duration discussion and call
attention motions. Moreover, the formal debates on the president's speech made at the
beginning of each calendar year and, in particular, the debates on the budget speech by
finance minister also provide some scope to scrutinize the activities of government
(Ahmad 2002:108). The best example of the collective method is a system of committee.
Bangladesh Parliament is not an exception. MPs of Bangladesh parliament uses both
techniques to account the executive. The effectiveness of those techniques is discussed in
subsequent sections.

Parliamentary Control & Oversight: Individual Methods

It has been mentioned in the earlier section that a Westminster patterned parliament used
both individual & collective methods to control and oversee the government activities.
This section focuses on different individual techniques. The most important is questioning
ministers, as a means of eliciting information about matters within their official
jurisdiction, is a common practice in all parliaments & one of the celebrated functions of
parliament (Wiberg 1995:180). Westminster model parliament has provision for both
written & oral answer of questions, Bangladesh & UK also uses the prime minister
question time (PMQT) exclusively answered by prime minister. Besides questions, a
parliament can use several other techniques to securing government accountability. The
most important of them is debate. A significant portion of parliament time has spent on
debating different types of government policies. Huq (1989:37) observes that a question
has to be specific to a particular matter, a committee has its own terms of reference, an
adjournment motion, though serious in nature, must be related to a crisis or an urgent
problem, the debates provide the members with a series of opportunities to discuss the
budget as a whole and the related bills or items at other stages. Westminster patterned
parliament also allow different types of adjournment debates, the most important of
which is debates on adjournment motions, The Indian parliament also introduced some
parliamentary control devices other than British parliament. These techniques are known
as: call attention motions, motions for discussion for short duration and half an hour
discussion. These are intended to give MPs a better scope to raise issues and, in
particular, to dissuade them not to frequently (ab) use the privilege of moving
adjournment motions (Ahmed 2006:22). Bangladesh parliament adopted techniques
mostly from practice & procedures of Indian parliament.

In comparison to other individual techniques of parliamentary control, questions have

greater prominence in respect of time allocation as well as the interests taken by the
media & informed public. Question & answer is generally starting business of parliament,
is more publicized, & often generates more heat (Ahmed 2006:23). Some parliaments set
a time limit for ministers to answer questions (e.g. UK, India). Some allowed asking
questions without notice (e.g. Australia, Canada).The usual practice is to give ministers
wide latitude in answering questions and to require that questions be on notice. In those
systems where the Rules require ministers' to answer questions within a specified period
 7

of time, there may still be some loopholes that can make the question time more a
formality. Ahmad (2002: 110-120) observes partisanship in questions has increased to a
great extent over the decades in Britain. Even the PMQT is not an exception. As
Alderman (1996:290) argues: "Far from being regarded as a serious method of
parliamentary scrutiny of the executive, it now tends to be depicted as a ritualized party
political confrontation characterized by a rowdiness ".

Despite drawbacks, questions do serve to keep ministers on their toes. The government
can know the grievances, problems and expectations of public and help to educate the
people on the activities and policies, programs of the government through parliamentary
questions (Kashyap 1989: 90-1). The exposure of secrecy, the puncturing of arrogance,
the embarrassment of incompetence or the ridicule of inconsistency can be more
effectively depicted at question time than at any other time(Keefe:85-88).

The other individual devices compare both favorably and unfavorably with questions. For
example, adjournment debates, which can theoretically, moved at any time, are better
focused on accountability. Similarly debates can draw attention to an issue and force a
response and even compromise from the government (Franks1997: 153).The budget
debates which generally continue quite a long time, offer the MPs an opportunity to
examine details of governments financial policy & proposal. The question hour is held
quite regularly while adjournment debates are held infrequently. The budget debate and
debate on president's address are also an annual affair, although it continues longer than
any other debate (Ahmad 2006:23).

Committees as a Collective Means of Accountability

Committees are ubiquitous increasingly serving as the main organizing centre of both
legislation and parliamentary oversight over the government (Longley and Agh 1997:3).
The impact of a legislature has crucially dependent on its committee arrangements (Shaw
1998:229; Blondel 1990:249). Thomas Reed referred the House committees as 'the eye,
the hand and very often the brain of the House' (Shepsle & Weingast 1998:233).

Committees allow the legislature to perform numerous functions that otherwise might not
be conducted at all. They are capable of offering committee members a variety of rewards
and opportunities, such as encouraging them to build up a more specialized knowledge of
policy areas (Emy 1978:406), providing a means of keeping them busy and feeling
useful(Rush 1983:151) and granting them more active and rewarding participation in the
governing process (Jogerst 1993:26). Therefore committees are considered to be more
capable of influencing the behavior of government and administration than the individual
methods of accountability (Ahmad 2006:24).

In comparison with other techniques, committees have a better scope to scrutinize a

particular issue deeply with breadth and suggest possible remedies. Committees enjoy the
power to send for persons, papers and documents. This can have an immediate effect.
 8

Those responsible for governing have to account for their actions to the committees; this
enables committee to keep administrator on their toes effectively (Ahmed 2006:24).

Committees have an important deterrent power to conduct enquires, Unlike individual

devices, which can at most prompt the conduct of enquiries, committees can do them on
their own. Committees also have right to ask for public submission in many countries.

The individual techniques can be used as partisan purposes to score political points, even
can be used as instruments to attack/neutralize political opponents than informed scrutiny
of government policy. But committees generally operate along non-partisan lines.
Committees provide an important setting for inter-party bargaining and compromise.
Experience shows that ministers can not ignore the unanimous recommendations of a bi-
partisan committee, especially when the minister's own party has a majority on the
committee (Ahmed 2006:25-26).

There is also limitation of committee systems. Committees' activity is hindered by the

lack of legislative expertise, the fluidity of committee membership and the absence of
competent professional staff (Mezey 1979:68). In most cases, committees are multi-
functional bodies. They are charged with scrutinizing bills as well as overseeing the
activities of executive departments. Lack of interest of members to serve on committee
can also be seen as a deterrent. It is argued that committees which are charged with both
functions often tend to focus more on one at the expense of the other. In general,
experience shows that parliamentary committees matter more than the individual methods
in ensuring government accountability.

Chapter Two
Bangladesh Parliament & Means of Accountability
 9

In Bangladesh parliament, The Rules provides number of techniques to ask the executive
to account for their actions. These can be grouped as individual and collective. This
section deals with individual techniques of parliamentary accountability.

The Rules (41-71) describe various individual techniques: questions, adjournment

motions, motions for half-an-hour discussion, motions for discussion on matters of public
importance for short duration and call attention motions (BJS 2007: 15-24).

Rule 41 specify the first hour of every sitting is available for asking and answering
questions except on the day the budget is presented. Additionally first 30 minutes of
every Wednesday are available for PMQT. Rule 60 provides MPs an opportunity to ask
for half-an-hour discussion on a matter of public importance, which has been the subject
of a recent question, and the answer to which needs clarification on a matter of fact. Rules
61-67 provides provisions for a motion of adjournment of the business of the House for
the purpose of discussing a matter of recent and urgent public importance. Rules 68-70
provides for discussion on matters of urgent public importance for a short duration. Rule
71 provides an MP to call the attention of a minister to any matter of urgent public
importance and the minister may make a brief statement. MPs can also move private
members resolutions demanding government actions, or/and support. Besides debates on
president's speech, finance minister's budget speech also provides for some scope to the
MPs to scrutinize the activities of the government.

