1. The passage of legislation in
the House of Commons
Kate Emms, Clerk

2. Turning a Bill into an Act
A bill must pass through both Houses in the same
form to become law (exceptions under the
Parliament Act are rare)
A bill must receive Royal Assent to become law
(last refused in 1707)
In general, a bill must pass in one parliamentary
session, April to April (although there is provision
for “carry-over”).
A bill can start in either the Lords or Commons

3. Stages of a bill (Commons)
Formal first reading
Second reading general debate
After second reading, Government Bills generally
timetabled: sets the time limit for next stage.
Referred for Committee stage
Public Bill Committee (PBC)
Committee of the Whole House (CWH)
Combination of PBC / CWH

4. Public Bill Committee
Public Bill Committee appointed to deal with the Bill
Composition
Chairs are neutral umpires unlike Select Committee
Chair
PBC able to take evidence; aim to make process more
evidence-based and involve public
Can receive written evidence
Commons starters also take oral evidence (schedule
proposed by whips and agreed by Committee rather
than proposed by Chair as in Departmental Select
Committee)
Proceeds to line by line consideration.

5. Committee Stage
Agree every Clause and Schedule
Opportunity to table amendments and new clauses
Selected for debate by Chairs of Committee
Committee of the Whole House: this is done in the
Chamber; all Members can participate

6. Report stage and Third
Reading
After Committee stage, Bill goes to report (also known
as consideration)
Debate in House of Commons; another opportunity to
table amendments and new clauses etc. Selection by
Speaker (more restrictive than at Committee as less
time)
Final opportunity for general debate at Third Reading
(usually one hour)
Then passes to the Lords

7. Private Members’ Bills
3 types
20 ballot bills
13 Fridays
Several motives
Campaigning tool
Influential without becoming law
Not programmed – sittings motions and closure
motions
Same stages, but in a different way; different
standing orders apply.

8. So, progress without
programming?
Luck
The support of government (all of it)
The support of the opposition and half a coalition
Enough procedural cunning to work the system, or
enough to ask the right questions
A ‘deal’ or number of deals
99 good friends

9. Public involvement and impact
Contribute to consultations; DSC inquiries into
White Papers and post-leg scrutiny
Evidence to PBCs: submit written evidence
Will my contribution have an impact?
Rare to concede to backbench amendment
But may influence secondary legislation
DSC recommendations often rejected but then
may reappear in Govt bill