Stages of a public bill
8.01 Public bills in the House of Lords have
five main stages:
and first reading;
reading and passing.
Further stages may also be necessary as a result
of communications between the two Houses (see paragraphs 8.157-8.177).
Successive stages of a bill to
be taken on different days
8.02 Under SO 46, no two stages of a bill may
be taken on one day, except if a bill is not amended in Committee
of the whole House, in which case the report stage may be taken
immediately thereafter. So, if it is intended to take more than
one stage of a bill on one day, other than the report stage of
a bill which has not been amended in Committee of the whole House,
SO 46 must be suspended or dispensed with and notice of this must
Recommended minimum intervals
between the stages of a bill
8.03 The following minimum intervals between
stages of public bills should be observed:
(a) two weekends between the first reading (whether
of a new bill or one brought from the Commons) and the debate
on second reading;
(b) fourteen days between second reading and
the start of the committee stage;
(c) on all bills of considerable length and complexity,
fourteen days between the end of the committee stage and the start
of the report stage;
(d) three sitting days between the end of the
report stage and third reading.
8.04 Notice is given when these minimum intervals
are departed from, and is given by means of a § against the
bill in House of Lords Business. However, such notice is
not required when SO 46 has been suspended or dispensed with.
8.05 For any legislation subject to expedited
procedures ("fast-tracked") the Explanatory Notes accompanying
the legislation will contain a full explanation of the reasons
for using a fast-track procedure.
8.06 Reasonable notice should whenever possible
be given for consideration of Commons amendments, taking into
account the number and scale of amendments and the availability
of papers relating to them.
8.07 Subject to the procedure described below,
any public bill which does not receive Royal Assent in the session
in which it is introduced falls at the end of that session.
8.08 In 1998 the two Houses approved the principle
that it should be possible for certain government public bills
to be "carried over" from one session to the next in
the same way as private and hybrid bills, in the House in which
The House of Lords has also agreed that it should be possible
for bills in their second House to be carried over if they have
been the subject of pre-legislative scrutiny.
In the Lords:
of bills for carry-over is settled by informal discussion through
the usual channels;
are carried over by ad hoc motions;
Commons bill carried over in the Commons is treated in the same
way as any other bill brought from the Commons;
bill that has been carried over falls if it does not reach the
statute book by the end of the session following that in which
it was introduced.
8.09 The procedure does not apply over a dissolution.
Introduction and first reading
8.10 Any member may introduce a bill without
notice and without moving for leave to bring it in.
8.11 The Public Bill Office should be informed
of an intention to introduce a bill not later than the previous
working day. Members are encouraged to submit a draft of any bill
to the Public Bill Office before introduction in order to ensure
that, before being printed and circulated, it is in proper form.
The final text of the bill must be handed in to the Public Bill
Office before it is introduced.
8.12 The powers of the House to legislate on
devolved matters are unaffected by the devolution legislation.
8.13 The government has stated that "there
would be instances where it would be more convenient for legislation
on devolved matters to be passed by the United Kingdom Parliament,
[though] Westminster would not normally legislate with regard
to matters within the competence of the [devolved] parliament
without the consent of that parliament".
When either the Scottish Parliament or the Northern Ireland Assembly
has passed a Legislative Consent Motion, this is indicated in
the list of bills in progress in House of Lords Business.
Procedure on introduction: Lords
8.14 A member who wishes to present a bill rises
in his place at the beginning of public business after oral questions
or (on rare occasions) at the end of public business immediately
before the adjournment of the House.
He introduces the bill by saying only:
"My Lords, I beg to introduce a bill to [long
title of bill]. I beg to move that this bill be now read a first
8.15 The Question is put from the Woolsack. The
first reading of a bill is agreed to without dissent or debate,
both as a matter of courtesy and because the House usually has
no knowledge of the bill until it is printed.
8.16 A bill may be introduced by a member on
behalf of another member.
Procedure on introduction: Commons
8.17 A bill which has been introduced in the
Commons and which has passed through all its stages in that House
is brought to the Lords by a Commons Clerk with a message stating
that the Commons have passed the bill. The message is read by
the Clerk at the Table as soon as the item of business in progress
has ended, and the first reading of the bill (whether a government
bill or a private member's bill) is moved immediately by a government
8.18 As with Lords bills, the first reading of
a bill brought from the Commons is agreed to without discussion,
both as a matter of courtesy to the Commons and because at this
stage no member has formally taken charge of it.
8.19 The Lord taking charge of a Commons bill
should inform the Public Bill Office.
Bills brought up and printed
when Lords not sitting
8.20 A bill passed by the Commons may be carried
up to the Public Bill Office when the Lords are not sitting. Under
SO 50 it is deemed to have been brought from the Commons on that
day and the bill and any explanatory notes may be printed before
first reading if this is for the convenience of the House.
Printing of bills and explanatory
8.21 After the first reading of a bill an order
is made for the bill and any explanatory notes to be printed.
By convention, Consolidated Fund Bills and Appropriation Bills
are not printed for the Lords, nor are provisional order confirmation
bills unless subsequently amended on consideration on report.
Other bills which are to be taken through the House urgently are
not printed if they have not been amended since the last Commons
print and if the timetable for their consideration by the Lords
makes printing impracticable.
8.22 A bill introduced in the Lords is endorsed
with the name of the member of the House who has introduced it.
It is not the practice to add other names. A bill brought from
the Commons is not endorsed with the name of the Lord taking charge
of the bill.
8.23 For most government bills explanatory notes
are produced by the responsible Department at the time the bill
is introduced. Such notes cover the financial and manpower implications
of the bill and any regulatory aspects (though any regulatory
appraisal is usually produced separately). Notes must be neutral
in tone and must not try to promote the bill or the policy underlying
Explanatory notes are also produced for Commons amendments to
Lords bills. In some cases Departments may prepare notes for private
members' bills, with the consent of the Lord in charge of the
bill, whose authority must be communicated to the Public Bill
Office before the notes can be printed. Notes may also be produced
by private members themselves: members should submit a draft of
any explanatory notes to the Public Bill Office before introduction
in order to ensure that these are in proper form.
European Convention on Human
8.24 Under s.19 of the Human Rights Act 1998
the minister in charge of a government bill must make a statement
before second reading as to whether in his view the provisions
of the bill are compatible with the European Convention on Human
Rights, and publish the statement in such manner as he considers
appropriate. This requirement extends to provisional order confirmation
bills. The statement is usually set out on the cover page of a
bill as first printed for each House; where bills are not printed
for the Lords the statement is publicised by means of a written
8.25 The minister who makes the statement should
under normal circumstances move the second reading of the bill.
If that minister is unable to do so, another minister should do
so on the basis that he or she is acting on behalf of the minister
who has made the statement.
8.26 Section 19 does not apply to a private member's
Notice of subsequent stages
8.27 It is for the Lord who is in charge of a
bill to give notice of a date for second reading, and for the
stages thereafter. When a day is fixed for the second reading,
or for any subsequent stage, notice is given in House of Lords
8.28 A member may move any stage of a bill on
behalf of the Lord in charge of the bill. Bills once introduced
are in the possession of the House and not in the sole ownership
of the Lord in charge.
Government and private members'
8.29 There is no procedural distinction between
bills sponsored by a minister and those introduced by other members
of the House, save in respect of carry-over and human rights statements.
In practice the House normally accords priority to proceedings
on government bills except where private members' bills are not
expected to give rise to debate. But there is no concept of government
or private members' "time" in the Lords, nor any specific
time when government or private members' bills are taken.
8.30 Two booklets, Taking part in public bills
in the House of Lords and A Guide to House of Lords amendment
style, and a leaflet Promoting a private member's bill in the
House of Lords, are available to members from the Public Bill
Commons bills not taken up within
twelve sitting days
8.31 Under SO 49, if a bill brought up from the
Commons remains for twelve sitting days without any member having
given notice of a date for second reading, it cannot be proceeded
with except after eight days' notice. Motions to dispense with
SO 49 have been agreed to.
Withdrawal of bills
8.32 A Commons bill may not be withdrawn at any
stage in the House of Lords.
8.33 At any time after first reading, a bill
originating in the House of Lords may, with the agreement of the
House, be withdrawn by the Lord who presented it. This is achieved
by the Lord in charge of the bill either begging leave to withdraw
the motion for the relevant stage or, if the bill is between stages,
tabling a separate motion, of which notice is given, "That
the bill be withdrawn". Unanimous leave of the House
must be granted for a stage of a bill to be withdrawn, so that
a single dissenting voice prevents leave being given and the Question
must in that case be put and decided. The granting of leave to
withdraw a stage of a bill is treated as withdrawal of the bill,
unless the Lord in charge of the bill indicates that he intends
to proceed with the bill on another day.
Delegated Powers and Regulatory
8.34 All bills other than consolidation, money
and supply bills are considered by the Delegated Powers and Regulatory
Reform Committee, which reports to the House in relation to any
delegated powers they contain. The committee aims to report before
the committee stage begins, though the House is under no obligation
to delay proceedings if the committee has not reported by that
time. If time allows, the committee may also report on government
amendments, if these involve significant delegated powers.
8.35 The Constitution Committee examines the
constitutional implications of all public bills coming before
8.36 Government bills which are published in
draft may be considered and reported on, before they are introduced,
by a select or joint committee appointed for that purpose. At
least 3-4 months (excluding long recesses) is normally required
to hear evidence and report. Such "pre-legislative scrutiny"
does not have the effect of eliminating any stages when the bill
itself is considered by the House.
8.37 The second reading is the stage at which
the general principles of the bill are considered. The Lord in
charge of the bill says, "My Lords, I beg to move that
this bill be now read a second time", and makes the case
for the bill. In their speeches other members of the House may
indicate the way in which they consider the bill requires amendment
and the general nature of amendments which they will propose later,
but discussion of points of detail should normally be left to
the committee stage.