Appendix-1 has shown the summary of the scope and limitations of individual
techniques. None of the techniques can be moved without advance notice being given to
PS. While questions(PMQT every Wednesday) can be asked and call attention motions
moved in every sitting day except on the day the budget is presented, half-an-hour
discussion and discussion for short duration can be held only twice a week. Moving a
short duration discussion required other 5 MPs signature and consent of the leader of the
House. A new provision had been introduced in the Rules as 71A (3) at the last session of
8th parliament. As per this rule, a concise written statement by the minister concerned in
response to the calling attention notices the members spoke shall be laid on the Table
within first three sitting days of the next session1(BJS 2007:24).

Each technique is to meet certain other conditions; in particular, these have to satisfy
admissibility criteria before being accepted. The conditional acceptability is necessary to
ensure maximum use of parliament's valuable time. But the extent to which these are
actually followed and/or the various techniques are capable of securing the accountability
of the executive and administration depends on a number of factors, of which two
deserve specially mention: the willingness and the ability of MPs to maximum use of
them (Ahmad 2002:111).

1
As per rule 71A, a member may speak for two minutes on each calling attention notices which have not
accepted as per rule 71(3) within total time not exceeding thirty minutes a day and only as many members
can speak as may be possible within this time limit.
 10

Enforceability of Individual Techniques

It is argued from experience that individual techniques are not sufficient to ensure
responsible government. The data showed the proportion of answering questions
increased gradually, and more questions were answered in the Eight Parliament than Fifth
& Seventh Parliament of Bangladesh, the quality of questions, however, is unsatisfactory.
Lawmakers ask questions mostly concerning their respective constituencies (Rahman
M.2008: 48). Aminuzzaman (1996:17) observes that questions were not often directed at
the critical issues & problems that affect public life. He argues that the modes of
parliamentary questions are merely informative and explanatory.

M. Rahman (2008:49) shows most disappointingly no adjournment motions were

accepted and half-an-hour discussions took place in the Seventh & Eighth Parliaments,
short duration discussions were also very marginal. Ahmad (2002:117) observes that one
reason for not accepting the motions may be that the governments probably do not want
to expose weakness to parliament and the public. For this reason, individual methods are
seemingly ineffectual with respect to parliamentary control over executive to ensure
accountability.

Enforceability of Committee System

Parliamentary committees in Bangladesh derive their origin to and gain legitimacy from
the article 76 of the constitution, makes it mandatory for the parliament to set up a Public
Accounts Committee (PAC) and a Privileges Committee (PC) and empowers it to
constitute as many standing committees as it considers necessary (GOB 2008b: 30-31).
Rules are the other major source of institutional arrangement to keep the vehicle of
committee in motion. These Rules specify the composition, appointment, term of office,
functions and the main lines of procedure for conducting business (BJS 2007:61-74).

Parliamentary committees formally enjoy important status and extensive powers2. As per
Rules, committee can regulate its sittings, conduct its business the way they wants, may
appoint as many subcommittees as it considers necessary. Each subcommittee has the
power of the main committee. Committee members enjoy immunity for their activities in
committees. Committees, however, meet in private and can obtain cooperation & advice
from any expert in its field, if deemed necessary.

Chapter Three
Types of Committees in Bangladesh

Bangladesh Parliament has mainly two major types of committee: Standing Committees
and Special/Select Committees. The main difference centers on the nature of appointment
based on their permanency.

2
For details see Rules of Procedure of Bangladesh Parliament, pp. 61-65
 11

Standing Committee

These committees are usually appointed by the House/the Speaker for the full tenure of
the parliament. Currently, the Bangladesh parliament has 48 committees (37 ministerial
committees, three financial committees, eight other committees) of which 40 are standing
as mentioned by Rules. Committees have members range from eight to 153. Each
ministerial committee (37) and five other committees (Estimate Committee, Library
Committee, PUC, Petition Committee and Private Member's Bills Committee) consist of
not more than ten members. The Public Accounts Committees (PAC) and Business
Advisory Committee are composed of not more than 15 members. Committee on
Government Assurance composed of not more than eight members. Committee on Rules
of Procedure can accommodate up to 12 members. Speaker appoints Petition committee,
Business Advisory committee, House committee and Library committee. The House
appoints all other committees by a motion.

Select Committee/Special Committee

Select committees/Special committees are temporary in nature. They are ad hoc bodies
and cease to exist as soon their job is completed. These committees meet the demand of
the emergency situation. For instance due to the delay in the formation of different
ministerial committees in the Seventh and Ninth Jatiyo Sangsad (JS), a special committee
was constituted temporarily. The tenure of this committee was ceased after ministerial
committees had formed. All the bills and ordinances introduced in the House were sent to
this special committee appointed by the House for the purpose. Another parliamentary
committee was formed by the Speaker of 9th parliament on 19 March 2009 for
investigating the allegations of corruption, abuse of power and irregularities of immediate
past speaker of the parliament & others giving one month time to report, they have
finished their task on the 9th July 2009 by submitting a report to the parliament.

Standing Committees on Ministries (SCMs)

According to the rule 246 of Rules, every Standing Committee on Ministries shall consist
of not more than ten members including the chairmen of the committee. Rule 248 specify
each standing committee shall meet at least once in a month and the function of a
committee is to examine any bill or other matters referred to it by the parliament, to
review the works relating to a ministry which fall within its jurisdiction, to inquires into
any activity or irregularity and serous complaints in respect of the ministry and to
examine of it deems fit any such others matter as may fall within its scope & to make
recommendations.

Committee Structure

3
See Rules 219,222,231,234,236,240,244, 247,249,257& 264.
 12

According to Rule 246 of the Rules, the standing committees on each ministry shall be
formed within 3 sessions of a new parliament. Delay in forming the committees limiting
the parliament capability of control & oversight over the executive in an effective
manner. In this regard the date of first sitting of the House & that of the formation of
committees are crucial to understanding the extent to which the parliament is willing to
hold the government accountable from the very beginning of a new parliament. In the 7th
parliament, government formed ministerial committees nearly lapse of two years from its
inauguration. The 8th parliament also took 20 months to complete the formation of
committees unilaterally. Exceptionally, all committees were constituted within first
session of the 9th Parliament; this is an improvement in committee formation in the
history of Bangladesh Parliament.

As 20 months were lapsed on mere formation of ministerial committees in the eighth JS

the entire administrative apparatus of government had been immune from any legislative
oversight during this time. The government was a free rider and virtually accountable to
none. In Bangladesh, most of the committees are permanent and committee
members/chairs are in general appointed for the full term of a parliament. In Bangladesh,
average turn over of committee members is around 10 percent due mainly to death,
shuffling\reshuffling of committee composition (Rahman 2008:107).

Experience shows that the membership of different committee is generally distributed

among different parties in proportion to their strength in the parliament. In Bangladesh,
there is no specific rule in the distribution of committee chairs. The ruling party & its
alliances usually occupy all the chairs of committees up to last parliament. In the 9th
parliament, a significant improvement has seen to distribute committee chairmanship to
the main opposition party in the parliament. SCMs on Environment and Forest, and
SCMs on Fisheries & livestock are now headed by the main opposion BNP's MP
 13

Chapter Four
Committee at Work

There are several ways of measuring the nature of activism of a parliamentary committee.
Some of the important measures are: the frequency at which committee meetings are held,
the regularity of member's attendance, the number of hours spent on deliberation and
relevancy to the environment; nature of recommendations committee made and its
implementation progress; compliances to the committee mandate; the number of reports
prepared over a period of time, power of agenda setting; expert hearings; enquires; and
the committee resources.

Formation of SCM on Environment and Forest

In the 7th parliament of Bangladesh, SCM on Environment and Forest was first formed in
12th May 1998 then it was reconstituted on January 25, 2000 due to resign of a member
from parliament. In the 8th parliament, this committee had first constituted in 15th July
2003 with 8 members and reconstituted within 3 months replacing one member and
finally reformed it replacing two members from ruling party and included two members
from main opposition in 16 September 2004. In the 9th parliament committee has formed
in the first session with nine members and in the second session reconstituted it to
complete its quota of 10 members. It has set a milestone in the history of ministerial
committee of Bangladesh parliament selecting an opposition member as a chair of this
committee. In examining the composition of this committee from Seventh parliament,
the committee members were chosen according to the strength of their political party in
the assembly. Therefore, in the 7th, 8th and 9th parliament, this committee had taken 3, 2
& 1 members from main oppossion party respectively.

Background Characteristics of Committee Members

Table 1: Background Characteristics of Committee Members of SCM on

Environment and Forest

Background 7th Parliament 8th Parliament 9th Parliament

Educational Qualification
Post graduate 10.00 66.67 60.00
Graduate 50.00 33.33 10.00
Undergraduate 20.00 0.00 0.00
Matriculation 20.00 0.00 30.00

Professional Qualification
Businessmen 60.00 50.00 70.00
Politicians 40.00 50.00 0.00
Lawyers 0.00 0.00 10.00
Others 0.00 0.00 20.00

Term of MPs
Newcomers 50.00 25.00 50.00
 14

2nd times 20.00 16.67 33.33

3rd times 20.00 33.33 0.00
More than 3rd times 10.00 25.00 20.00
Source: Calculated and compiled by the author from Maniruzzaman (1992),
Rashed (1997), Ahmad (2002), PS (2006), NDI (2009).

Table 1 shows the comparative summary of background characteristics of committee

members of SCM on Environment and Forest of 7th, 8th and 9th Bangladesh parliament.
Backgrounds are categorized as educational, professional qualifications and term of MPs.
From the table, it appears, environment committee of 8th parliament has more graduate
(100%) than 7th (60%) & 9th (70%) parliament. Although 40% members of this
committee in 7th parliament were undergraduate of which 20% completed matriculation,
30% members of this committee in 9th parliament completed only matriculation. Three
members of 9th parliament and one member of 7th parliament have law degree whereas
one member in 8th parliament has MBA but none of them of this committee in all three
parliaments has specialized degree on environment and development except state minister
of forest and environment in the 9th parliament who have been included in this committee
later in place of previous state minister.

It appears from above table that businessmen dominated or had equal share in the
committee members and they are increasing from parliament to parliament and they
reduced the politician to zero in 9th parliament of this committee. But in 8th parliament
politicians had equal share of this committee composition with the businessmen. It also
reveals that half of the committee members were new comers both in 7th & 9th
parliament. Similarly more than half (58.33%) of committee members in 8th parliament
were elected 3 times or more. Therefore committee members on environment & forest of
the 8th parliament had more educated, experienced and full time politicians.

Activism of the SCM on Environment and Forest of 7th Parliament

During 7th parliament, SCM on Environment and Forest had met 33 times discussed 100
agendas excluding the agenda of last meeting proceedings confirmation and
miscellaneous which were common in all meetings except first and 3 special meetings.
Most important of these agendas were: discussion on progress of afforestation program;
forest conservation; information and activities of Department of Environment(DoE),
forest department, National Herbarium(NH), Bangladesh Forest Research
Institute(BFRI), Bangladesh Forest Industries Development Corporation(BFIDC); Atia
Forest Ordinance 1982; progress of current projects; gardening of various species of
flower; formation of environmental courts; legal & illegal saw mills; pending bills of
forest department to others; environmental pollution; inspection and investigation reports
of different forests regions; bamboo forest of Sylhet; activities of Sustainable
Environment Management Program(SEMP) project; making quality pulp from low
quality jutes; sound pollution; Dhaka division environmental infrastructure development
project; control of environmental pollution in Dhaka city; various allegations against
forest officials and department, reports published in the newspapers on forest
 15

department's irregularities and corruption; biodiversity project of Sundarban and eco-

park.

It was found that 39% agendas were evolved from the discussion of previous meetings.
Remaining agendas were taken by the committee chairman's own discretion or sometimes
request/pressure from interested groups. 28% agendas were directly related to
environmental issues whereas 11% agendas were specific to various allegations against
officials and forest department. Rest of the agendas were related to the activities,
organizational set up, and routine matters of the ministry or departments

It was revealed from scrutinizing the proceedings of this committee, all of the agendas
were raised in the committee meetings except 10 and most of the agendas were discussed
but agendas relating to the reports only placed, rarely discussed. It is evident from
minutes that 3 agendas each of the 5th and 27th meetings were not raised & discussed.

This committee formed three sub-committees of which sub-committee-1 to investigate

irregularities and corruption of Project Director of Modhupur rubber garden and misuse
of transport; sub-committee-2 to investigate various complains which are received by the
office of committee chairman; and sub-committee-3 to investigate the news published in
the newspapers on the standing committee and complaint against forest official Mr.
Atikul Azam.

Committee visited forests of hill districts, Sundarban, forest division of Sylhet, Atia
forests, and offices and departments of the ministry and prepared & placed inspection
reports on the visits to the main committee. The study found that the reports of
subcommittees 1 & 2 had been placed & accepted, whereas subcommittee 3 neither
investigated nor submitted any report to the committee.

Committee Recommendations & Relevancy

This committee in the 7th parliament had discussed on the agendas mentioned earlier and
made total 164 recommendations. It made nearly 16% recommendations specifically
corruption and irregularities of forest officials and department, 17% recommendations
directly related to the environmental issues. Other recommendations were mainly routine
matters of the ministry or departments e.g., organizational setup, increase personnel and
equipments, etc.

Committee recommended to take necessary actions against two-stroke vehicles which

were exhausting black smoke and deteriorating environment (1st meeting); to submit a
report containing identification of the problems arising from Atia Forest (Protection)
Ordinance 1982 with recommendations on how to solve those problems permanently; to
take immediate steps to form environmental court (6th meeting); and to impose the
maximum tax on imported rubber (7th meeting). It discussed and asked ministry to
submit a progress report on control of environmental pollution, sound pollution; and
 16

waste disposal in Dhanmandi area of Dhaka (13th meeting), and wanted to know what
steps had been taken to control pollution of crowded places where small industries were
situated (16th meeting).

It (committee) discussed the bills on Bangladesh Environment Conservation

(Amendment) Act 2000, Environmental Court Act 2000 and the Forests (Amendment)
Act 2000 and suggested some important amendments (19th meeting). It also proposed
some amendments regarding narrowing definition of the fuel wood, heightening chimney,
reducing duration of license period, and increasing punishment in terms of imprisonment
and money during consideration of Brick burning (control)(Amendment) Bill, 2001(29th
meeting).

It also discussed on environmental infrastructure improvement project of Dhaka division

and had given direction to take necessary action to finish this project within time limit. It
also gave direction to take appropriate projects for conservation of environment of Dhaka
city and improvement of environment of the whole country (30th meeting). It also
ordered to submit a report on transfer of Hazaribagh tannery in next meeting (31st
meeting) but it was not placed.

