Legislative Procedures in Parliament
Ordinary Bills • Three Readings • Committees • Joint Sitting • Money Bills • Financial Bills • Presidential Assent
How Does Parliament Make a Law?
A Bill is a legislative proposal. It becomes an Act after completing the constitutionally prescribed process and receiving the President’s assent.
Introduction → Consideration → Passage → Other House → President’s assent → Act → Commencement.
The precise procedure depends on the kind of Bill. An ordinary Bill, Money Bill and Constitutional Amendment Bill do not follow identical routes.
Does approval by Lok Sabha alone normally make an ordinary Bill an Act?
Important Constitutional Articles
| Article | Subject |
|---|---|
| 107 | Introduction, passage and lapsing of Bills |
| 108 | Joint sitting of Parliament |
| 109 | Special procedure for Money Bills |
| 110 | Definition of Money Bill |
| 111 | President’s assent |
| 117 | Financial Bills |
| 118 | Rules of procedure |
| 123 | Ordinances |
| 368 | Constitutional amendments |
Which Article provides for joint sittings?
Different Types of Bills
| Type | Meaning |
|---|---|
| Ordinary Bill | General legislative proposal |
| Money Bill | Contains only Article 110 matters and incidental matters |
| Financial Bill (I) | Article 110 matters plus other legislative provisions |
| Financial Bill (II) | Involves expenditure from the Consolidated Fund without Article 110 matters |
| Constitution Amendment Bill | Amends the Constitution under the applicable constitutional procedure |
A Government Bill is introduced by a minister. A Private Member’s Bill is introduced by an MP who is not a minister.
Can a private member introduce an ordinary Bill?
Preparation of a Bill
For government legislation, the sponsoring ministry develops a proposal and prepares a legislative draft.
- Identify the policy problem.
- Develop legislative proposals.
- Undertake consultations and legal examination where applicable.
- Obtain necessary government approvals.
- Prepare the Bill and accompanying documents.
- Introduce it according to House rules.
Is committee scrutiny compulsory for every parliamentary Bill?
First Reading: Introduction
The first reading concerns the introduction of a Bill.
- An ordinary Bill may originate in either House.
- It may be introduced by a minister or private member.
- Leave to introduce may be sought according to House rules.
- The Bill is published as prescribed.
Can an ordinary Bill originate in Rajya Sabha?
Second Reading: General Discussion
The House examines the broad principles and purpose of the Bill.
Depending on the applicable procedure, it may:
- Take the Bill into consideration.
- Refer it to a Select Committee.
- Refer it to a Joint Committee.
- Circulate it to elicit opinion.
Does general discussion itself complete clause-by-clause consideration?
Role of Parliamentary Committees
| Committee | Function |
|---|---|
| Department-related Standing Committee | May examine referred Bills and related policy issues |
| Select Committee | Examines a specific Bill in one House |
| Joint Committee | Examines a Bill through members of both Houses |
Committees may examine legal drafting, implementation challenges, costs and stakeholder views.
Can a committee report itself turn a Bill into law?
Second Reading: Clause-by-Clause Examination
The House considers the individual clauses of the Bill.
- Each clause is taken up.
- Admissible amendments may be proposed.
- Amendments are considered and voted upon.
- The clause is adopted, with changes where approved.
This stage is particularly important because the legislative text may change.
At which stage are detailed amendments ordinarily considered?
Third Reading
The third reading is the final stage of consideration in the House.
- Discussion is generally confined to supporting or opposing the Bill as a whole.
- The House votes on whether to pass it.
- Ordinary Bills are generally passed by a majority of members present and voting, subject to applicable constitutional rules.
Which reading culminates in the final vote on the Bill?
What Happens in the Second House?
After passage in the originating House, an ordinary Bill is transmitted to the other House.
The receiving House may:
- Pass the Bill without amendment.
- Pass it with amendments.
- Reject it.
- Delay consideration.
If amendments are made, agreement between the Houses is ordinarily required.
Can Rajya Sabha amend an ordinary Bill?
When Do the Houses Reach a Deadlock?
Article 108 provides a joint-sitting mechanism for specified disagreements.
Three situations
- The receiving House rejects the Bill.
- The Houses finally disagree on amendments.
- More than six months elapse without the receiving House passing the Bill, subject to constitutional exclusions.
Can a disagreement over an ordinary Bill potentially lead to a joint sitting?
Joint Sitting of Parliament
The President may notify an intention to summon both Houses to meet jointly when an Article 108 deadlock arises.
| Question | Answer |
|---|---|
| Who summons? | President |
| Who ordinarily presides? | Lok Sabha Speaker |
| Majority required? | Majority of members of both Houses present and voting |
| Money Bills? | No joint sitting |
| Constitution Amendment Bills? | No joint sitting |
Who ordinarily presides over a joint sitting?
Money Bills: Article 110
A Money Bill contains only matters specified in Article 110(1), including permitted incidental matters.
- Imposition, abolition or regulation of taxes.
- Union borrowing and guarantees.
- Custody and operation of specified public funds.
- Appropriation from the Consolidated Fund of India.
- Charged expenditure.
- Specified receipts, accounts and audits.
- Matters incidental to the enumerated subjects.
Which Article defines a Money Bill?
How Is a Money Bill Passed?
- Introduced only in Lok Sabha, on the President’s recommendation.
