How does a bill progress through Parliament?
Introduction
In the UK, primary legislation is an Act of Parliament and secondary legislation is a Statutory Instrument (see separate note)
Generally speaking, primary legislation enables the development of specific legislation; it addresses general areas whereas secondary legislation addresses specific issues.
Government Bills
Most important bills are introduced by a government minister and relate to public policy. Such bills are known as Government bills.
Private Members’ Bills
Individual Members of Parliament, sometimes referred to as Private Members, have the power to introduce their own legislation under the Private Member's Bill procedure.
There are three types of Private Member's Bill:
The most important is the balloted bill. Each year a ballot is held at the start of the session and the twenty MPs whose names come out top are allowed to introduce legislation on a subject of their choice. The six or seven MPs at the top of this list are given time by the Government to have their proposals discussed in detail in the House. Measures which gain strong cross party support can stand a good chance of becoming law.
Members may also introduce Private Member's Bills in the form of Ten Minute Rule Bills on Tuesday and Wednesday afternoons. The sponsoring MP may make a speech lasting 10 minutes in support of his or her bill. These bills are not allocated time for further discussion and stand little chance of becoming law.
The third type of Private Member's Bill is the Presentation Bill. A Member introducing this type of bill is not able to speak in support of it and the bill stands almost no chance of becoming law. These bills are used by MPs largely as a method of publicising a particular issue.
Stages of a Bill
(Contentious bills usually start in the Commons, but those starting in the Lords transfer to the Commons, following the same stages).
House of Commons
- First Reading
The title and brief explanation is printed in Hansard. There is no debate at this stage.
- Second Reading
The first opportunity to debate the general principles of the bill and debate is wide-ranging. It is rare for a Government bill to be denied a second reading.
- Committee Stage
The clause by clause consideration of the bill and the first opportunity for amendments to be tabled. Most bills are referred to a Public Bill Committee (formerly called Standing
Committee), a group of about 15-20 MPs reflecting party strength in the House. For Government bills, the Committee generally meets on Tuesdays and Thursdays, and for Private Member's bills, on Wednesdays. Rarely, bills are referred to a Special Public Bill Committee which spends a limited time investigating the issues involved, and perhaps asking for witnesses to present information, before consideration of the bill in the usual way in a public bill committee.
- Report Stage/Consideration
A detailed review by all MPs of the bill as amended in Committee. Further amendments can be tabled at this stage by any MP.
- Third Reading
Final opportunity in the Commons for amendments to be tabled, although these cannot be substantive.
The bill then transfers to the House of Lords.
House of Lords
- First Reading
The title and brief explanation is printed in Hansard. There is no debate at this stage.
- Second Reading
The first opportunity for peers to debate the general principles of the bill and debate is wide-ranging.
- Committee Stage
The Committee Stage is usually taken byCommittee of the Whole House. Amendments can be tabled at this stage including those already tabled and debated in the Commons, but which were unsuccessful.
- Report Stage/Consideration
A detailed review of the bill as amended in Committee. Further amendments can be made at this stage by any peer.
- Third Reading
Final opportunity in the Lords for amendments to be tabled, although these cannot be substantive.
House of Commons
- Lords' Amendments Considered
The Commons and Lords must each agree the text of the bill. If the Lords agree amendments, these have to be considered and agreed by the Commons. MPs can amend Lords’ amendments, but the Bill then has to return to the House of Lords for peers’ approval.
Agreement is reached between both Houses
- Royal Assent
The Crown must give Assent to a bill for it to pass into law. Assent has not been withheld since 1707.
Commencement Orders
Some Acts are brought into effect immediately, some at a date specified in the Act and others by Commencement Orders (Statutory Instruments).
NB: more detailed factsheets are available from the House of Commons website: