The Legislative Process

This lesson examines how a bill becomes an Act of Parliament — the formal process by which the UK Parliament makes law. Understanding the legislative process is essential for evaluating Parliament's effectiveness as a legislature and the balance of power between the Commons, the Lords, and the Executive.

---

Types of Legislation

Type	Description	Examples
Government bills	Introduced by government ministers; make up the majority of legislation	Finance Act, Education Act
Private Members' Bills (PMBs)	Introduced by backbench MPs or peers	Abortion Act 1967; Marriage (Same Sex Couples) Act 2013 (started as a government bill but drew on earlier PMB campaigns)
Private bills	Affect specific organisations or localities	Crossrail Act 2008
Hybrid bills	Combine public and private bill characteristics	High Speed Rail (West Midlands - Crewe) Act 2021
Delegated (secondary) legislation	Made by ministers under powers granted by primary legislation; includes statutory instruments (SIs)	Thousands per year; often passed without debate

---

The Stages of a Government Bill

Most legislation originates in the House of Commons, though some bills start in the Lords. A bill must pass through the following stages in both Houses before receiving Royal Assent:

1. First Reading

• A formal introduction of the bill. The title is read out and copies are made available.
• No debate or vote takes place.

2. Second Reading

• The main debate on the bill's general principles and purpose.
• The relevant minister introduces the bill and explains its purpose; the Opposition responds.
• A vote is taken at the end (a division). If the bill passes, it proceeds to committee stage.
• Government bills almost always pass Second Reading because of the whip system.

3. Committee Stage

• The bill is examined line by line by a Public Bill Committee (PBC), typically composed of 15–30 MPs reflecting party strength.
• Amendments are proposed and debated. This is where detailed scrutiny occurs.
• Key issue: PBCs are often dominated by the government's whipped majority, limiting the scope for genuine amendment.
• For some bills (particularly constitutional bills), the committee stage takes place on the floor of the whole House (a Committee of the Whole House).

4. Report Stage

• The amended bill returns to the full House of Commons.
• Further amendments can be proposed and voted on.
• This is an important opportunity for MPs who were not on the PBC to contribute.

5. Third Reading

• A final debate on the bill as amended. In the Commons, no further amendments can be made.
• A vote is taken. If passed, the bill goes to the House of Lords.

6. The House of Lords

The bill goes through the same stages in the Lords: First Reading, Second Reading, Committee (usually in a Committee of the Whole House), Report, and Third Reading. The Lords can amend the bill.

Key difference: In the Lords, amendments can be made at Third Reading, unlike in the Commons.

7. Ping-Pong (Consideration of Amendments)

If the Lords amend the bill, it returns to the Commons for consideration of the Lords' amendments. The Commons can accept, reject, or further amend them. The bill then returns to the Lords, and so on. This process is known as "ping-pong" and continues until both Houses agree on the same text.

• If agreement cannot be reached, the Parliament Acts 1911/1949 allow the Commons to pass the bill without the Lords' consent after one year (two sessions).
• In practice, most disputes are resolved through negotiation and compromise.

8. Royal Assent

Once both Houses have agreed on the same text, the bill receives Royal Assent from the monarch and becomes an Act of Parliament. By convention, the monarch always grants Royal Assent.

---

Private Members' Bills (PMBs)