It requested finance and establishment ministry for giving approval of organizational

setup of the forest department to strengthen its capacity (14 meeting), and had informed
detailed working of DoE including its budget, transport, ongoing development projects,
staff shortages and problems it faced without any discussion on the performance of DoE
(27th meeting).

Besides, this committee made recommendations to impose import restrictions on the Eva
foam which was causing environmental pollution (20th meeting), to construct incinerator
at the clinics and send a request letter to health ministry for not giving permission to set
up new clinics in the residential area, and send a request to the commerce ministry to
impose ban on importing transport having hydraulic horn (21st meeting).Committee
recommended some measures to protect Sundarban from further degradation in light of
the findings of visits: set-up patrolling station, increased frequency of patrolling in the
sensitive area of Sundarban, increased the fuel budget, stop catching and killing wildlife.
It also recommended appointing local/ international expert immediately for identifying
the reasons of top dyeing diseases to prevent and cure the diseases.

Additionally, sub-committees also made recommendations on the basis of their

investigation. Sub-committee-1 didn't find any irregularities and corruption of Project
Director (PD) during investigation. Sub-committee-2 found some evidences of corruption
and irregularities in the Sundarban forests region. Divisional Forest Officer (DFO) of
Sundarban hadn't provided required documents to the sub-committee. As a result,
investigation delayed and suffered from difficulties. Sub-committee-3 neither investigated
nor submitted any report to the committee. Main committee suggested some measures to
curb the corruption and irregularities.
 17

Committee - Ministry Relationship

The relationship between this committee and ministry was cold in the 7th parliament. It
was supported from the discussion of committee meetings. In several occasions,
committee had referred Rules and other committees' activities to justify their work against
the objections raised by the ministry (18th meeting). Committee expressed dissatisfaction
with the ministry because not properly valued its recommendations (special meeting).

In 8th meeting, one member said relationship between committee and ministry was not
satisfactory. He said, committee was standing on the question of accountability rather
than those who were deemed to be asked by the committee. Ministry often assured the
committee that reply will be given next meeting but at the next meeting it again sought
time. In 9th meeting, chairman warned the concerned not to underestimate the members
which being nearly undermine the parliament. In 11th meeting, committee opined that it
seemed Chief Conservator of Forest (CCF) didn't show much respect to the rule 248 of
Rules and committee took it an objection due to not supplying required information to the
committee for investigation. Even Divisional Forest Officer (DFO) Khulna hadn't
provided required city books to the concerned sub-committee inquiring irregularities.
Therefore committee chair warned the concerned to send required books within 5 days
otherwise show cause would be issued (15th meetings).

With reference to article 76(2)(d)4 of the constitution, minister expressed opinion that
committee has gone beyond its jurisdiction as mandated in the constitution. Ministry
wanted committee's help for better workings but committee started investigation against
ministry without informing them which was not good. Chair informed, committee had
administered under the jurisdiction of Rules and there was no restriction to investigate
irregularities of ministry which hadn't sent by parliament (17th meeting).

Committee asked the reasons of superseding four senior officials giving promotion to
CCF. An objection was raised regarding the discussion of four superseded officials to
CCF in absence of minister and minister opined it went against the ministry. Minister
insisted on deletion of the concerned paragraph from previous meeting's proceedings.
Then committee decided to delete the concerned paragraph of previous meeting (32nd
meeting).

The reasons for unharmonious relationship between ministry and this committee might be
many. Prominent one might be committee chairman was not a minister. Ministers were
chairmen of the ministerial committees up to 6th parliament. Therefore, ministry as well
as committee had faced difficulties to accommodate themselves in the changing
environment. Another one might be the minister was a senior most leader in the party
hierarchy than chairman. Minister might not be willing to accept the direction from
committee which was composed of comparatively junior party leaders. On the other hand,
bureaucrats were not used to this changing environment. They are in vulnerable position
4
Matters only sent by Parliament to the committee.
 18

because minister is no longer chairman of the committee. Their weaknesses and

irregularities were exposed to the committees. Therefore bureaucrats might have little
interest to implement the committee recommendations.

Implementation Status of Recommendations

It is clear from the discussion of previous section, the relation between studied ministry
and committee was not harmonious. In 10th meeting, ministry informed some
implementation status of previous recommendations made by the committee though
discussions were not completed, only status of 1st, 2nd, 8th and 9th meetings were
discussed.

In the implementation of the committees' recommendations, the evidence showed that

ministry was reluctant to address the issues. Committee members expressed their
dissatisfaction on the implementations status of committee recommendations in several
times. For example, committee discussed the non-implementation of committee
recommendations by the ministry in 5th and special meetings. Even they were not happy
with the reports presented by the ministry due to its insufficient information and
incompleteness. As a result, implementation of committee recommendations was low.
Available records have shown nearly 47% committee recommendations were not
implemented during 7th parliament.

It was reveled that the nature of implemented recommendations were simple & routine
matters of the ministry or departments. Most of it was submission of status reports on
different issues of the ministry or departments, investigation reports on corruption &
irregularities, schedule of committee discussions & issues, request letters from
environment ministry to other ministry, and visits of departments, forests and other
offices. Others were amendments of four environmental bills, sub-committees formation
and its investigations.

However, committee had prepared & presented a report to the House on the day before
the last sitting of the 7th parliament containing all the proceedings of the meetings and
inspection & investigation reports. After presentation, the report had been withdrawn
from the House on the ground of incompleteness on the same day.

Activism of the SCM on Environment and Forest of 8th Parliament

The Standing Committee on Ministry of Environment & Forest of 8th parliament had met
28 times discussed 61 agendas excluding confirmation of last meeting proceedings and
miscellaneous agendas which were common in all meetings except first meeting.

The topics of agendas were varied from informing the activities of ministries and its
department's along with its organizational setup, and corruption & irregularities of
officials to environment related issues. The Standing Committee on Ministry of
 19

Environment & Forest of 8th parliament had met 28 times discussed 61 agendas
excluding confirmation of last meeting proceedings and miscellaneous agendas which
were common in all meetings except first meeting.

Most important of these agendas were: discussion on air quality index; illegal hill cutting;
implementation progress of national forest principles, information and activities of DoE,
NH, BFRI, BFIDC & forest department ; control of polythene bag uses; Tanguar Hawar;
complaints against forest officials, subcommittees reports; sound pollution and its
environmental effects; top dyeing diseases and wildfire in Sundarban; establishment of
campus of University of Development Alternative(UODA) in the forest land;
implementation status of committees recommendations; afforestation program; illegal
logging in different forests; Sundarban's past, present & future; social forestry program;
eco-park; steps so far taken by the ministry to protect environment and what are required
in future; imported & private log; pollution of Buriganga river; hearing of experts on
top dyeing diseases of Sundaree trees; coconut trees plantation programs; report
published in the newspapers on forest department's irregularities and corruption, overall
condition of Sylhet forests; afforestation in new char land; environmental pollution by
leaded gasoline & oil; pollution from brick field & cement industries; biodiversity project
of Sundarban.

It is found that 52% agendas were evolved from the discussions of previous meetings.
Rest of the agendas was taking by the committee chairman's discretion or sometimes
pressure/request from interested groups or from committee members. 34% agendas were
directly related to environmental issues (e.g. air quality, sound, environmental & river
pollution, hill cutting, forestations, Tanguar Hawar, eco-parks, etc.) whereas 11% were
related to corruption and irregularities of officials and departments. Rest of the agendas
was related to activities, organizational set up and routine matters of the ministry or
departments.