Opposition to second reading
8.38 A bill may be opposed on second reading
by an amendment to the effect that "this House declines to
give the bill a second reading". The amendment may add a
reason (a "reasoned amendment"). The agreement of the
House to such an amendment, with or without a reason, means automatic
rejection of the bill. The question as amended is not put, and
the bill is removed from the list of bills in progress.
8.39 It is possible to oppose the motion "That
this bill be now read a second time", without tabling an
amendment. However, it is uncommon for such opposition to take
place, because notice of it, which is desirable in the interests
of good order, cannot be given on the order paper.
8.40 The "dilatory amendment" to put
off second reading for six months is an obsolete procedure.
Second reading agreed to with
8.41 In addition to amendments in opposition
to the second reading of a bill, amendments may be moved which
do not seek to negative the second reading but invite the House
to put on record a particular point of view in agreeing to the
Procedure on amendments to second
8.42 Notice is required on the order paper of
any amendment to the motion for second reading. If notice has
been given of more than one amendment, they are dealt with in
the order in which they relate to the motion, or, if they relate
to the same place in the motion, in the order in which they were
tabled. In such cases it is usual for the whole debate to take
place on the first amendment, and the members who tabled the other
amendments speak in this debate to indicate the reason why they
prefer their own amendments. When the debate is concluded, the
Question is put on each amendment successively, or on so many
of them as need to be disposed of before a positive decision is
reached. If an amendment opposing the second reading is agreed
to, the Bill is rejected and no further Question is put. In any
other case, the Question on the original motion or on the original
motion as amended is then finally put and decided.
Motion for adjournment of second
8.43 It is also possible to move that the second
reading debate be adjourned, with or without notice or reasons.
Such a motion, if agreed to, does not prevent the motion for the
second reading being put down for a subsequent day.
Consideration in a Second Reading
8.44 The House agreed in 2008, on a trial basis,
that second reading debates on certain Law Commission bills should
be held in the Moses Room.
Following first reading, a motion is tabled, with at least three
sitting days' notice, to refer the bill to a "Second Reading
Committee". The Committee debates the bill, and reports to
the House that it has considered the bill. The second reading
motion is then normally taken without debate in the House, though
it remains possible, in the event of opposition, for amendments
to be tabled or a vote to take place on the motion. Law Commission
bills are normally committed to a special public bill committee
8.45 After second reading, either immediately
or at a later date, bills are committed to a committee on a motion
in the name of the Lord in charge of the bill. Bills are usually
committed to a Committee of the whole House or a Grand Committee.
The forms of words are "That this bill be committed to
a Committee of the whole House" or "to a Grand
8.46 In certain cases bills may be committed
to other types of committee. These include public bill committees,
special public bill committees and select committees, which are
described at paragraphs 8.105-8.123.
8.47 The House sometimes wishes, after committing
a bill to one kind of committee, to commit it to another instead.
The motion is "That the order of commitment of [date] committing
the bill to an [original committee] be discharged and that the
bill be committed to a [new committee]."
8.48 Sometimes, in order to save the time of
the House, a bill is not committed. This is the invariable practice
in the case of supply bills and the normal practice for money
after the second reading the Lord in charge of the bill moves
"That this bill be not committed" and the Question
is put. If it is agreed to, the next stage is third reading.
8.49 Instructions to any committee on a bill
may be moved after the second reading.
8.50 Instructions may be either mandatory or
permissive. The most common mandatory instruction directs the
committee to consider the clauses and Schedules in an order other
than that of the bill. Permissive instructions enable a committee
to do something that it could not otherwise do, such as divide
a bill into two.
8.51 Instructions to extend the scope of a bill
(that is, to make admissible amendments which would otherwise
be excluded by the rules of relevance) are not in order.
Tabling of amendments
8.52 Amendments may be moved in committee, on
report and on third reading. The following section describes general
procedure for dealing with amendments. Issues specific to particular
stages are described in the sections relating to those stages.
8.53 Amendments may be tabled in the Public Bill
Office at any time after second reading. When the second reading
and committee stages are expected to take place on the same day,
amendments are accepted by the Public Bill Office before second
reading. The late tabling of amendments is strongly deprecated
since members have only a limited time to consider them and, if
necessary, move amendments to them.
8.54 Amendments which are intended to be published
the next working day should be tabled between 10 a.m. and 5 p.m.
on Mondays to Thursdays, and 10 a.m. and 4 p.m. on Fridays. Amendments
may be tabled with the duty Clerk during recesses, between 10
a.m. and 4 p.m.
8.55 A Guide to House of Lords amendment style
is available to members from the Public Bill Office.
Admissibility of amendments
8.56 The Public Bill Office advises on whether
an amendment is admissible and it is expected that this advice
will be taken. If a member insists on tabling an amendment which
the Public Bill Office has advised is inadmissible, the Leader
of the House draws the House's attention to the advice when the
amendment is called, and asks the House to endorse the opinion
of the Public Bill Office. The reason for this is that the admissibility
of an amendment can ultimately be decided only by the House itself,
there being no authority that can in advance rule an amendment
out of order. The following general rules are observed:
must be relevant to the subject matter of the bill
and to the clause or Schedule to which they are proposed;
proposed at committee or any other stage must not be inconsistent
with a previous decision taken at that stage,
except where alternative amendments are proposed to the same place
in the bill;
to a Schedule are not in order if they go beyond the scope of,
or are contrary to, the relevant clause which has been agreed
to the long title are not in order unless they are to rectify
a mistake in the original title, to restate the title more clearly,
or to reflect amendments to the bill which are relevant to the
bill but not covered by the former long title;
headings, and headings placed above parts of the bill or above
groups of clauses, are technically not part of the bill and so
are not open to amendment. Punctuation is also technically not
part of the bill.
8.57 Tabling amendments to bills originating
in the House of Commons is unprofitable if such amendments appear
to be material and intolerable infringements of Commons financial
privilege, in that they impose a charge not covered by the terms
of the money or Ways and Means resolutions in the Commons, unless
there is reason to believe that the Commons will pass a supplementary
financial resolution (see paragraph 8.180).
Printing of amendments
8.58 All amendments to a particular bill tabled
on the same day are printed in one daily sheet, and are not numbered
at this stage. The names of members supporting an amendment are
printed above it, up to a maximum of four names, or five if the
Lord in charge of the bill adds his name.
Rules of marshalling
8.59 Subject to the rules listed below, amendments
are printed in the order of their page, line and word references
in the bill, taking account of any instruction that has been tabled.
The rules are as follows:
to the preamble and the long title, in that order, are taken last;
to leave out words take precedence over amendments to leave out
the same words and insert others;
to leave out any block of text other than a complete clause or
Schedule come before amendments to that text;
to a clause are considered before the Question that the clause
stand part of the bill;
to leave out a clause and substitute another are considered after
any amendments to the clause;
each clause and Schedule must be stood part of the bill in Committee,
an amendment to leave out a clause or Schedule in Committee is
not technically an amendment, but a statement of intention to
oppose the Question that the clause or Schedule stand part of
the bill. Notice is usually given of such intention and printed
in italics, without being numbered, on the marshalled list. On
report and third reading an intention to leave out a clause or
Schedule is indicated by tabling an amendment;
to divide a clause are taken after the clause has been stood part
of the bill;
to transpose a clause or clauses, or part of a clause, to another
place in the bill are taken after the clause (or the last of the
affected clauses) has been stood part of the bill;
to insert a new clause are considered at the place in the bill
where it is proposed that the new clause is to be inserted;
to new clauses or amendments to other proposed amendments are
considered immediately after the Question on the original amendment
has been put for the first time, in the order in which they relate
to the text of the original amendment, and are disposed of before
the Question on the original amendment, or the original amendment
as amended, is finally put;
alternative amendments are tabled to the same place in the bill,
they are marshalled in the order in which they are tabled, except
that priority is given to an amendment tabled by the Lord in charge
of the bill. A decision may be taken on each in turn, even if
the second amendment is in substitution for the first amendment
to which the Committee has already agreed.
8.60 Accordingly amendments are marshalled as
1. Page 1, line 5, leave out subsection (1)
2. Page 1, line 5, leave out subsection (1) and
insert- "(1) "
3. Page 1, line 6, leave out "word"
4. Page 1, line 6, leave out "word"
and insert "words"
5. Page 1, line 6, after "word" insert
6. Page 1, line 7, leave out "4" and
7. Page 1, line 7, leave out "4" and
8. Page 1, line 7, leave out "4" and
(If amendment 6 is agreed to, the Question is put
on amendment 7 thus:
"Page 1, line 7, leave out "5" and
and on amendment 8 thus:
"Page 1, line 7, leave out "5" [or
"6"] and insert "7"".)
9. Leave out Clause 1 [at Report or third reading]
10. Leave out Clause 1 and insert the following
Lord A gives notice of his intention to oppose
the Question that Clause 1 stand part of the bill
11. Transpose Clause 1 to after Clause 46
AT COMMITTEE AND REPORT STAGES
8.61 Two working days before that appointed for
consideration of the bill, the various amendments are numbered
and published as a "marshalled list", arranged in the
order they will be considered, taking account of any instruction.
The list is published on the morning of the working day before
that appointed for consideration of the bill. If further amendments
are tabled on the day before that appointed for consideration
they are printed on supplementary sheets or are incorporated in
a revised marshalled list. Any amendments not previously published,
and amendments which have been altered since they were last published,
are distinguished from other amendments by being marked with a
on the marshalled list, but are otherwise treated identically
to other amendments.
When the stage is not completed in one day, further amendments
may be tabled, which are printed on sheets supplementary to the
marshalled list and on further marshalled lists.
AT THIRD READING
8.62 Marshalled lists for third reading are produced
in the same way as those for Committee and Report, except that
amendments must be tabled by the working day before the stage.
The list is published on the day of the stage. When third reading
is on a Thursday the marshalled list may be published on the day
before the stage.
