Types of Bills
- Public Bills: Government bills, introduced by ministers.
- Private Bills: Private members’ bills, introduced by any member who is not a minister.
- Ordinary Bills: Concern matters other than financial subjects.
- Money Bills: Deal with financial matters such as taxation, public expenditure, etc.
- Financial Bills: Also relate to financial matters, but differ from money bills.
- Constitution Amendment Bills: Involve amending the Constitution.
Ordinary Bills
1. First Reading
- A bill is introduced in either House of Parliament by a minister or another member.
- The member asks for the leave of the House to introduce the bill.
- If approved, the bill is introduced by reading its title and objectives.
- The bill is published in the Gazette of India, completing the first reading.
2. Second Reading
The second reading includes general and detailed scrutiny of the bill and has three sub-stages:
➤ (a) Stage of General Discussion
- Printed copies of the bill are distributed to all members.
- Members discuss the bill’s principles and provisions generally.
- The House can take one of the following actions:
➤ Consider the bill immediately or on a later date.
➤ Refer the bill to a select committee of the House.
➤ Refer the bill to a joint committee of both Houses.
➤ Circulate the bill to elicit public opinion.
➤ (b) Committee Stage
- The bill is usually referred to a select committee of the House.
- The committee examines the bill in detail, clause by clause, and may make amendments.
- The committee reports the bill back to the House.
➤ (c) Consideration Stage
- The House reviews the bill from the committee.
- Members discuss and vote on each clause separately and can propose amendments.
3. Third Reading
- The debate focuses on the bill as a whole; no amendments are allowed at this stage.
- If the bill is approved by the majority of members present and voting, the bill is considered passed.
- The bill is authenticated by the presiding officer and sent to the second House for consideration.
4. Bill in the Second House
- The second House follows the same process as the first House, including three readings.
- The second House can pass the bill without changes, pass it with amendments, reject it, or take no action.
- If there is a disagreement between the Houses, a joint sitting may be summoned by the president to resolve the deadlock.
5. Assent of the President
- Once both Houses pass the bill, it is sent to the president for assent.
- The president has three options:
➤ Give Assent: The bill becomes an act.
➤ Withhold Assent: The bill does not become an act.
➤ Return for Reconsideration: If the bill is passed again by both Houses, the president must give assent.
If the president gives his assent to the bill, the bill becomes an act and is placed on the Statute Book. If the President withholds his assent to the bill, it ends and does not become an act.
If the President returns the bill for reconsideration and if it is passed by both the Houses again with or without amendments and presented to the President for his assent, the president must give his assent to the bill. Thus, the President enjoys only a “suspensive veto
In conclusion, the legislative process in Parliament ensures that bills go through a comprehensive review before becoming law, including careful scrutiny, debate, and opportunities for amendments in both Houses, with the president's assent as the final step.
The legislative procedure is identical in both the Houses of Parliament. Every bill has to pass through the same stages in each House. A bill is a proposal for legislation and it becomes an act or law when duly enacted.
Bills introduced in the Parliament are of two kinds: public bills and private bills (also known as government bills and private members’ bills respectively).
The bills introduced in the Parliament can also be classified into four categories:
1) Ordinary bills, which are concerned with any matter other than financial subjects.
2) Money bills, which are concerned with the financial matters like taxation, public expenditure, etc.
3) Financial bills, which are also concerned with financial matters (but are different from money bills).
4) Constitution amendment bills, which are concerned with the amendment of the provisions of the Constitution.
Ordinary Bills
Every ordinary bill has to pass through the following five stages in the Parliament before it finds a place on the Statute Book:
1. First Reading
An ordinary bill can be introduced in either House of Parliament. Such a bill can be introduced either by a minister or by any other member. The member who wants to introduce the bill has to ask for the leave of the House. When the House grants leave to introduce the bill, the mover of the bill introduces it by reading its title and objectives.
No discussion on the bill takes place at this stage. Later, the bill is published in the Gazette of India. If a bill is published in the Gazette before its introduction, leave of the House to introduce the bill is not necessary. The introduction of the bill and its publication in the Gazette constitute the first reading of the bill.
2. Second Reading
During this stage, the bill receives not only the general but also the detailed scrutiny and assumes its final shape. Hence, it forms the most important stage in the enactment of a bill. In fact, this stage involves three more sub-stages, namely, stage of general discussion, committee stage and consideration stage.
(a) Stage of General Discussion
The printed copies of the bill are distributed to all the members. The principles of the bill and its provisions are discussed generally, but the details of the bill are not discussed.
At this stage, the House can take any one of the following four actions:
(i) It may take the bill into consideration immediately or on some other fixed date;
(ii) It may refer the bill to a select committee of the House;
(iii) It may refer the bill to a joint committee of the two Houses; and
(iv) It may circulate the bill to elicit public opinion.
A Select Committee consists of members of the House where the bill has originated and a joint committee consists of members of both the Houses of Parliament.
(b) Committee Stage
The usual practice is to refer the bill to a select committee of the House. This committee examines the bill thoroughly and in detail, clause by clause. It can also amend its provisions, but without altering the principles underlying it. After completing the scrutiny and discussion, the committee reports the bill back to the House.
(c) Consideration Stage
The House, after receiving the bill from the select committee, considers the provisions of the bill clause by clause. Each clause is discussed and voted upon separately. The members can also
move amendments and if accepted, they become part of the bill.
3. Third Reading
At this stage, the debate is confined to the acceptance or rejection of the bill as a whole and no amendments are allowed, as the general principles underlying the bill have already been
scrutinised during the stage of second reading.
If the majority of members present and voting accept the bill, the bill is regarded as passed by the House. Thereafter, the bill is authenticated by the presiding officer of the House and transmitted to the second House for consideration and approval.
A bill is deemed to have been passed by the Parliament only when both the Houses have agreed to it, either with or without amendments.
4. Bill in the Second House
In the second House also, the bill passes through all the three stages, that is, first reading, second reading and third reading. There are four alternatives before this House:
(a) it may pass the bill as sent by the first house (ie, without amendments);
(b) it may pass the bill with amendments and return it to the first House for reconsideration;
(c) it may reject the bill altogether; and
(d) it may not take any action and thus keep the bill pending.
If the second House passes the bill without any amendments or the first House accepts the amendments suggested by the second House, the bill is deemed to have been passed by both the Houses and the same is sent to the president for his assent.
On the other hand, if the first House rejects the amendments suggested by the second House or the second House rejects the bill altogether or the second House does not take any action for six months, a deadlock is deemed to have taken place.
To resolve such a deadlock, the president can summon a joint sitting of the two Houses. If the majority of members present and voting in the joint sitting approves the bill, the bill is deemed to have been passed by both the Houses.
5. Assent of the President
Every bill after being passed by both Houses of Parliament either singly or at a joint sitting, is presented to the president for his assent. There are three alternatives before the president:
(a) he may give his assent to the bill; or
(b) he may withhold his assent to the bill; or
(c) he may return the bill for reconsideration of the Houses.
If the president gives his assent to the bill, the bill becomes an act and is placed on the Statute Book. If the President withholds his assent to the bill, it ends and does not become an act.
If the President returns the bill for reconsideration and if it is passed by both the Houses again with or without amendments and presented to the President for his assent, the president must give his assent to the bill. Thus, the President enjoys only a “suspensive veto.