It is revealed from scrutinizing the minutes of the committee, all the agendas were raised
in the committee except one and most of the agendas were discussed but some agendas
relating to the reports only placed not discussed. There were no evidences in the minutes
that the 3rd agenda of the 25th meeting was placed. It was the implementation progress
report on the recommendations of the committee from 1st to 10th meetings.

Committee formed 11sub-committees to inspect unoccupied land of forest department

and Chatak Paper Mill (Subcommittee-1); to review and inspect the matters on Tanguar
Hawar(Sub-committee-2); to investigate allegations against ex-DFO Mr. Tapan Kumer
Dey, Mr. Abdullah Al Mamum Chowdhury and Mr. Faroque Hossain ( Sub-committee-
3); to investigate complaints arose against deputy conservator of forest (current charge)
Mr. Md. Osman goni( Sub-committee-4); to review and inspect the conditions of planted
coconut tree throughout the country( Sub-committee-5); to investgigate the matters on log
smuggling and damage of wood in the range of Kaptai & Karnaphuli of Rangamati circle(
Sub-committee-6); to investigate the matters why the report of National Security of
 20

Intelligence(NSI) & Director General of Federal Investigation(DGFI) against some

corrupt officials were not placed before minister and why this report was disclosed before
imposing punishment( Sub-committee-7); to scrutinize complaints of irregularities &
fund embezzlement against Sylhet DFO Mr.Abdullah Al Mamun( Sub-committee-8); to
inspect & investigate environmental damages causing from explosion of Tengratila gas
field (Sub-committee-9); to inquire into the allegations on captured wood log by the
forest division of Rangamati, Khagrachari & Bandarban ( Sub-committee-10); and to
investigate the matters relating to the invalid car of Chittagong forest division and
illegally grabbing forest land by the peoples( Sub-committee-11).

The evidences showed that the reports of subcommittees 1, 2, 5, 7, 9, 10 & 11 were

discussed & accepted whereas reports of the subcommittee 3, 4 & 6 only submitted &
accepted not discussed in the committee. Subcommittee 8 neither met nor submitted any
report to the committee.

Committee Recommendations & Relevancy

During the tenure of 8th parliament, this committee had discussed on agendas described
earlier section and made total 158 recommendations. They had made nearly 11%
recommendations specifically related to the corruption and irregularities of forest officials
and departments, and 37% recommendations directly relevant to the environment related
issues. Other recommendations were mainly routine matters of the ministry or
departments e.g., organizational setup, increase personnel, equipments, etc.

It recommended to set up 5 eco-parks in different regions of the country, to give a

permanent status to national herbarium, to prepare a project to destroy all types of
polythene, to suggest media campaign for stopping polythene use, to suggest finding out
the alternatives of polythene, to take necessary actions for conserving Sundarban, to
revise MOU of Tanguar Hawar, to elicit public opinion through seminar & wide
circulation on sound pollution affecting environment, to take necessary actions on
decisions made between consultation of finance minister & convener of subcommittee on
Tanguar Hawar, all aforestation programs should be taken under supervision of forest
department instead of roads & highways, to give permission to set up UODA campus on
their land in the forest of Gajipur, to ban hill cutting & to make a law with punishment
provisions, to stop fisheries completely in the Ram Sagar, Rani Sagar & Ramrai, to
temporarily stop felling top dyeing trees in Sundarban for the sake of more examination.

It also recommended to setup army's camp beside forest departments camp to protect log
smuggling & to cut trees, to arrange inter-ministerial meeting for afforestation in hill
districts, to supply speed boat or rescue boat and wireless sets to the forest security
personnel for protection of log smuggling & to improve overall security of Sundarban, to
restart Sundarban biodiversity project, to make boundary fence protecting wild life of
Shrimangal forest, to appoint a capable lawyers to deal with the legal matters arising from
Tanguar Hawar development project, to consider imposition of service charge to transfer
 21

of log from proprietary land within forest region, to strengthen sudden visits to the market
and factories to caught the culprits of polythene producers and sellers, to make
arrangement for transferring khas land under forest departments control for afforestation,
to enquire whether tobacco companies obey the conditions of environment clearance
certificate or not, to arrange workshops & seminars on the technology innovated by the
BFRI, to determine whether Niko company breached the conditions of environmental
clearance certificate in Tengratila gas field and send report to the energy ministry, to
prepare projects which would improve the forest of Sylhet division, to take stern actions
against those who were illegally occupied forest land and recover it from them, to take a
project for continuous recycling of polythene.

It also made recommendations to improve logistic & personnel capacity of ministry of

environment and forest as well as its departments (Environment & forest) and subordinate
offices (BFRI, BFIDC, National Herbarium). This committee formed 11 subcommittees 7
of which formed for investigating irregularities & corruption of forest department and its
officials. Committee accepted subcommittees' recommendations and sent those to the
ministry for further actions.

The committee gave importance to the social forestry program, control of polythene use,
air pollution by smokes from vehicles, brick fields, cement factories, illegal hill razing,
lead free petrol. It discussed on these matters and recommended to take necessary actions
in the 2nd & 3rd meetings.

Committee also discussed setting up a campus of the University of Development

Alternative (UODA) in the core forest area. Some committee members & forest
departments had shown the reasons not to giving any land to any body/ institutions in the
core area of forest. Chair cited examples of industry setting up in this area. Since inter-
ministerial committee had decision on setting up educational institutions or agro-based
industries in the forest area, the committee recommended giving permission to setup
UODA campus in their land in forest (8th meeting). This issue also discussed in the 27th
meeting and ministry informed the committee that it had been sent to the prime minister
for approval.

Committee discussed in details on the sound pollution and its consequence to the
environment in 7th meeting. Committee considered sources of sound pollution, law
available to control, bad effects on environment & human health, and measures to be
taken. They recommended eliciting public opinion through circulations & seminars on the
sound pollution and its bad effects.

Committee also discussed the bad consequences of hill cutting (8th meeting), zhum
farming (9th meeting), Air pollution, pollution from stone crash (15th meeting), pollution
of Buriganga river water (18th meeting), pollution from textiles mills and
pharmaceuticals industries(24th meeting), and recommended to take necessary actions to
stop these environmentally harmful activities or to make legal provisions to save our
 22

environment. Committee also discussed the reasons of declining revenue earnings of this
ministry and suggested to increase it (23rd meeting) by strengthening income generating
activities.

Committee visited Sundarban discussed with experts of Sundree trees and suggesting not
to cut top dyeing trees now. Committee also discussed in details on the Tengratila gas
explosion and its bad consequences on the environment & people, and suggested some
important measures.

In addition to that 10 sub-committees also made recommendations on the basis of their

investigations. Sub-committee-3 found guilty two officials out of three. Sub-committee-4
proposed freeing from charges of complains against the concerned officers but found
evidence of corruption of another officer during their investigations. Remaining 8 Sub-
committees inspected, reviewed and investigated the matters according to their terms of
references and forwarded their suggestions to the main committee to improve the
situation.