8.63 Whenever possible, amendments should be
tabled in time for inclusion in the marshalled list. However,
except on third reading, it is in order to move, as manuscript
amendments, amendments of which notice has not been given on the
marshalled list or on a supplementary sheet. Occasionally a manuscript
amendment is justified, even in the course of debate, for instance
to correct an amendment already tabled or when an amendment under
consideration is objected to and it is clear that with slight
alteration of language it would become acceptable. However, manuscript
amendments should rarely be moved, since other members of the
House will not have had an opportunity to consider them and may
be deprived of the opportunity of moving amendments to them.
8.64 When a manuscript amendment is moved, the
text of the amendment is read out both by the mover and by the
Lord on the Woolsack or in the Chair when putting the Question,
unless the House or committee otherwise directs.
Procedure on amendments
8.65 There is no selection of amendments. The
clauses in the bill are proceeded with in sequence, unless an
instruction varying the sequence has been agreed to. Each amendment
on the marshalled list and each manuscript amendment is called
in turn by the Lord on the Woolsack or in the Chair, subject only
to pre-emption. An amendment which has been tabled need not be
moved, but if none of the members named as supporters of the amendment
moves it any other member may do so.
8.66 After the member moving the amendment has
spoken the Lord on the Woolsack or in the Chair puts the text
of the amendment to the House or the committee. The debate on
the amendment follows, at the end of which the member who has
moved the amendment either begs leave to withdraw it or invites
the House or committee to agree to it. The Lord on the Woolsack
or in the Chair must put the Question that the amendment be agreed
to if the member who has moved the amendment does not beg leave
to withdraw, or if leave to withdraw is not unanimous.
8.67 Amendments to new clauses or amendments
to other proposed amendments are taken after the new clause or
original amendment has been moved and put for the first time to
the House or committee. When any such amendments have been disposed
of, the debate on the original amendment, or the original amendment
as amended, may be resumed.
8.68 If a member whose amendment is called wishes
to speak, other than to say "Not moved", he must move
the amendment, and the Lord on the Woolsack or in the Chair must
put it to the House or committee. This allows others to speak
too. It is undesirable to make a detailed speech and then to say
8.69 If an amendment has been pre-empted by one
previously agreed to by the House, e.g. because the text proposed
to be amended has been left out of the bill, the amendment will
not be called. The Lord on the Woolsack or in the Chair alerts
the House to this possibility, normally when putting the text
of the pre-empting amendment after it has been moved, but sometimes
(e.g. when the amendment is a key one which is certain to be divided
on) when calling the pre-empting amendment.
Grouping of amendments
8.70 In order to avoid repetition, related amendments
are often grouped and debated together. Lists of such groupings
are prepared by agreement between the members tabling the amendments
and the Government Whips' Office, and are made available to the
House. Groupings are informal and not binding. A member may speak
to a group of amendments (not necessarily consecutive or in his
own name) when the first amendment in the group is called. Usually
only the first amendment in a group is moved (in the technical
sense that there is a Question specifically on it before the House)
and the rest are at this stage merely spoken to. The debate takes
place on the first amendment in the group, even though it may
be a minor or paving amendment. But each amendment in the group
must be called, moved (if desired) and disposed of separately
at its place in the marshalled list. Proceedings on later amendments
in a group are often formal but further debate may take place
and an amendment previously debated may be moved at its place
in the bill.
When proceedings on later amendments in a group are formal, the
amendments are moved as follows:
"My Lords, I have already spoken to this
amendment. I beg to move."
8.71 If the first amendment in a group is agreed
to, it does not follow that the other amendments in the group
will all be agreed to, unless they are directly consequential.
It is a matter for the House or committee to judge in each case
how the decision on the first amendment affects the others.
EFFECT OF GROUPINGS ON THIRD READING AMENDMENTS
8.72 If a member believes that an amendment at
committee or report stage has been wrongly grouped, he should
make this clear in debate. Otherwise, under the rule against reopening
at third reading an issue which has previously been decided, he
may be precluded from retabling his amendment at third reading,
if another amendment in the group was decided at committee or
report stage (see paragraph 8.147).
Amendments moved en bloc
8.73 Amendments may be moved en bloc provided
are printed consecutively on the marshalled list;
Committee stage, they all relate to the same clause or Schedule;
are consequential on an amendment or amendments already agreed
8.74 If any member objects to amendments being
moved en bloc they must be moved separately to the extent
desired. A vote cannot take place on amendments moved en bloc.
Instead, the first amendment in each Group is moved and the Question
on it resolved separately. If the first amendment is withdrawn
or disagreed to, the other amendments are normally not moved.
If the first amendment is agreed to, the other amendments may
then be moved formally en bloc, without further debate.
Amendments may not be withdrawn en bloc.
PROCEEDINGS IN COMMITTEE
OF THE WHOLE HOUSE
8.75 A Committee of the whole House consists,
as its name implies, of all the members of the House. It is, in
fact, the House itself in a less formal guise, presided over by
and conducting its business according to more flexible rules of
8.76 The Lord in charge of the bill moves, and
the Question is put:
"That the House do now resolve itself into
a committee upon the bill."
8.77 This motion is sometimes used as an opportunity
for a general discussion on the amendments or on the procedure
to be followed in committee or on whether to go into committee
at that time. The motion may be opposed by reasoned amendment
or by an amendment to postpone the committee stage or to discharge
the order of commitment and to commit the bill instead to another
committee, though opposition to the motion seldom occurs. When
the committee stage lasts more than one day, the motion moved
on a subsequent day "That the House do again resolve itself
into a committee upon the bill" may provide an opportunity
to raise matters relating to the progress of the bill.
8.78 When the motion that the House go into committee
has been agreed to, the Lord on the Woolsack leaves the Woolsack,
takes the Chair at the Table of the House
and puts the formal Questions postponing the long title and any
preamble (no motion being moved).
Powers and duties of Chairman
8.79 The powers and duties of the Lord in the
Chair are the same as those of the Lord Speaker or Deputy Speaker
when the House is sitting (see paragraph 4.07). They are generally
confined to the calling on of clauses, Schedules and amendments
to bills referred to the committee, and putting the Question thereon.
The Lord in the Chair also makes the formal report of the committee
to the whole House. Like any other member, the Lord in the Chair
may vote; he does not (as in the Commons) have a casting vote.
Powers of Committee of the whole
8.80 A Committee of the whole House can only
consider those matters which have been referred to it, including
any instruction to the committee given by the House. Where a bill
has been committed to a committee, the whole bill is the committee's
order of reference. A Committee of the whole House has no power
to adjourn the sitting or to adjourn its consideration of a bill
to a future sitting (though Committees of the whole House may
interrupt their consideration of a bill without Question put either
in an emergency (such as a member being taken ill) or for a lunch
or dinner break). If consideration of the bill is not completed,
the House is resumed on motion and can again go into committee
on a future day.
Procedure in Committee of the
8.81 SO 30, which forbids a member to speak more
than once to any motion, does not apply when the House is in committee.
A next business motion (see paragraph 4.53) is not permitted.
Clause stand part
8.82 As soon as the amendments to each clause
have been disposed of, the Lord in the Chair puts the Question
that the clause (or the clause as amended) stand part of the bill.
On this Question a general debate on the clause may take place.
Any member who wishes to leave out the clause speaks to this Question.
Warning of such opposition will normally have been given by means
of an italic notice on the marshalled list, and if there is no
italic notice any member who wishes to speak on "clause stand
part" should inform the Lord in the Chair. Once a clause
has been disposed of, the committee cannot return to it and consider
8.83 Where there are several consecutive clauses
to which no amendment has been set down, the Question is put on
all of them en bloc. If members wish to speak to one of
these clauses or move a manuscript amendment they may do so when
the clauses are called; but in this case they should warn the
Lord in the Chair of their intention, and that clause or those
clauses are then dealt with separately.
Postponement of clauses
8.84 Clauses or Parts may be postponed on a motion
made to that effect of which notice has been given; they may also
be postponed as the result of an instruction. A clause may be
postponed without notice after consideration of it has begun but
it may not be postponed if it has already been amended.
8.85 The Schedules to the bill are considered
in order after the clauses (unless there is an instruction to
the committee to take them in a different order) and are dealt
with in the same manner as clauses.
Preamble and long title
8.86 As soon as the clauses and Schedules have
been disposed of, the Lord in the Chair puts without any motion
being moved the Questions on the preamble to the bill (if there
is one) and on the long title. Amendments to the preamble and
long title may be moved before each of these Questions is put.
8.87 Consequential or drafting amendments to
the long title are frequently agreed to. Preambles may be omitted
in committee and also amended, and it is in order to insert a
preamble in a bill where none exists.
House resumed during committee
8.88 If the committee stage is not completed
at one sitting, it is necessary for a member (usually a government
Whip) to move "That the House be resumed". When
this motion has been agreed to, the Lord in the Chair leaves the
Chair and the Lord Speaker or a Deputy Speaker takes the Woolsack.
The House goes into committee again either later on the same day
(on occasions when the House has been resumed in order to take
other business) or on a future day.
8.89 When it is agreed that there should be a
break during a committee stage, and there is no other business
to be taken, the House is not resumed and adjourned formally but
the committee simply adjourns without question put until a time
announced by a government Whip.
8.90 When the committee stage is resumed, the
committee proceeds from the point in the bill where it left off.
Conclusion of proceedings in
8.91 When the committee stage is completed the
Lord in the Chair, without any motions being moved, puts the Questions
that the bill be reported to the House with or without amendment,
and that the House be resumed. The Lord in the Chair then goes
to the Woolsack to report the bill to the House.
If the bill has been amended, an order is made for the bill to
be reprinted as amended, and the report stage takes place ("the
report is received") on a later date.
Report received immediately
8.92 If the bill is reported without amendment,
the Lord in charge of the bill may immediately move "That
this report be now received". If this is agreed to, the
next stage is third reading. It is, however, common for a separate
report stage to be taken on a later date even when the bill has
not been amended in committee.
This ensures that there is an opportunity to amend the bill before
Committee dispensed with or
8.93 See paragraph 8.48.
ORDER OF COMMITMENT DISCHARGED
8.94 If no amendments have been set down to a
bill and it appears that no member wishes to move a manuscript
amendment or to speak to any clause or Schedule, the Lord in charge
of the bill may move that the order of commitment (or recommitment)
This motion may be moved only on the day the committee stage is
set down for and notice must be given on the order paper.
8.95 The Lord in charge of the bill says:
I understand that no amendments have been set
down to this bill, and that no noble Lord has indicated a wish
to move a manuscript amendment or to speak in Committee.
Unless, therefore, any noble Lord objects, I beg
to move that the order of commitment [or recommitment] be discharged."
8.96 The Question is then put "That the
order of commitment [or recommitment] be discharged."
If this Question is agreed to, the next stage of the bill is third
8.97 If any member objects, however, this Question
cannot be completed and the Lord in charge of the bill must at
once move "That the House do now resolve itself into a
committee [or a committee on recommitment] upon the bill."
If this is agreed to, the House goes into committee in the usual
8.98 For the purposes of SOs 40(5) and 46, the
discharge of the order of commitment constitutes a stage of a
bill. Unless SO 46 has been suspended or dispensed with, third
reading may not be taken on the same day as that on which the
order of commitment has been discharged.
BILL REPORTED FORTHWITH
8.99 Where no amendment has been set down to
a bill and no member of the House has indicated a wish to speak,
but the order of commitment has not been discharged, the House
goes into Committee. The Lord in the Chair then says:
"[Short title] - My Lords, I understand that
no amendments have been set down to the bill, and that no noble
Lord has indicated a wish to move a manuscript amendment or to
speak in Committee. With the agreement of the Committee, I will
now put the Question that I report the bill to the House without
8.100 Any member who wishes to speak to any of
the clauses or Schedules or to move a manuscript amendment should
indicate their intentions on this Question, in which case the
Lord in the Chair must postpone the title and put the clauses
and Schedules in the usual way.
PROCEEDINGS IN GRAND
8.101 If a public bill is not committed to a
Committee of the whole House, it is usually committed to a Grand
Committee. As described above this is done on motion moved after
Second Reading. Bills which are unlikely to attract amendments
and which would have their committee stage discharged on the day
of the committee stage are not committed to Grand Committees.
8.102 Any bill may be committed to a Grand Committee.
The proceedings and forms of words in Grand Committees are identical
to those in a Committee of the whole House save that no votes
may take place. Only one bill per day may be considered in Grand
Committee. Amendments, which may be tabled and spoken to by any
member, are printed and circulated as for Committee of the whole
8.103 As divisions are not permitted in Grand
Committee, decisions to alter the bill may only be made by unanimity.
Thus when the Question is put, a single voice against an amendment
causes the amendment to be negatived. If there is opposition to
an amendment, it should be withdrawn in Grand Committee, to enable
the House to decide the matter on report. For the same reason
the Question that a clause or Schedule stand part cannot be disagreed
to unless there is unanimity; provided there is a single voice
in favour, the clause or Schedule must be agreed to.
8.104 Unless the House orders otherwise, the
next stage of a bill reported from a Grand Committee is report.
OTHER COMMITTEE PROCEDURES
FOR PUBLIC BILLS
8.105 Certain other procedures have been developed
to scrutinise public bills, either instead of or additional to
that in Committee of the whole House or Grand Committee. These
public bill committee;
or joint committee.
8.106 The purpose of these procedures is either
to save the time of the House itself by taking the committee stage
off the floor or to enable more detailed examination of bills
to take place, involving the hearing of evidence. Public bill
committees (like Grand Committees) fall into the first category
and the other procedures fall into the second.
8.107 Unless the House orders otherwise, the
next stage of a bill reported from a special public bill committee
or public bill committee is report; but a bill reported from a
select or joint committee is recommitted to a Committee of the
whole House, unless the committee has recommended that the bill
should not proceed.
8.108 Bills may be considered under these procedures
only if the House has agreed to a particular order of commitment.
It is usual for such a motion to be moved immediately after the
second reading has been agreed to. However, a motion to commit
a bill to a select or joint committee may be moved at any time
before third reading; and a motion that the order of commitment
to a Committee of the whole House (or to a Grand Committee) be
discharged and that an alternative order be made may be moved
any day before the committee stage begins. Notice is required
of any such motion.
8.109 The members of a public bill committee,
special public bill committee, select or joint committee are subsequently
appointed by the House on the recommendation of the Committee
Public bill committee
8.110 A public bill committee is a select committee
to which mainly technical and non-controversial government bills
may be committed in order to save time on the floor of the House.
The committees have consisted of between twelve and sixteen designated
members together with the Chairman of Committees. A member of
the House not appointed to the committee is nevertheless free
to speak and move amendments,
but not to vote.
8.111 The programme of sittings is decided by
the committee, on motion, at the outset, and should not be subject
to alteration thereafter. The committee may sit whether the House
is sitting or not.
8.112 When there is a vote in the committee,
the doors are locked eight minutes after the Question has been
put and challenged, unless all members are present within that
time. After the Question has been put the second time, the Clerk
reads out the names of the members of the committee. Each member
when his name is called replies "Content", "Not-content"
Special public bill committee
8.113 Special public bill committees are public
bill committees that are empowered to take written and oral evidence
on bills before considering them clause by clause in the usual
way. Law Commission bills are normally committed to a special
public bill committee,
but the procedure may also be used for any bill irrespective of
the House of introduction.
8.114 A bill is committed to a special public
bill committee by a motion moved after second reading by the Lord
in charge of the bill. Where it is proposed in advance that a
bill be committed to a special public bill committee, the Committee
of Selection reports on the membership of the committee before
second reading to allow arrangements for taking evidence to be
put in hand contingent on the bill being committed.
The government has a majority over the other parties, with the
balance held by the Crossbench members. It has been the practice
for the relevant minister and frontbench spokesmen from the other
parties to be members. Any member of the House may attend any
public meeting of the committee. Unlike select committees empowered
to take evidence, a special public bill committee is not given
powers such as those to appoint advisers or to travel. The committee
may sit whether the House is sitting or not.
8.115 Special public bill committees must conclude
their taking of evidence within a 28-day period beginning with
the date on which they are appointed, excluding any adjournment
of the House for more than three days, but there is no time limit
for their subsequent proceedings. The relevant government department
produces with the bill a summary of the consultation undertaken,
with an indication of representations received and changes made.
The evidence taking usually begins with the minister giving evidence,
following which the minister rejoins the committee on the other
side of the table.
8.116 There is an interval after the conclusion
of the evidence taking, to enable members of the committee to
The committee then meets to consider any amendments tabled. Proceedings
are the same as for a public bill committee.
8.117 The committee does not produce any report
on the bill other than the bill as amended, which is printed in
the usual way. The written and oral evidence are published, together
with the verbatim report of the special public bill committee
Procedures common to public
bill committees and special public bill committees
8.118 Public bill committees and special public
bill committees, when considering amendments, follow the procedure
of a committee stage in the Chamber as closely as possible. Members
speak standing and, so far as they can, observe the same degree
of formality as in the Chamber. The committee adjourns for 10
minutes for a division in the House. Notice of the proceedings
is given on the order paper and amendments for consideration in
such proceedings, which may be tabled and spoken to by any member,
are printed and circulated as for Committee of the whole House.
The verbatim report of this part of a committee's proceedings
is published as an appendix to Hansard. The committee's report
to the House is recorded formally by entry in the Minutes of Proceedings.
Bill committed to select or
8.119 A public bill (other than a consolidation
bill which is referred automatically after second reading to the
Joint Committee on Consolidation Bills under SO 51) may be committed
to a select committee or a joint committee when detailed investigation
is considered desirable or when the hearing of evidence is considered
necessary. To achieve this a motion is moved that a bill be committed
to a select committee or that a joint committee be appointed to
consider the bill. Such a motion is usually moved immediately
after second reading but is admissible at any stage before third
reading. If the bill has previously been committed to a Committee
of the whole House or Grand Committee, the order may be discharged
and an order made to commit the bill instead to a joint or to
a select committee. A motion may be tabled to commit a part of
a bill to a select committee. If the bill is referred to a joint
committee a message is sent to the House of Commons informing
them and desiring their agreement.
A bill may be committed to a select committee on another bill.
8.120 The method of appointment and powers of
the committee are the same as for an ad hoc committee on a general
subject (see paragraph 11.03); but the bill forms the committee's
order of reference and defines the scope of the inquiry.
8.121 When the committee has completed its deliberations,
it makes a report to the House on the provisions of the bill,
recommending whether or not it should proceed. The committee usually
gives reasons in a report similar to a report on a general subject.
The committee has no power to put an end to the bill. If it considers
that the bill should proceed, the committee reports it with such
amendments as it thinks fit, and the bill is then recommitted
to a Committee of the whole House in the form in which it has
been reported. When a committee makes amendments, formal minutes
of proceedings are required to record the amendments made. The
minutes of proceedings serve as the authority for the making of
the amendments and the reprinting of the bill as reported. If
the committee considers that it should not proceed, it reports
the bill accordingly, without amendment.
8.122 When a select committee reports that a
bill should not proceed, the bill is not recommitted to a Committee
of the whole House. The bill remains in the list of Bills in Progress
until the end of the session under the heading "Reported
from the select committee that the bill should not proceed".
The House normally acquiesces in a report from a select committee
recommending that a bill should not proceed, and no further proceedings
on the bill take place. If the bill is to proceed, a motion, of
which notice is required, has to be agreed that the bill be recommitted
to a Committee of the whole House. A bill may also be recommitted
to a committee after the latter has reported that it should not
8.123 If a committee is unable to complete its
consideration of the bill, it makes a special report to that effect
and reports the bill without amendment.
8.124 A bill which has been referred to a select
or joint committee is, after being reported by that committee,
recommitted to a Committee of the whole House unless the select
or joint committee has reported that the bill should not proceed.
