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File 03 of 05 · LAWMAKING · roles only

How a bill becomes law

A bill passes through more gates than most accounts of it admit, and can stop at any of them. This is the full passage, including the stages that rarely make the news.

Passage is not law. Assent is, and the gate before it is a committee most reporting never names.

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01

Three readings, twice

A bill is introduced, examined and voted in each House in turn. Most substantial bills are referred to a committee between the readings, where the detail is actually contested.

BOTH HOUSES, IN SEQUENCE

02

Money is different

A money bill can originate only in the Lower House. The Upper House may recommend, but cannot amend or reject it, and must return it within fourteen days.

ARTICLES 109 · 110

03

Assent is the last gate

Passage is not law. Assent completes it, and the head of state may return a bill other than a money bill once for reconsideration before it becomes an Act.

ARTICLE 111

FILE 03 OF 05 · THE LEGISLATIVE PROCESSHow a bill becomes law

Wide chart — scroll sideways to read it →

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Civics series  ·  File 03 of 05
File 03 — the legislative process

How a bill becomes law

The lights run down the line in the direction a bill travels: from a ministry's draft, through three readings in each House of Parliament, to the President's assent and the Gazette.
Running light  the bill in motion
Red side rule  an exception or a branch
Ordinary bill  unless marked money bill
01
Drafting
The ministry concerned prepares the draft; the Law Ministry vets it and the Cabinet clears it. A private member — any MP who is not a minister — may bring a bill of their own instead.
02
First reading — introduction
The minister asks leave, the title and objects are read, and the bill is printed in the Gazette. There is no debate at this stage.
Money bill May only be introduced in the Lok Sabha, and only on the President's recommendation.
03
Committee scrutiny
The House may refer the bill to a departmental standing committee, a select committee, or a joint committee of both Houses. The committee takes evidence, hears officials and experts, and reports back with recommended amendments.
04
Second reading
General discussion on the principle of the bill, then clause-by-clause consideration. Amendments are moved and voted on one at a time. This is where the bill is actually shaped.
05
Third reading — the vote
Debate is confined to accepting or rejecting the bill as it now stands. A majority of the members present and voting carries it, and the House it started in has passed it.
06
The other House
The bill goes through all three readings again in the second House, which may pass it, reject it, amend it, or simply take no action.
Deadlock
Joint sitting
Both Houses vote together — Article 108
Money bill The Rajya Sabha has fourteen days and may only recommend changes; the Lok Sabha need not accept them. No joint sitting applies.
07
The President's assent
Under Article 111 the President may assent, withhold assent, or return an ordinary bill for reconsideration. If both Houses pass it again, assent must follow. A money bill cannot be returned.
Enacted
It is an Act of Parliament
Published in the Gazette of India, numbered by year, and in force from the date the Act names or the date the government notifies.
08

In a state legislature

Same readings — a different final signature
Step one
Legislative Assembly
Three readings, as in the Lok Sabha. Money bills start here.
Step two
Legislative Council
Only in the six states that have one, and it can delay a bill but not block it.
Step three
Governor
May assent, withhold assent, return the bill, or reserve it for the President — Article 200.
Result
A State Act
Binding within the state, on subjects in the State and Concurrent Lists.
Roles and procedure only; no officeholders named.
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Prepared by Pritiraj & Partners  ·  for education and reference