Implementation Status of Recommendations

In the implementation of the committees' recommendations, ministry tried to address the

issues. From scrutinizing all the proceedings and report of this committee, it was found
that 27% of the recommendations were fully implemented, 27% recommendations were
partially implemented and implementation of 9% recommendations were delayed,
whereas 37% recommendations were not implemented because of complex nature. Nature
of non-implemented recommendations was complex mostly required to involve other
ministries help for implementation. The higher implementation rate in 8th parliament of
this committee, mainly due to the simple nature of recommendations e.g., it
recommended to place status or investigation reports on various matters and ministry
submitted it accordingly. When recommendations involved other than status or
investigations reports then implementations were delayed or partially implemented.

The important recommendations which were implemented includes: National Herbarium

was given status of attached department, media campaign against polythene use, experts
consultation with top dyeing disease of Sundarban, Stop of cutting top dyeing trees,
investigations of different Sub-committees, recommendations of Sub-committees and
establishment of eco-parks.

However, committee members expressed there dissatisfaction in several occasions on the

implementations status. Even they were not happy with the reports presented by the
ministry due to its insufficient information and incompleteness. In the 8th meeting, chair
warned the concerned officials and gave direction that in future the reports to be
presented in the committee should have detail & complete information. In the 27th
meeting, one committee member said that some recommendations still not implemented
 23

and many are under process even the implementation report submitted by the ministry
was not contain complete data.

Committee presented a report to the parliament containing agendas & decisions of the
meetings along with what action had been taken by the ministry on the committee
recommendations. This report contained up to 26th meetings of the committee. This is a
very good attempt by the committee; at least, they exposed their work through parliament
to the public by this report. Therefore this committee has shown some transparency to
their work.

Committee Resources

Committee resources both logistics and personnel has provided by the Parliament
Secretariat. During 7th parliament committee section-7 of the secretariat had provided
secretarial assistance to this committee. Committee section-8 has provided secretarial
assistance to our studied committee from 8th parliament. Committee section-7 had 5 staff
including section officer and their educational background was general in nature.
Moreover this section had also assisted three other committees which clearly showed they
had less time to concentrate on environmental issues. Committee section-8 has been
supported by 5 staff including section officer. It is to be mentioned here that section
officers during the tenure of 8th parliament were worked on their additional duties. This
section has additional two committees to be assisted. In terms of logistics support
committee chairman has got office and personal staff with computers in the 8th
parliament. But no committee member had got any logistic support from parliament to
perform his duties except residence, remunerations and allowances. Now Speaker of 9th
Parliament has decided to provide offices to the MPs and he has already distributed some
rooms to the MPs. Moreover there were no research facilities provided on the
environment issues to the committee members. All these drawbacks handicapped the
committee member's ability to effective monitoring and overseeing the environmental
issues in parliamentary committee and limiting the oversight capacity of parliament to
protect our environment.

New Provision for Calling Attention Motions

A written statement on all the calling attention notices which were spoke by the MPs(as
per rule 71A of Rules) at the first session has been laid on the Table at 2nd sitting of the
2nd session of 9th parliament. In these statements, Environment & Forest minister has
replied all eight matters of urgent public importance related to this ministry. Matters
includes: protection of environment of Sundarban's coastal area, stop extraction of ground
water for KAFCO, controlling pollution of Buriganga & nearby rivers, environmental
clearance certificate for small industries, prevention of pollution of Kaliganga &
Dhaleshawri rivers, protection of life & wealth of border regions from wild elephants,
project to save monkeys in Madaripur, and forcibly afforestation at the privately owned
 24

land in Mymenshing. Minister specified the present situation and actions to be taken on
these matters in his reply (BJS 2009:43-50).

Limitation of Parliamentary Control in Environmental Issues

Parliamentary control is different from general concept of control used mostly in a

hierarchical sense. [Parliamentary] Control means ''influence, not direct power; advice,
not command; criticism, not obstruction; scrutiny, not initiation; and publicity, not
secrecy.''(Crick 1968:6).

Committees in many parliamentary democracies are often treated with much respect; their
suggestions/recommendations are conventionally honored. But in Bangladesh available
evidence shows that the ministries do not voluntarily agree to implement the
recommendations made by different committees. Most of the recommendations generally
remain unimplemented or partially implemented and also outside the public purview
(Ahmad 2006:132-33). From previous discussion on the activities of SCM on
Environment and Forest we can reach same conclusions.

This committee faced the obstacle to access important documents. Despite repeated
requests, ministry did not make available some documents. Another factor limiting the
effectiveness of this committee is lack of consistency between issues discussed in
committee meetings and the decisions actually taken. Committee discussions often lacked
focus seemingly free rider. Lack of (positive) attitude of the bureaucracy and minister
presence as a member of the committee is another impediment of effective parliamentary
control. Officials generally appeared before this committee to clarify and explain their
action not as witness to secure accountability.

The ministry of environment and forest alone had not able to implement all the
committees' recommendations due to its jurisdictions. Other relevant ministries (e.g.,
land, water resources, industries, agriculture, etc.) need to be involved in the
parliamentary scrutiny on environmental issues. Therefore it is required to form a joint
committee to coordinate all the concerned ministries to holistically address on
environment related matters. The SCM on Environment and Forest has to work in an
environment with limited resources, without expertise and antagonistic to its natural
growth.

A Comparative Perspective of SCM on Environment and Forest

A holistic comparison of the SCM on Environment and Forest among the 7th, 8th & 9th
parliament of Bangladesh have shown in appendix 2. Form the appendix, it reveals,
during the 7th parliament this committee met 33 times with annually 10.44 meetings on
average. On the other hand during the 8th parliament this committee met 28 times in total
and 8.75 times annually. Similarly, on average 6.49 and 5.04 members were present and
2.38 hrs and 2.13 hrs spent on deliberations in this committee meetings of 7th & 8th
 25

parliament respectively which shows SCM on Environment and Forest of 7th parliament
were more active than 8th parliament.

There was no evidence to pass any environmental laws without scrutiny of standing or
special committees in the 7th parliament but two environmental laws had passed in the
8th parliament without scrutiny of any committee. It was seen from the proceedings of
SCM on environment & forest, four environmental laws had been scrutinized by this
committee and made some important recommendations. Two environmental laws (i.e.
Bangladesh Environmental Conservation (amendment) Bill 2002 and Environmental
Court (amendment) Bill 2002) had been passed in the 8th parliament as it was presented
in the parliament without any amendment5. It is revealed from this evidence that delayed
formation of committees limiting the ability of parliamentary scrutiny and oversight to
accountable the executive.

It also needs to mention here that this committee had not met the obligations of Rules to
sit within a month. Records had shown that this committee had not met within one month
15 times in 7th parliament and 17 times in 8th parliament. It is also seen from the
proceedings, committee member Mr. K. M. Obaidur Rahman of 7th parliament and Mr.
Bir Bahadoor of 8th parliament were completely absent all of the committee meetings.
Another member of 8th parliament Mr. Mahi B. Chowdhury was present only first two
meetings. Though Mr. Rahman was in Jail, the reasons of other two members absent were
not clear. The records also have shown the committee members of 8th parliament were
more irregular to be present in the meetings of this committee but its subcommittee had
done their tasks & submitted reports to the committee except one.

It is also found that minister was absent 5 and 3 meetings respectively in 7th and 8th
parliament of this committee. It is evident that other members were strongly criticized the
activities of ministry's and its departments in absence of minister in the committee
meetings. It can be inferred that ministers' presence in the committee as member limiting
the committees' oversight functions.

There is a provision in the Rules (rule 193) if any member successively absent two
meetings of a committee without permission of the committee, a motion can be moved in
the parliament for his removal from the committee. No activities were found in this
regards.