Consolidation bills and hybrid bills are the most common examples
of bills which are recommitted.
8.125 Other bills may, on motion (which is debatable
and of which notice is required) moved at any time between committee
and third reading, be recommitted to a Committee of the whole
House or Grand Committee in their entirety, or in respect of certain
clauses or Schedules.
8.126 This course is adopted when it is desirable
to give further detailed consideration to the bill or certain
parts of it without the constraints on speaking which apply on
report and third reading; for instance:
substantial amendments are tabled too late in the committee stage
to enable them to be properly considered;
there is extensive redrafting; or
amendments are tabled at a later stage on subjects which have
not been considered in committee.
This procedure reserves to the report stage its proper
function as an opportunity to review and perfect the bill as amended
8.127 A motion that the House resolve itself
into a committee on recommitment on a bill may be debated and
opposed in the same way as the motion to go into committee. Procedure
on recommitment is the same as in Committee of the whole House.
The next stage of any bill or part of a bill subject to recommitment
is report stage. However, the minimum interval between committee
and report does not apply to recommitment.
8.128 SO 47(2) provides for the order of recommitment
to be discharged on the same conditions as apply to the order
Consideration in Committee of
the whole House at later stages of bills
8.129 In exceptional circumstances the Lord in
charge of the bill may, with notice, move that the House consider
particular amendments (including Commons amendments) in Committee
of the whole House without formally recommitting the bill.
The effect, in accordance with SO 62, is to give greater "freedom
of debate" with regard to those amendments. When consideration
of the specific amendments is concluded the House is resumed,
and proceedings continue without further interruption; the bill
is not formally reported to the House, and no report or third
reading stage follows. The decisions of the Committee in respect
of the amendments have the same effect as decisions taken by the
8.130 If a bill has been amended in Committee
of the whole House, the report stage cannot be taken until a later
day, unless SO 46 has been suspended or dispensed with.
8.131 The motion "That this report be
now received" may be objected to and debated and voted
on; an amendment may be moved to postpone the report until a specified
time; or a reasoned amendment
may be moved in opposition to the motion or to record a particular
point of view in assenting to the motion.
Amendments on report
8.132 When the Question that the report be now
received has been agreed to, any amendments are called in the
usual way. Notice of these is given in the same way as for committee,
and the same practices apply for marshalling and grouping. The
proceedings are confined to dealing with amendments, either in
the order in which they relate to the bill or in a particular
sequence agreed to in advance by order of the House.
8.133 Amendments identical (or of identical effect)
to amendments pressed to a vote by the mover and defeated in committee
may not be retabled on report. However, an issue which has been
debated and voted on in committee can be reopened, provided that
the relevant amendment is more than cosmetically different from
that moved in committee.
8.134 An amendment agreed to on a vote in committee
may not be reversed on report except with the unanimous agreement
of the House.
Amendments grouped and en
8.135 As in committee, amendments may be grouped,
and a member may ask leave to speak to a number of related amendments.
Likewise consecutive amendments may be moved en bloc but
without any need to confine each bloc within a clause or Schedule.
Opposition to clause or Schedule
8.136 The Question that the clauses and Schedules
stand part is not put on report, so a proposal to leave out a
clause or Schedule appears as an amendment. Such an amendment
should not be tabled if the purpose underlying the amendment is
to initiate a general debate, rather than a genuine desire to
leave out the clause or Schedule: it may, however, be appropriate
when, for instance, a member wishes to learn the outcome of an
undertaking given in committee.
8.137 Manuscript amendments are not out of order
on report, but the disadvantages and inconvenience attaching to
the moving of manuscript amendments on report are even greater
than at committee stage. The rule requiring the text of such amendments
to be read out to the House applies on report as in committee.
Rules of debate on report
8.138 On report no member may speak more than
once to an amendment, except the mover of the amendment in reply
or a member who has obtained leave of the House, which may only
be granted to:
member to explain himself in some material point of his speech,
no new matter being introduced;
Lord in charge of the bill; and
minister of the Crown.
8.139 Only the mover of an amendment or the Lord
in charge of the bill speaks after the minister on report except
for short questions of elucidation to the minister or where the
minister speaks early to assist the House in debate.
8.140 Arguments fully deployed either in Committee
of the whole House or in Grand Committee should not be repeated
at length on report.
Conclusion of proceedings on
8.141 When the amendments have been disposed
of, the bill is reprinted if amended, and awaits its third reading
on a day to be fixed.
THIRD READING AND PASSING
8.142 The third reading of a bill is normally
confined to the formal motion "That this bill be now read
a third time". In exceptional circumstances a non-fatal
amendment to the motion for third reading may be tabled, for instance
to delay third reading so as to allow more time for amendments
to be tabled. Notice of such an amendment is required. In all
other circumstances, the motion for third reading is taken formally,
without debate. General debate on or opposition to the bill normally
now takes place on the subsequent motion "That this bill
do now pass".
Procedure on third reading
8.143 Amendments may be moved after the third
reading has been agreed to and before the motion that this bill
do now pass.
Notice of amendments
8.144 Except for privilege amendments (see paragraph
8.151), which are moved without notice, notice of amendments must
be given in sufficient time to enable them to be printed and circulated
in the form in which it is proposed to move them.
Manuscript amendments are not in order. Marshalled lists of amendments
are published on the day of third reading itself, rather than
the day before as for other stages. When third reading is on a
Thursday, the marshalled list may be published the previous day.
Admissibility of amendments
8.145 The practice of the House is normally to
resolve major points of difference by the end of report stage,
and to use third reading for tidying up the bill.
8.146 The principal purposes of amendments on
third reading are:
clarify any remaining uncertainties;
improve the drafting; and
enable the government to fulfil undertakings given at earlier
stages of the bill.
8.147 An issue which has been fully debated and
voted on or negatived at a previous stage of a bill may not be
reopened by an amendment on third reading.
8.148 Where the Public Bill Office considers
that amendments fall clearly outside the guidance, including,
for example, amendments which are identical, or very similar,
to ones tabled and withdrawn at Committee and Report, or amendments
raising completely new major issues, it will advise the member
concerned. If the member tables the amendments notwithstanding
this advice, the Public Bill Office sends notification of these
amendments to all members of the Usual Channels and to the Convenor
of the Crossbench Peers. They may then draw the matter to the
attention of the House; it is for the House itself to decide what
action to take.
8.149 In all other respects the procedure on
third reading is the same as that on report.
Further proceedings after third
8.150 If the amendments are not disposed of on
the same day as third reading, further proceedings after third
reading are taken on a later day.
8.151 On third reading of a bill originating
in the House of Lords whose provisions may infringe the privileges
of the House of Commons with regard to the control of public money,
a "privilege amendment" is made formally after all the
other amendments have been disposed of. The privilege amendment
is moved without notice, without the amendment being circulated
and without stating its nature. The amendment consists of a new
subsection, inserted at the end of the final clause of the bill,
in the following form:
Nothing in this Act shall impose any charge on the people or on
public funds, or vary the amount or incidence of or otherwise
alter any such charge in any manner, or affect the assessment,
levying, administration or application of any money raised by
any such charge."
8.152 When the bill is printed for the Commons
these words are printed in bold type. The Commons leave out the
subsection by amendment and thus make the imposition of the charge
their own act.
8.153 The motion "That this bill do now
pass" is moved immediately after third reading has been
agreed to or, if amendments have been tabled, as soon as the last
amendment has been disposed of. The motion is usually moved formally.
It may be opposed, and reasoned or delaying amendments may be
moved to it, but in other circumstances it is not normally debated.
Bill sent or returned to Commons
8.154 When a bill originates in the Lords, a
"House bill", which is a fair print of the bill as it
stands as amended after third reading, is endorsed and signed
by the Clerk of the Parliaments and sent to the Commons with a
message seeking their agreement to it. The Commons print the bill
in the form in which it appears in the House bill.
8.155 If the Lords agree to a Commons bill without
amendment, proceedings on the bill are at an end. A message is
sent to the Commons so informing them and the bill awaits the
Royal Assent. The bill itself is only returned to the Commons
if it is a supply bill and the Royal Assent is to be signified
by Commission (see appendix F, page 248).
8.156 Where a Commons bill is amended in the
Lords, the amendments are marked into the House bill which is
then endorsed by the Clerk of the Parliaments and sent back to
the Commons with a message seeking the Commons' agreement to the
Lords amendments. The Commons then print the Lords amendments.
PROCEEDINGS ON BILLS
RETURNED FROM THE COMMONS
8.157 If the Commons pass a Lords bill without
amendment, or if the only amendment made by the Commons is to
remove the privilege amendment made by the Lords, the bill then
awaits the Royal Assent. In the latter case the Commons amendment
is deemed to be considered and agreed to without any proceedings
taking place on it in the Chamber, and a message is sent to the
Commons informing them of the Lords' agreement.
8.158 If the Commons amend the bill in any other
respect, the amendments (including any privilege amendment) are
printed and circulated. If the bill is returned when the House
is not sitting, the amendments are printed pursuant to SO 50(2).
Consideration of Commons amendments
8.159 When possible, reasonable notice should
be given for the consideration of Commons amendments; but, if
necessary, they may be considered forthwith on the day they are
received if a motion for that purpose is agreed to.
In such circumstances it is usual to give notice by means of an
italic note on the order paper.
Amendments to Commons amendments
8.160 When a bill is returned from the Commons
with amendments, it is only those amendments which are before
the House. The other parts of the bill are no longer at issue,
having been agreed to by both Houses, and cannot be amended except
by a "consequential amendment", that is, an amendment
immediately consequent upon the acceptance or rejection of a Commons
amendment. So further amendments proposed at this stage are only
admissible if they are relevant to a Commons amendment.
8.161 In dealing with a Commons amendment the
following options are open to the Lords:
agree to the Commons amendment, either (a) without amendment,
or (b) with a consequential amendment or an amendment in lieu
of the words left out of the bill by the Commons, or (c) an amendment
to the words restored to the bill by the Commons;
amend the Commons amendment;
disagree to the Commons amendment but to propose an alternative
to it (an amendment "in lieu");
disagree to the Commons amendment.