- Passed by Lok Sabha.
- Transmitted to Rajya Sabha for recommendations.
- Rajya Sabha must return it within 14 days.
- Lok Sabha may accept or reject the recommendations.
If Rajya Sabha does not return the Bill within 14 days, it is deemed passed by both Houses in the form approved by Lok Sabha.
Can Rajya Sabha permanently block a Money Bill?
Financial Bill (I)
A Financial Bill (I) contains Article 110 matters plus other substantive provisions.
- Introduced only in Lok Sabha.
- Requires the President’s recommendation for introduction.
- Rajya Sabha may amend or reject it.
- Joint sitting may be available for a qualifying deadlock.
Does the 14-day Money Bill restriction apply to Financial Bill (I)?
Financial Bill (II)
A Financial Bill (II) involves expenditure from the Consolidated Fund of India but does not contain Article 110 matters.
- May originate in either House.
- Does not require presidential recommendation merely for introduction.
- Requires the President’s recommendation before a House passes it.
- Rajya Sabha has ordinary legislative powers.
Can Financial Bill (II) originate in Rajya Sabha?
Ordinary, Money and Financial Bills
| Feature | Ordinary | Money | Financial I | Financial II |
|---|---|---|---|---|
| Origin | Either | Lok Sabha | Lok Sabha | Either |
| President’s recommendation | Generally not for introduction | Introduction | Introduction | Before passage |
| Rajya Sabha | Full powers | Recommendations only | Full powers | Full powers |
| Joint sitting | Possible | No | Possible | Possible |
Which two financial categories allow Rajya Sabha to amend or reject the Bill?
Presidential Assent
When a Bill is presented to the President under Article 111, the President may declare assent or withhold assent.
For a Bill other than a Money Bill, the President may return it for reconsideration.
A Money Bill cannot be returned under the reconsideration proviso of Article 111.
Can the President return an ordinary Bill for reconsideration?
Constitution Amendment Bills
Amendments under Article 368 follow a distinct constitutional procedure.
- May be introduced in either House.
- May be introduced by a minister or private member.
- Require the prescribed special majority in each House.
- Certain amendments also require ratification by at least half the States.
- There is no joint sitting.
- The President must give assent to a duly passed amendment Bill.
Can a joint sitting overcome Rajya Sabha’s rejection of a Constitution Amendment Bill?
Which Bills Lapse When Lok Sabha Dissolves?
| Situation | Effect |
|---|---|
| Bill pending in Lok Sabha | Lapses |
| Bill passed by Lok Sabha, pending in Rajya Sabha | Lapses, subject to Article 108 exception |
| Bill pending in Rajya Sabha, not passed by Lok Sabha | Does not lapse |
| Bill passed by both Houses, awaiting assent | Does not lapse |
| Bill returned for reconsideration and pending | Does not lapse merely due to dissolution |
Does a Bill pending only in Rajya Sabha lapse when Lok Sabha dissolves?
Prorogation, Dissolution and Joint Sitting
Adjournment: Suspends a sitting.
Prorogation: Ends a parliamentary session.
Dissolution: Ends the life of Lok Sabha.
Does prorogation automatically terminate all pending Bills?
Budget, Grants and Appropriation
The Union Budget involves several constitutional procedures beyond the general ordinary-Bill process.
- Article 112: Annual Financial Statement.
- Article 113: Demands for grants.
- Article 114: Appropriation Bills.
- Article 115: Supplementary, additional and excess grants.
- Article 116: Votes on account, votes of credit and exceptional grants.
Which House votes on demands for grants?
Ordinance-Making Power
When both Houses of Parliament are not in session, the President may promulgate an Ordinance if constitutional conditions are satisfied.
- An Ordinance has the force and effect of an Act of Parliament.
- It must be laid before both Houses.
- It ordinarily ceases to operate six weeks after Parliament reassembles unless replaced or otherwise addressed according to the Constitution.
Which Article gives the President ordinance-making power?
Three Parliamentary Scenarios
Scenario A: Rajya Sabha returns a Money Bill after 10 days with amendments. Must Lok Sabha accept them?
Scenario B: Rajya Sabha rejects an ordinary Bill. Can Article 108 potentially apply?
Scenario C: Lok Sabha dissolves after both Houses have passed a Bill, but before presidential assent. Does it lapse?
High-Yield Facts
| Remember | Rule |
|---|---|
| Ordinary Bill | Either House |
| Three readings | Introduction, consideration, final passage |
| Joint sitting | Article 108 |
| Money Bill | Article 110 |
| Money Bill return | 14 days |
| Presidential assent | Article 111 |
| Financial Bill I | Article 117(1) |
| Financial Bill II | Article 117(3) |
| Amendment Bill | Article 368 |
| Ordinance | Article 123 |
State the most important difference between an ordinary Bill and a Money Bill.
30 Interactive MCQs
Select an option and press Check answer. You will receive an explanation immediately.
Analytical Answer Writing
Explain the three readings of an ordinary Bill in Parliament.
Compare the powers of Lok Sabha and Rajya Sabha in relation to ordinary Bills and Money Bills.
Discuss the constitutional circumstances in which a joint sitting may be summoned.
Differentiate Money Bills, Financial Bills (I) and Financial Bills (II).
Evaluate the role of parliamentary committees in improving the quality of legislation.
What should a strong Mains answer on legislative procedures include?