It is seen that this committee in 7th parliament had more active in terms of frequency of
meetings, number of agendas discussed, time spent on deliberations and member
attendance whereas this committee in 8th parliament had shown more focus on
environment in terms of agendas (34%) discussed and recommendations (37%) made and
produced one report containing the activities of the committee6.

5
See the proceedings of the 32nd sitting of 2nd session of 8th parliament (BJS 2002:62-80)
6
See Appendix 3
 26

It is to be mentioned that this committee in both term discussed heavily on miscellaneous

agenda and made higher proportion of recommendations from that, 32% & 28% in 7th
and 8th parliament respectively, which means committee members relied more on
unscheduled issues than predetermined issues. Besides, this committee had discussed 23
important issues and taken considerations but not included in its final recommendations
thereby these considerations were not put into actions in 7th parliament, in 8th parliament
these things happened 10 times.

In considering the activity of SCM on Environment and Forest of 9th parliament, so far it
has met 4 times discussed on environmental issues, corruption, irregularities and formed a
sub-committee to examine ministry's past corruption & irregularities, to solve
complexities arising from Atia Forest Ordinance 1982, river pollution and grabbing land
and report on it to the main committee. This sub-committee also met 4 times up to 6th
August 2009. It is too early to comment on the performance of this committee now.

Conflict of Interest

From the discussion of members' professional background in earlier section, it is evident

that at least half of the committee members were businessmen. There was no concrete
evidence to prove that they had work for their own business or vested groups interest.
Whatever evidences found suggests that they had work for their constituency or regional
interest. It is justified because they had pledged to improve the conditions of their
constituency during election campaign. For example, a member from Tangail district
raised the issue of Atia Forest Ordinance which had already created lots of trouble to his
people. Similarly members from Sylhet and Gaibanda raised the issues of Sylhet forest
and afforestation of WAPDA dam respectively.

There are a few evidences found which might have some conflict of interest. At the 7th
meeting of 7th parliament of this committee recommended imposing maximum tax on
imported rubber to protect local rubber industries. At the 20th meeting of the same
committee again recommended imposing import restrictions on Eva Foam. In committee
consideration, the Eva foam was polluting environment. But how committee to be
confirmed only Eva foam polluted environment was not discussed.

In the 8th parliament, this committee had recommended to give permission to set up
campus in the core area of Gajipur forest. Whereas forest officials raised objection in this
case but after several discussions committee recommended giving permission. In another
case, committee also frequently discussed the leasing and situation of Tanguar Hawar.
Committee assigned a member to discuss with the then finance minister for settling this
issue. These evidences have created some doubt that there might have some vested
interest.
 27

Chapter Five
Conclusion

From previous discussions it has shown SCM on Environment and Forest of 7th
parliament had given more importance to the routine matters of the ministry, its
department activities & irregularities and corruption of staff than 8th parliament. But this
committee of 8th parliament had given emphasis on both routine matters and more
importantly on environmental issues. This committee in 7th parliament made nearly 16%
recommendations on corruption and irregularities which were 50% more than 8th
parliament, i.e. about 11%.

This committee in 7th parliament had met 33 times with annually 10.44 meetings on
average, in 8th parliament it had met 28 times in total and 8.75 times annually. Similarly,
on average 6.49 and 5.04 members had present and 2.38 hrs and 2.13 hrs had spent for
deliberations in this committee meetings of 7th & 8th parliament respectively. Which
shows SCM on Environment and Forest of 7th parliament were more active than 8th
parliament. In 8th parliament this committee had focused more on environment in terms
of agendas (34%) discussed and recommendations (37%) made with produced one report
to the parliament containing the activities of the committee. It had discussed heavily on
miscellaneous agenda and made nearly 30% of recommendations from that both in 7th
and 8th parliament, which means committee members relied more on unscheduled issues
than predetermined issues.

This committee in 8th parliament was used more deterrent power, i.e., conducting
inquiries into different aspects of the working of ministry than 7th parliament. It had
formed 11 and 3 Sub-committees to investigate corruption and irregularities of which 10
and 2 Sub-committees investigated the maters and reported to the main committee for
necessary actions in the 8th and 7th parliament respectively.

The relationship between this committee & environment ministry was more harmonious
during 8th parliament than 7th. During the 7th parliament, this committee had struggled
for upholding its mandate. Several occasions, officials concerned had warned by the
committee. Even minister not agreed upon committees recommendations & dissatisfied
with committees scrutiny over the ministry. As a result, implementation of this committee
recommendation was nearly 53%, which was lower than the same committee of 8th
parliament.

On the other hand, at the 8th parliament, this committee had good relationship with the
ministry. Ministry had tried to address nearly 63% recommendations. Although this
committee had more educated and experienced members, they had attended irregularly in
the committee meetings means they have had occupied with other businesses. This
committee had discussed with the expert on the top dyeing diseases of Sundree trees but
 28

in the 7th parliament there was a decision in the 17th meeting to call the experts but it was
not implemented.

It also needs to mention here that this committee had not met the obligations of Rules to
sit within a month. Records had shown that this committee had not met within one month
15 times in 7th parliament and 17 times in 8th parliament. It is also seen from the
proceedings that one committee member in 7th parliament and in 8th parliament were
completely absent all of the committee meetings. There is a provision in the Rules (rule
193) if any member successively absent two meetings of a committee without permission
of the committee, a motion can be moved in the parliament for his removal from the
committee. No activities were found in this regards.

Most of the time committee's discussions were general in nature on environmental issues
and very often switched to other issues without completion the discussion. Hence,
outcome of the meetings were lacking coherence with the agendas. This committee had
adopted a very good practice from 8th parliament: ministry had to report on the
implementation status of previous meetings decisions to the next meeting. There were
evidences that the decisions of the committee meetings had not reflected to the next
meeting. It has created difficulties to track the implementation status of this committee in
the7th parliament.

So far this committee in 9th parliament met 4 times discussed on environmental issues,
corruption, irregularities and formed a subcommittee which also met 4 times up to 6
August 2009. It is too early to comment on the performance of this committee now.

From the background characteristics, it is evident that at least half of the committee
members were businessmen. There was no concrete evidence to prove that they had
worked for their own business or vested groups interest. Committee members were freely
criticized the activities of ministry's and its departments in absence of the minister in the
meetings. It can be inferred that ministers' presence in the committee as member limiting
the committees' oversight functions.

It is also revealed from the evidence that delayed formation of ministerial committees
limiting the ability of parliamentary scrutiny and oversight to accountable the executive.
The SCM on Environment and Forest has to work in an environment with limited
resources, without expertise and antagonistic to its natural improvement.