8.162 Amendments to Commons amendments are handed
in to the Public Bill Office and printed in the usual way. An
amendment to a Commons amendment takes the same form as any other
amendment to an amendment (see paragraph 8.67). But a proposal
to disagree to a Commons amendment or to put forward an amendment
in lieu takes the form of an amendment to the motion that the
House do agree with the Commons in their amendment.
8.163 A marshalled list of amendments and motions
to be moved on consideration of Commons amendments is published
on the day on which the amendments are to be taken. In some cases,
where it is of assistance to the House, the text of the Commons
amendments, or of the relevant ones, is printed on the marshalled
list. Manuscript amendments to Commons amendments are not out
of order but the disadvantages and inconveniences of such amendments
are as great as on report.
Procedure on consideration of
8.164 Each Commons amendment is called from the
Woolsack in the order in which it relates to the bill, unless
the House orders differently. The Lord in charge of the bill moves
that the House do agree with the Commons in their amendment, and
the debate and decision follow as usual (see paragraph 8.65).
An amendment to a Commons amendment is moved as soon as the Question
on the Commons amendment has been put for the first time (see
paragraph 8.67). A motion to disagree to a Commons amendment or
to propose an amendment in lieu is moved as an amendment to the
motion to agree with the Commons amendment. If the motion to disagree
is agreed to, there are no further proceedings on the original
motion. If the motion to disagree is withdrawn or disagreed to,
the Question is put on the original motion that the House do agree
with the Commons in their amendment.
8.165 If the Lord in charge of the bill wishes
to move that the House disagree with a Commons amendment, the
procedure above does not apply and the motion to disagree is moved
as a motion in its own right and not as an amendment to a motion
8.166 If the Lord in charge of the bill wishes
to move that the House do agree or disagree to some or all of
the Commons amendments en bloc, and there is no other motion
or amendment tabled to those amendments, he explains his intentions
and asks leave of the House to do so when the first of the bloc
is called. If there is no objection the Question is put accordingly.
If there is objection the Question must be put separately on each
amendment to the extent desired.
8.167 The Public Bill Office provides a brief
for all movers of amendments and motions at these stages.
Commons amendments agreed to
8.168 If all the Commons amendments are agreed
to without amendment, the bill awaits the Royal Assent.
Commons amendments agreed to
8.169 When the Lords agree to a Commons amendment
with an amendment, the bill is returned to the Commons with a
message to that effect. In dealing with the bill the Commons can
agree to the Lords amendments, or agree to them with amendments,
or disagree to them with or without proposing an alternative.
8.170 If the Commons amend the Lords amendments
and send the bill back accordingly, it then becomes the turn of
the Lords to agree or disagree to, or amend, such Commons amendments,
and the communications proceed in the same way as on the original
Commons amendments. At this and subsequent stages related amendments
and reasons are printed together on the marshalled list and may,
if appropriate, be debated and decided together. A set of amendments
treated in this way is referred to as a "package". Packaging
should be distinguished from the grouping of amendments at earlier
stages, whereby amendments are debated together but may be decided
Commons amendments disagreed
AMENDMENT IN LIEU OF COMMONS AMENDMENT
8.171 The Lords can disagree to a Commons amendment
but propose an amendment in lieu of it. When the bill goes back
to the Commons they can agree to the Lords amendment in lieu,
or propose an amendment to the amendment in lieu, or disagree
to the amendment in lieu with or without proposing an alternative.
8.172 If the Commons amend the Lords amendment
in lieu, or propose an alternative to it, the Lords can agree
to or amend the Commons amendment, propose a new alternative or
insist on their original amendment.
DISAGREEMENT TO COMMONS AMENDMENT WITH A REASON
8.173 If the Lords disagree to a Commons amendment
without proposing an alternative they have to give a reason for
their disagreement. A "reasons committee", usually of
three members, is appointed to do this. The committee consists
of the proposer of the disagreement and one of his supporters,
together with the Lord in charge of the bill or, in the case of
a government bill, some other minister, if desired. The committee
meets in the Prince's Chamber immediately after proceedings on
Commons amendments have been concluded and agrees upon the reason,
which is reported to the House by means of an entry in the Minutes
8.174 In considering a Lords reason the Commons
may insist on their amendments with a reason; or not insist on
their amendments; or not insist on their amendments, but propose
others in lieu. The reason, or new amendments, are then considered
by the Lords in the same way as the original Commons amendments,
except that where the reason given by the Commons is on grounds
of privilege (see paragraph 8.182) the Lords do not insist on
8.175 If the Commons insist, it is still open
to the Lords not to insist on their disagreement, and thus to
accept the Commons amendments, or not to insist on their disagreement
but to amend the Commons amendments or propose alternatives. If
the Lords simply insist on their disagreement without offering
amendments or alternatives, the bill is lost.
Further communications between
the two Houses
8.176 Communications between the two Houses may
be carried on until the end of the session,
subject to these limitations:
parts of the bill which both Houses have agreed on cannot be amended
except by a "consequential amendment" (see paragraph
the reason given by the Commons for their disagreement is on the
ground of privilege, the Lords do not insist on their amendment.
8.177 In addition, if one House insists on an
amendment to which the other has disagreed, and the other insists
on its disagreement, and neither has offered alternatives, the
bill is lost. However, there is no binding rule of order which
governs these proceedings in either House, and, if there is a
desire to save a bill, some variation in the proceedings may be
devised in order to effect this object.
8.178 If any communications are still continuing
at the end of a session, the bill is lost.
LORDS AMENDMENTS TO
8.179 When any Lords amendments have been considered
by the Commons, the bill is sent back to the Lords:
the Lords amendments agreed to, in which case the bill is ready
for Royal Assent; or
the Lords amendments amended, or with amendments in lieu; or
the Lords amendments disagreed to, with reasons for such disagreement;
and communications, similar to those described for
bills originating in the Lords, take place between the two Houses.
LORDS AMENDMENTS AND
COMMONS FINANCIAL PRIVILEGE
8.180 Each House of Parliament is guardian of
its own privileges. It alone may invoke them. Until it does so,
the other House is free to act as it thinks fit. It follows that,
with regard to Commons financial privilege, the Lords may properly
make amendments to Commons bills (other than supply bills) which,
when they come to be considered by the Commons, are deemed by
them to infringe their financial privileges. It also follows that
the Lords need not anticipate what view the Commons may take of
any Lords amendments with respect to Commons financial privilege.
The only exceptions are amendments which prima facie are
material and intolerable infringements of privilege, in that they
either offend Commons SO 78(3)
or impose a charge not authorised by a Ways and Means resolution,
and which will be summarily rejected by the Commons unless they
have previously passed a supplementary financial resolution. Unless
there is reason to believe that the necessary supplementary financial
resolution will be made by the Commons, it is unprofitable for
the Lords to make amendments of this kind. When such Lords amendments
are considered by the Commons:
(i) in the case of an infringement of Commons
SO 78(3), the amendment is deemed to have been disagreed to without
debate and without Question put;
(ii) in the case of a Lords amendment imposing
a charge upon the people which has not been authorised by a Ways
and Means resolution, the Speaker calls upon the Member of the
Commons in charge of the bill to move to disagree with the Lords
8.181 With these exceptions, the Commons may
either invoke their financial privileges in respect of Lords amendments
or waive them; and the Commons regularly accept Lords amendments
which have financial implications. The Speaker of the Commons
directs that a "special entry" be made in their Journals
implicitly asserting their general rights but stating that the
Commons accept the Lords amendment, "the Commons being willing
to waive their privileges".
8.182 If the Commons disagree to a Lords amendment
that infringes their financial privileges, the disagreement is
made on the ground of privilege alone, and not on the merits of
the amendment, even though the Commons may have debated the merits.
The Commons communicate in their message to the Lords that the
amendment involves a charge upon public funds or a charge by way
of national or local taxation or that it in some other way deals
with financial arrangements made by the Commons; and they add
words to the effect that the Commons do not offer any further
reason, trusting that the reason given may be deemed sufficient.
In such cases the Lords do not insist on their amendment. But
they may offer amendments in lieu of amendments which have been
disagreed to by the Commons on the ground of privilege.
8.183 If the Commons disagree to a Lords amendment
which appears to have financial implications but offer an amendment
in lieu or an amendment to the words restored to the bill, financial
privilege is not at that stage invoked by the Commons and the
question whether the Lords amendment infringes privilege does
not arise. It is therefore open to the Lords to disagree to the
Commons amendment in lieu and to insist on the original Lords
amendment, which is then returned with the bill to the Commons
for further consideration by them.
CONSENT OF THE CROWN
8.184 Where a bill affects the prerogative or
interest of the Crown, the Consent of the Crown is required and
in respect of public bills must be signified to the House by a
minister who is a Privy Counsellor. This Consent places the Crown's
prerogative and interest at the disposal of Parliament for the
purposes of the bill, but does not imply that the Crown approves
the provisions that require its Consent.
8.185 A bill affecting the interests of the Duchy
of Cornwall or the Duchy of Lancaster requires Consent, unless
the Crown's Consent has been obtained and the effect on the Duchy
is not distinct from that on the Crown. In such a case Consent
is given by the Crown on behalf of each Duchy or, when the Prince
of Wales is of age, by Him as Duke of Cornwall.
8.186 In the case of a bill affecting the prerogative
of the Crown, Consent is normally signified before the motion
for second reading. If a bill affects the interests of the Crown
but not the prerogative, the normal practice is to signify Consent
on third reading in order to take account of any amendments made
to the bill.
8.187 The Consent of the Crown may also be signified
on consideration of Commons amendments if it has not been previously
signified and one of the Commons amendments makes it necessary.
MEASURES AND PRIVATE BILLS
8.188 Consent of the Crown may also be required
in respect of a Measure or a private bill (see paragraphs 8.225
8.189 Letters Patent are issued from time to
time to signify the Royal Assent to bills and Measures passed
by both Houses of Parliament.
