What is a Bill?
A Bill is a draft of a proposed law. It has no legal force until it is passed by both Houses of Parliament and signed (assented to) by the President. Once assented to, it becomes an Act – that is, it becomes actual law.
Step 1: Drafting of the Bill
A proposal for a new law is prepared, usually by the concerned Ministry. A Bill can be:
- Government Bill – introduced by a Minister.
- Private Member’s Bill – introduced by any MP who is not a Minister.
Most laws come through Government Bills.
Step 2: First Reading (Introduction)
The Bill is introduced in either the Lok Sabha or the Rajya Sabha (a Money Bill can only be introduced in the Lok Sabha). There is no debate at this stage – only the introduction takes place, and the Bill is published in the Gazette.
Step 3: Second Reading (Detailed Discussion)
This is the most important stage. It has three parts:
- General Discussion – members discuss the broad aims and principles of the Bill (no voting yet).
- Committee Stage – the Bill may be sent to a Standing Committee, Select Committee, or Joint Committee for detailed, clause-by-clause examination.
- Clause-by-Clause Consideration – the House discusses the Bill clause by clause and votes on any amendments.
Step 4: Third Reading
A final debate takes place on the Bill as a whole (no further changes, except minor ones). Members then vote. If passed by a simple majority, the Bill moves to the other House.
Step 5: Same Process in the Other House
The second House repeats the same three stages – First Reading, Second Reading, and Third Reading. It may then:
- pass the Bill,
- reject the Bill,
- suggest amendments, or
- keep it pending.
Step 6: If the Houses Disagree – Joint Sitting
If the Lok Sabha and Rajya Sabha cannot agree, the President may call a Joint Sitting under Article 108. It is presided over by the Speaker of the Lok Sabha, and the matter is decided by a simple majority of members of both Houses present and voting. A Joint Sitting is not available for Money Bills or Constitutional Amendment Bills.
Step 7: President’s Assent
Once Parliament passes the Bill, it is sent to the President, who may:
- give assent – the Bill becomes an Act;
- return the Bill for reconsideration (not possible for a Money Bill); or
- withhold assent (rare).
If Parliament passes a returned Bill again, the President must give assent.
Simple Flow for Exams
Drafting → First Reading → Second Reading → Third Reading → Other House → President’s Assent → Act
Special Cases
Money Bill (Articles 109–110)
- Can be introduced only in the Lok Sabha, with the President’s prior recommendation.
- Rajya Sabha cannot reject or amend it – it can only recommend changes.
- Rajya Sabha must return it within 14 days, or it is deemed passed.
- The Speaker’s decision on whether a Bill is a Money Bill is final.
Financial Bill (Article 117)
- Deals with financial/money matters but is broader than a Money Bill (it may also contain other, non-financial provisions).
- Needs the President’s prior recommendation, but the Rajya Sabha has full power to discuss, amend, or reject it – unlike a Money Bill.
Constitutional Amendment Bill (Article 368)
- Needs a special majority – majority of total membership, and at least two-thirds of members present and voting – in each House separately.
- No Joint Sitting is available if the Houses disagree.
- For certain amendments (affecting the federal structure), ratification by at least half of the State Legislatures is also required.
- The President must give assent – assent cannot be withheld or the Bill returned.
Types of Bills at a Glance
| Type of Bill | Who Can Introduce | Where Introduced | Rajya Sabha’s Power |
| Ordinary Bill | Minister or any MP | Either House | Full — can amend or reject |
| Money Bill | Only a Minister (with President’s recommendation) | Lok Sabha only | Can only recommend; 14-day limit |
| Financial Bill | Only a Minister (with President’s recommendation) | Usually Lok Sabha | Full, once passed by Lok Sabha |
| Constitutional Amendment Bill | Minister or any MP | Either House | Full — special majority needed |
Bill vs Act – Quick Note
A Bill is only a proposal – it has no legal force. It becomes an Act, and therefore actual law, only after the President’s assent. Even then, an Act may not immediately come into force; it starts operating on the date mentioned in it, or on the date the government notifies through the Official Gazette.
Key Points to Remember
- Bill → Act happens only after both Houses pass it and the President gives assent.
- Money Bills can start only in the Lok Sabha, and the Rajya Sabha’s role is limited to recommendations within 14 days.
- Joint Sittings (Article 108) are for ordinary/financial Bills only – never for Money Bills or Constitutional Amendment Bills.
- Constitutional Amendment Bills need a special majority, and sometimes State ratification too.
The President cannot withhold or return a Constitutional Amendment Bill – assent is compulsory