Recommendations

Considering above discussions, the following steps are required to better scrutiny and
oversee the environmental issues in the SCM on Environment and Forest to protect our
environment:
 29

1) Committee members should be chosen considering their educational

background & interest on environment & development rather arbitrarily.
2) Provide research facilities to committee members & properly equipped
concerned assisting sections of parliament secretariat through designate
officers who have knowledge on environment & development.
3) Since committee members has educational background general in nature,
periodic information sharing meeting on environment & development issues to
be arranged for their clear understandings of the issues.
4) Committee should submit periodically, at least annually, action taken report to
the parliament containing committees' recommendations and actions taken by
the ministry on it to inform their activities to the public.
5) Expert's hearings on environment should be practiced in the committee
meetings when discussed complex environmental issues.
6) Committee discussion should be focused on more environmental issues than
routine matters of the ministry or departments.
7) Committee stage scrutiny of environmental laws should take more time to
consider. There was a evidence that committee only took 2 days to consider 3
environmental bills in the 7th parliament.
8) Since environmental issues deals with different ministry other than
environment & forest ministry, it is required to form a joint committee to
coordinate all the ministries to holistically address on environment.
9) When violating Rules to convene meetings or attendance of members in the
meetings take appropriate actions as per Rules.
10) It is required to study on all the concerned ministries' standing committees
activities to better understand the scope and limits of parliamentary control
and oversight on the environmental issues.
 30

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 33

Appendices

Appendix 1: Summary of Various Individual Techniques Practicing in Bangladesh

Parliament

Types of Frequency of Duration Consultation Admissibilit Other Maximum

individual Occurrence required with leader of y criteria MPs Limits to
Techniques for Notice the House support accept
Question Every sitting clear 15 N/A* Rules 53, 54 Not 1 oral & 3
day except the days & 55 required written for
day budget is each MP
presented every day
Short-notice Do on or N/A Rule 59 Not No limits
question before 5 ministers' need required
days agree to reply
Half-an-hour Only two clear 3 N/A Rule 60 Not 2 notices for
discussion sitting days in days required each week
a week
Adjournment Any sitting 2 hours N/A Rule 63 25 MPs Maximum 2
motion day except the before support hours on the
day budget is commenc required day
presented ement of if determined
sittings objection by the
raised Speaker
Short duration 2 sitting days Clear 2 Required Rules 68- 5 more 1 hour for
discussion in a week days 69(1) MPs selected day
signature
Calling Any sitting 2 hours N/A Rule 71 Not 3 notices.
attention to day before required 15 MPs to
matters of commenc read only
urgent public ement of their notices
importance sittings within 30
min.
• N/A - Not Applicable.

Source: Rules of procedure of Bangladesh Parliament (BJS 2007:15-24). Compiled and

made by the author.
 34

Appendix 2 : Nature of Activism of Standing Committee on Ministry of

Environment & Forest

Variables Parliament
Seventh Eight Ninth*
Date of Parliament convened 14.07.1996 28.10.2001 25.01.2009
Date of Parliament dissolved 13.07.2001 27.10.2006 -
First date of Committee formation 12.05.1998 15.07.2003 18.02.2009
Date of committee first met 03.06.1998 15.09.2003 20.04.2009
Total of number of meetings held 33 28 3
Average number of meetings held per year 10.44 8.75 na
Average attendance of committee members 8
6.491 5.042
(per meeting)
Average time spent for deliberations per 3..06 hrs
2.38 hrs3 2.13 hrs4
meeting
Average frequency of committee meetings 32.42 days5 39.18 days6 33 days
Number of reports presented
Bills 4 0 0
Others 0 1 0
Numbers of sub-committees formed 3 11 1
Number of subcommittees meetings held
Sub-committee 1 Inspection Inspection 3
Sub-committee 2 Inspection Inspection
Sub-committee 3 3
Sub-committee 4 2
Sub-committee 5 1
Sub-committee 6 Inspection
Sub-committee 7 2
Sub-committee 8 -
Sub-committee 9 1
Sub-committee 10 2
Sub-committee 11 Inspection
Terms of reference of subcommittees
Subcommittee 1 To investigate the allegations To submit a report To examine
of irregularities & corruption by inspection ministry's past
against Mr. Md.Abdul within one month corruption &
Hannan, PD of Modhupur on the land which irregularities, to
rubber garden project and to is freed by Chatak solving
submit a report on it in the paper mill of complexities
next meeting of the main Sylhet arising from Atia
committee. Forest Ordinance
82, river pollution
and grabbing land
and report on it to
the committee.
Subcommittee 2 To inspect & investigate the To review and inspect the matters on
allegations against forest Tanguar hawar and to present a report on
departments of Sundarban, it to the main committee.
Chittagong, Sylhet & other
regions, and made separate
report on each area to the
chair of the committee.
Subcommittee 3 To investigate the reports To investigate allegations against ex-
published in the daily Rupali divisional forest officers Mr. Tapan
and daily Matribhumi on 29- Kumer Dey, Mr. Abdullah Al Mamum
11-2000 on the matters Chowdhury and Mr. Faroque Hossain by
relating to forest department reviewing files/records
and to submit a report on it in
the next meeting of the main
committee.
 35

Subcommittee 4 To investigate complaints rose against

deputy conservator of forest (current
charge) Mr. Md. Osman goni and to
submit a report to the main committee.
Subcommittee 5 To review and inspect the conditions of
planted coconut tree throughout the
country and to present a repot on it to the
main committee.
Subcommittee 6 To investgigate the matters on log
smuggling and damage of wood in the
range of Kaptai & Karnaphuli of
Rangamati circle.
Subcommittee 7 To investigate the matters why the report
of NSI & DGFI against some corrupt
officials were not placed before minister;
why this report was disclosed before
imposing punishment and why the
officials got price posting who have
allegations in this report: and recommend
a draft principles of transfer and made a
report to the main committee within 3
months.
Subcommittee 8 To scrutinize complaints of irregularities
& fund embezzlement against Sylhet
divisional forest officer Mr.Abdullah Al
Mamun.
Subcommittee 9 To inspect & investigate environmental
damage causing from explosion of
Tengratila gas field explosion in Sylhet
and to present a report to the main
committee immediately on it.
Subcommittee 10 To inquire into the allegations on
capturing wood log by the forest division
of Rangamati, Khagrachari & Bandarban
districts and to place a report to the main
committee containing recommendations
to resolve the matters.
Subcommittee 11 To investigate the matters relating to the
invalid car of Chittagong forest division
and illegally grabbing forest land by the
peoples and to submit a report within next
2 months to the committee.
Sum-committees prepared 2 10 0
reports
1. Minister absent 5 meetings, 2. Minister absent 3 meetings, 3. Duration is available only for 22
meetings, 4. Calculations are done from available 8 meetings duration data, 5. 15 times violate Rules to
convene committee meetings, 6. Violate Rules 17 times to convene meetings.
* Data available up to 14.07.2009 of 9th parliament.

Source: Compiled and calculated by the author from all the proceedings of the SCM on
Environment and Forest, reports of all subcommittees of this committee and notices of convening
meetings of 7th, 8th parliament (PS, 1997-2009). In the 9th parliament, calculations are done
based on the data of first two meetings of this committee. Report of the SCM on Environment and
Forest to the 8th parliament (PS, 2006).
 36

Appendix 3: Comparative Findings on Agendas and Recommendations of SCM on

Environment and Forest between 7th and 8th Parliament.

Variables 7th Parliament 8th Parliament (%

(% in approx. terms) in approx. terms)
Total no. of meetings 33 28
Total no. of agendas 100 61
Agendas evolved from committee 39% 54%
meetings
Agendas specific to environment 28% 34%
Agendas specific to corruption & 11% 11%
irregularities
Agendas not discussed in meetings 10 1
Total no. of recommendations 164 158
Recommendations took from 32% 28%
miscellaneous discussions
Recommendations related to corruption 16% 11%
& irregularities
Recommendations specific to 17% 37%
environmental issues
Recommendations implemented 53% 63%

Source: Compiled and calculated by author from the agendas and proceedings
(SCM on Environment and Forest) of 7th & 8th Parliament (BJS 1998-2006).