8.190 Royal Assent is usually notified to each
House sitting separately in accordance with the provisions of
the Royal Assent Act 1967. Once Royal Assent has been notified
to both Houses, the bills become Acts of Parliament. If notification
is given on different days to each House, the date of Royal Assent
is the date of notification in the second House.
8.191 Notification is frequently given before
oral questions, but it may take place at any break between two
items of business, or at the end of business, if necessary after
an adjournment. The order in which notification is given is as
follows: supply bills, other public bills, provisional order confirmation
bills, private bills, personal bills, Measures.
8.192 Royal Assent may also be signified by Commission,
as described in appendix F (page 248).
REFUSAL OF ROYAL ASSENT
8.193 The power to refuse Royal Assent was last
exercised in 1708, when Queen Anne refused Her Assent to a bill
for settling the Militia in Scotland.
Record copies of Acts
8.194 Two record copies of each Act are printed,
Public Acts on vellum and Private Acts on durable paper. One copy
is signed by the Clerk of the Parliaments, who endorses it with
the appropriate Norman-French formula.
This copy is preserved in the Parliamentary Archives, the other
in the National Archives.
PROCEDURES WHICH APPLY
ONLY TO CERTAIN TYPES OF BILL
Parliament Acts 1911 and 1949
8.195 Under the Parliament Acts 1911 and 1949
certain public bills may be presented for Royal Assent without
the consent of the Lords. The Acts do not apply to bills originating
in the Lords, bills to extend the life of a Parliament beyond
five years, provisional order confirmation bills, private bills
or delegated legislation. The conditions which must be fulfilled
before a bill can be presented for Royal Assent under the Acts
vary according to whether or not the bill is certified by the
Speaker of the House of Commons as a money bill.
8.196 A money bill is a bill endorsed with the
signed certificate of the Speaker of the House of Commons that
it is a money bill because in the Speaker's opinion it contains
only provisions dealing with national, but not local, taxation,
public money or loans or their management. The certificate of
the Speaker is conclusive for all purposes. If a money bill, which
has been passed by the Commons and sent up to the Lords at least
one month before the end of a session, is not passed by the Lords
without amendment within a month after it is sent to them, the
bill shall, unless the Commons direct to the contrary, be presented
for Royal Assent without the consent of the Lords. This does not
debar the Lords from amending such bills provided they are passed
within the month, but the Commons are not obliged to consider
the amendments. On a few occasions minor amendments have been
made by the Lords to such bills and have been accepted by the
OTHER PUBLIC BILLS
8.197 If the Lords reject any other public bill
to which the Acts apply which has been sent up from the Commons
in two successive sessions, whether of the same Parliament or
not, then that bill shall, unless the Commons direct to the contrary,
be presented for Royal Assent without the consent of the Lords.
The bill must be sent up to the Lords at least one calendar month
before the end of each session; and one year must elapse between
second reading in the Commons in the first session and the passing
of the bill by the Commons in the second. The Lords are deemed
to have rejected a bill if they do not pass it, either without
amendment or with such amendments only as are acceptable to the
Commons. The effect of the Parliament Acts is that the Lords have
power to delay enactment of a public bill until the session after
that in which it was first introduced and until at least 13 months
have elapsed from the date of second reading in the Commons in
the first session.
8.198 Supply bills, or bills of aids and supplies,
such as Consolidated Fund Bills and Finance Bills, may be passed
or rejected by the Lords but, since the supply is granted by the
House of Commons, the Lords are debarred from offering any amendment.
Consequently the committee stage is negatived. Proceedings on
Consolidated Fund Bills are always taken formally;
Finance Bills are usually debated on second reading and their
subsequent stages taken formally.
8.199 When these bills have been passed by the
Lords, they are returned to the Commons if Royal Assent is to
be signified by Commission, and are brought up by the Speaker
and receive Royal Assent before, and in a different form from,
all other bills.
8.200 A supply bill may, or may not, be certified
as a "money bill" within the meaning of s. 1(2) of the
Parliament Act 1911. Finance Bills, which are supply bills, are
frequently not certified as money bills.
8.201 The right of the Lords to reject a supply
bill includes the right to omit supply provisions from a bill
when such provisions form a "separate subject" from
the general object of the bill, which the Lords are otherwise
entitled to amend.
8.202 For example the Lords amended Part III
of the Land Commission Bill 1966-67 (which provided for a betterment
levy). The Lords amended the part in committee although it concerned
supply, but then left it out in its entirety on third reading,
since it would have been an infringement of Commons financial
privilege to return the bill with that part concerning supply
amended. This gave the Commons the opportunity to restore the
entire separate subject to the bill with amendments, including
some of the Lords amendments made in committee.
8.203 Commons financial privilege debars the
Lords from amending supply bills. In order that the Commons should
not abuse their financial privilege by including in such bills
provisions unconnected with supply, the Lords passed a resolution
in 1702 condemning the abuse of "tacking". It is now
embodied in SO 52.
8.204 Consolidation bills, which are invariably
introduced in the House of Lords, are bills that fall into the
(a) consolidation bills, whether public or private,
which are limited to re-enacting existing law;
(b) bills to consolidate any enactments with
amendments to give effect to recommendations made by the Law Commissions;
(c) statute law repeals bills, prepared by the
Law Commissions to promote the reform of the statute law by the
repeal of enactments which are no longer of practical utility;
(d) statute law revision bills, which are limited
to the repeal of obsolete, spent, unnecessary or superseded enactments;
(e) bills prepared under the Consolidation of
Enactments (Procedure) Act 1949, which include corrections and
minor improvements to the existing law.
8.205 Almost all such bills now fall within categories
(a) to (c).
8.206 Bills which re-enact in the form in which
they apply to Scotland the provisions of United Kingdom Acts,
and consequential provisions bills which, although not consolidation
bills, contain ancillary provisions normally found in a consolidation
bill and form part of a consolidation,
have also on occasion been specifically referred to the Joint
Committee on Consolidation Bills on motion. If the motion is agreed
to, a message is sent to the Commons to ask for their agreement.
8.207 On second reading the Lord in charge of
the bill may indicate to the House the category into which each
bill falls. The bill is then automatically referred to the Joint
Committee on Consolidation Bills.
JOINT COMMITTEE ON CONSOLIDATION BILLS
8.208 The committee consists of 12 members of
each House, the Lords members being nominated by the Committee
It is normally chaired by a former holder of high judicial office.
The function of the committee is to assure itself that all the
provisions of a bill fall properly within one of the categories
previously indicated, and to report thereon to each House. After
taking evidence from the draftsmen responsible and any departmental
or other witnesses, the committee reports the bill to the House
of Lords with or without amendment. Where amendments are made
by the committee, bills are usually reprinted as amended. Whether
or not amended, they are then recommitted to a Committee of the
whole House. Thereafter consolidation bills follow the same course
as other public bills.
8.209 Amendments may be moved in the House to
bills that have been referred to the joint committee, provided
that they are restricted to the class of amendment that could
have been moved in the joint committee.
MOVING OF STAGES OF CONSOLIDATION BILLS EN BLOC
8.210 Where the same stage of several linked
consolidation bills is to be considered by the House, the Lord
in charge may, with notice (given by means of an italic note in
House of Lords Business), move the bills en bloc.
In the case of an amending stage, this is only possible if no
amendments have been tabled. Any member may, however, propose
that the bills be taken separately to the extent desired. The
House can also resolve itself into a committee on recommitment
in respect of several consolidation bills at once in order to
debate any amendments tabled; the committee reports only when
all the bills have been considered. In this case the procedure
is applied by business of the House motion.
Tax law rewrite bills
8.211 Tax law rewrite bills
are intended to make the language of tax law simpler, but they
preserve the effect of the existing law, subject to any minor
changes which may be desirable. Such bills are introduced into
the House of Commons, and are normally certified by the Speaker
as money bills. A joint committee of the two Houses considers
the bills after second reading in the Commons and the joint committee's
report is laid before both Houses before the bill proceeds further
in the Commons. In the Lords the committee stage of a tax law
rewrite bill, being a money bill, is normally negatived.
JOINT COMMITTEE ON TAX LAW REWRITE BILLS
8.212 The chairman of the joint committee is
a member of the House of Commons. Given the subject matter of
tax law rewrite bills, procedure in the joint committee follows
the procedure of select committees in the Commons, where such
procedure differs from that of select committees in the Lords.
The chairman has power to select amendments to the bill. The committee
is exempt from the rotation rule.
8.213 Hybrid bills are public bills which are
considered to affect specific private or local interests, in a
manner different from the private or local interests of other
persons or bodies of the same class, thus attracting the provisions
of the Standing Orders applicable to private business (see paragraph
REFERENCE OF BILLS TO EXAMINERS
8.214 Each bill introduced in the Lords is examined
by the Public Bill Office to see whether it may affect any private
interests to which protection is given by the Standing Orders.
If, prima facie, this is found to be so, an order is made
referring the bill to the Examiners, and the second reading of
the bill cannot be moved until the report of the Examiners has
been received, although notice of second reading of the bill may
be entered in the order paper. In the case of a Commons bill,
an order is made for it to be referred to the Examiners if it
was so referred by that House.
8.215 It is open to any member who considers
that a public bill may be hybrid, or has become hybrid as a result
of any amendment made to it (see below), to move that the bill
be referred to the Examiners. Such a motion is usually moved immediately
before second reading, but may be moved with notice between stages
at any time before third reading.
REPORT FROM EXAMINERS
8.216 If the Examiners report that no standing
orders are applicable, the bill may proceed on its ordinary course.
8.217 However, if the Examiners find that the
standing orders relating to private business are applicable, the
bill is a hybrid bill, and (unless the House orders otherwise)
an order of the House is made providing for petitions against
the bill to be deposited by a given date.
8.218 If no petitions are deposited against the
bill, the bill proceeds as a public bill in the usual way. If
petitions are deposited, the bill is committed after second reading
to a select committee.
8.219 Since the bill is a public bill, and has
been affirmed in principle on second reading, the preamble does
not have to be proved before the select committee; but in other
respects the committee broadly follows the procedure of a select
committee on an opposed private bill (see paragraph 9.38). When
the bill is reported from the select committee it is recommitted
to a Committee of the whole House and thereafter follows the usual
course of a public bill. The bill is reprinted as amended by the
select committee and the amendments are also printed separately.
8.220 A bill may become prima facie hybrid
as a result of an amendment made to it (and a hybrid bill may
be amended in such a way as to affect private or local interests
not previously affected). If an amendment is agreed to which,
in the opinion of the Public Bill Office, has such an effect,
the bill may be referred to the Examiners before its next stage,
on a motion moved by the Chairman of Committees.
8.221 A Measure passed by the General Synod of
the Church of England is, under the provisions of the Church of
England Assembly (Powers) Act 1919, as amended by the Synodical
Government Measure 1969, submitted to Parliament for a resolution
directing that it be presented to Her Majesty for Royal Assent.
8.222 The Measure is submitted first to the Ecclesiastical
Committee, which is appointed pursuant to the 1919 Act for the
duration of a Parliament and which consists of 15 members of the
House of Lords, nominated by the Lord Speaker, and 15 Members
of the House of Commons, nominated by the Commons Speaker. The
committee appoints its own chairman; by practice, this is a former
holder of high judicial office. Being a statutory committee the
committee is not formally a joint committee, nor are its proceedings
"proceedings in Parliament";
but it has resolved to adopt the procedure of a joint committee.
8.223 The committee reports on the nature and
legal effect of the Measure, and gives its views on whether the
Measure should proceed ("is expedient"), especially
with relation to the constitutional rights of all Her Majesty's
subjects. During its consideration of a Measure the Ecclesiastical
Committee may, either of its own motion or at the request of the
Legislative Committee of the General Synod, invite the Legislative
Committee to discuss its provisions at a conference.
8.224 The committee communicates its report in
draft to the Legislative Committee, and may not present its report
to Parliament until the Legislative Committee asks it to do so.
The Legislative Committee may, at any time before the presentation
of the Ecclesiastical Committee's report to Parliament, withdraw
a Measure from the consideration of that committee, and has invariably
done so in the face of an unfavourable draft report.
8.225 If the Legislative Committee decides to
proceed with the Measure, the text of the Measure and the report
of the Ecclesiastical Committee are laid before Parliament. If
the Chairman of Committees and the Chairman of Ways and Means
in the Commons think that a Measure deals with two or more subjects
which might more properly be divided, they can divide a Measure
at this point and it is printed as separate Measures. A resolution
for presenting the Measure to Her Majesty for Royal Assent may
then be moved. Where a Measure affects the interests or prerogative
of the Crown, Consent is required as for a bill. It is signified
before the motion is moved in the House. If both Houses agree
to such a motion, the Measure is ready for Royal Assent.
8.226 Neither the Ecclesiastical Committee nor
either House has power to amend a Measure, but either House can
reject it by disagreeing to the motion for a resolution.
8.227 When a bill is passed by the House in which
it has been introduced, a fair print of the bill, incorporating
all the amendments made by that House, is made. This is called
the House bill and it is then sent to the other House accompanied
by a message seeking that House's agreement to it. Any amendments
made in either House in the subsequent passage of the Bill are
marked into the House bill, which is then returned to the other
House with a further message. The House bill constitutes the formal
record of what each House has done in respect of a bill and is
the authority on which each House prints the text of a bill or
any amendments brought from or made by the other. The House bill
also provides the authority for the text of a bill when it is
published as an Act.
8.228 Each time a bill is sent from one House
to the other the House bill is endorsed by the Clerk of that House.
The appropriate formulae, in Norman French, are given in Appendix
274 SO 86. Back
Procedure 2nd Rpt 1976-77. Back
The fourteen-day periods are inclusive of the day on which the
previous stage is concluded. The three-day period is exclusive. Back
Written Statement by the Leader of the House, 15 December 2009. Back
Procedure 1st Rpt 1987-88; Procedure 1st Rpt 1991-92. Back
Procedure 3rd Rpt 1997-98. In the Lords, the Constitutional Reform
Bill [HL] was carried over from session 2003-04 to 2004-05. In
the Commons, the power to carry over has been used more frequently. Back
Procedure 5th Rpt 2001-02. Back
Scotland Act 1998, s. 28(7); Northern Ireland Act 1998 s. 5(6);
Government of Wales Act 2006, ss. 93(5), 107(5). Back
HL Deb. 28 October 1998, cols 1947-52. The "Sewel convention".
This was stated in proceedings on the Scotland Bill, and it is
reflected in the Concordat between the Government and the Scottish
Executive about bills. The Concordat states that in practice consultation
with the Scottish Executive is sufficient, on the ground that
the Executive will then consult the Scottish Parliament. This
principle applies to the other devolved assemblies. Back
SO 41(3). Back
Procedure 2nd Rpt 1997-98. Back
Procedure 1st Rpt 2001-02. Back
HL Deb. 19 July 1989, cols 788-91; Procedure 3rd Rpt 1992-93. Back
LJ (1979-80) 1358; HL Deb. 24 July 2000, cols 12-13. Back
The work of the Committee is described at paragraphs Error! Reference source not found.-Error! Reference source not found.. Back
Procedure 1st Rpt 1999-2000. Back
Procedure 5th Rpt 2006-07. Back
Procedure 1st Rpt 2007-08. Back
SO 47(1), Procedure 1st Rpt 1960-61. Back
Procedure 2nd Rpt 1990-91. Back
Procedure 2nd Rpt 1976-77. Back
See HL Deb. 6 February 1968, cols 1075-1086. Back
SO 38. Back
Procedure 1st Rpt 1974-75. Back
HL Deb. 11 June 1964, cols 986-1001; Procedure 1st Rpt 1983-84.
e.g. HL Deb. 21 January 1997, col. 586. Back
But see paragraph Error! Reference source not found.. Back
HL Deb. 21 March 1984, col. 1325. Back
Procedure 2nd Rpt 1976-77, 1st Rpt 1987-88. Back
Procedure 2nd Rpt 1991-92. Back
Procedure 2nd Rpt 1982-83. Consecutive amendments which have been
grouped separately may be moved en bloc, proving the criteria
set out in the text have been met. Back
Under SO 62 the Lord Speaker may preside over Committee of the
whole House. Back
SO 62. Back
See also SO 62. Back
Or, if the Lord Speaker or another Deputy Speaker takes over
the Woolsack, the Lord who was in the Chair may report the bill
from the Government front bench. Back
Procedure 1st Rpt 1956-57. Back
SO 47(2). Back
Public bill committees have been largely superseded by Grand Committees.
The last appointment of a public bill committee was in 1994. Back
Procedure 1st Rpt 1987-88; 1st Rpt 1992-93. Back
LJ (1986-87) 392-395. Back
SO 65. Back
Procedure 3rd Rpt 1970-71; 2nd Rpt 1987-88. Back
Procedure 1st Rpt 2007-08. Back
Procedure 1st Rpt 1994-95. Back
HL Deb. 13 December 1995, cols 1279-88. Back
Procedure 3rd Rpt 1970-71; 2nd Rpt 1987-88. Back
Amendments may be tabled in the usual way at any time after second
LJ (1992-93) 161, 163; ibid (1993-94) 586, 682; HL Deb. 13 December
1995, cols 1279-88. Back
LJ (1958-59) 97. Back
LJ (1854-55) 277, 334. Back
See Minutes of Proceedings, 9 November 2009. Back
See paragraphs Error! Reference source not found.-Error! Reference source not found.. Back
Procedure 1st Rpt 1998-99. Back
Procedure 9th Rpt 1970-71. Back
SO 30. Back
Procedure 1st Rpt 1987-88. Back
Procedure 2nd Rpt 1976-77. Back
Procedure 1st Rpt 1980-81. Back
SO 48. Back
Procedure 3rd Rpt 2003-04. Back
Procedure 2nd Rpt 2005-06. Back
Procedure 2nd Rpt 1976-77. The term "issue" is wider
than a specific amendment. Thus where amendments have been grouped
together at an earlier stage of the bill it may be assumed that
all amendments in the group relate to the same "issue".
Procedure 1st Rpt 2006-07. Back
Procedure 1st Rpt 1998-99. Back
Procedure 1st Rpt 1987-88. SO 41(4). Back
Procedure 2nd Rpt 1999-2000. Back
Procedure 1st Rpt 1989-90. Back
Procedure 1st Rpt 2004-05. Back
Exchanges between the Houses at this stage are governed by provisions
set out in Procedure 1st Rpt 2004-05. Back
Erskine May, p. 639. For an example see the proceedings
on the Planning and Compulsory Purchase Bill 2003-04: LJ (2003-04)
"If the Speaker is satisfied that a Lords amendment imposes
a charge upon the public revenue such as is required to be authorised
by resolution of the House under Standing Order No. 49 (Certain
proceedings relating to public money) and that such charge has
not been so authorised, on reaching that amendment, the Speaker
shall declare that he is so satisfied and the amendment shall
be deemed to have been disagreed to and shall be so recorded in
LJ (1705-09) 506. Back
See appendix H, page 248. Back
Procedure 3rd Rpt 1992-93. Back
See appendix F, page 244. Back
LJ (1701-05) 185. Back
LJ (1972-73) 383. Back
Joint Committee on Consolidation Bills 4th Rpt 1987-88. Back
SO 51. Back
Report of the Select Committee on the Speakership of the House
of Lords, HL Paper 92 2005-06. Back
Procedure 2nd Rpt 1991-92. Back
Procedure 4th Rpt 1999-2000. These bills were formerly known as
"tax simplification bills". Back
Procedure 1st Rpt 2005-06. Back
See paragraph Error! Reference source not found.. Back