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Erskine May's treatise on the law, privileges, proceedings and usage of parliament:

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Bibliographic Details
Main Author:	May, Thomas Erskine 1815-1886 (Author)
Other Authors:	Cocks, Barnett 1907- (Editor)
Format:	Book
Language:	English
Published:	London [u.a.] Butterworth 1971
Edition:	18. ed.
Subjects:	Great Britain. Parliament > Rules and practice Großbritannien > Parliament Großbritannien > Parliament > House of Commons Großbritannien > Parliament > House of Lords Parlamentsrecht Parlamentswahl Parlament
Online Access:	Inhaltsverzeichnis
Physical Description:	XXXV, 1108 S.
ISBN:	0406291012

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_version_	1804138148069900288
adam_text	Titel: Erskine May s Treatise on the law, privileges, proceedings and usage of parliament Autor: May, Erskine Jahr: 1971 TABLE OF CONTENTS PAGE Preface - -- -- -- ...... .y Table of Abbreviations ------ xxxi PART I CONSTITUTION, POWERS AND PRIVILEGES OF PARLIAMENT CHAPTER I THE CONSTITUENT PARTS OF PARLIAMENT PAGE Introductory - - -- -- -- - - -- -3 The Sovereign - -- -- -- -- -- -3 The House of Lords _ _________ - 4 Expenses of Members of the House of Lords ------ 6 The House of Commons -----------7 Representation in the House of Commons 8 Payment of Members - -- -- -- -- - io Travelling expenses of Members - - - - - - - -13 Members Fund - -- -- -- -- -- 15 Members Contributory Pension Fund - -- -- -- 16 CHAPTER II ELECTIONS The Electorate - 17 Disqualification of electors - -- -- -- -- 17 Constituencies - -- -- -- -- --18 Registration of electors ----------20 Registration officers - - - - - - - - - -20 Postal and proxy voting - - - - - - - - - -21 The holding of elections - -- -- -- --23 Election Campaigns - -- -- -- -- - 22 New Writs - 23 Vacancies during a Session - -- -- -- -- 23 Period for presenting petitions - -- -- -- -24 Vacancy by peerage - -- -- -- -- - 24 Supersedeas to writs -25 Issue of Warrants by the Speaker during Adjournment or Recess - - 26 Appointment of Members to issue writs -------27 Manner of issue of writs - - 27 Return of Writs - -- -- -- -- -- - 27 Correction of error in return ---------27 Failure to make return to writ - -- -- -- - 28 Members returned for two places - -- -- -- -28 Double returns - -- -- -- -- -- 20 vir viii Table of Contents PAGE Trial of Controverted Elections - - - - - - -- -29 Former procedure -----------29 Present procedure - - - - - - - - - - -30 Proceedings of the House in matters of election - - - - 31 Proceedings of House upon determination of election trials - - 31 CHAPTER III DISQUALIFICATION FOB MEMBERSHIP OF EITHER HOUSE Di qualifications for Membership of the House of Lords ----- 33 Aliens ------------33 Persons under twenty-one - - - - - - - - 33 Bankruptcy - -- -- -- -- -33 Treason - .---34 Disqualification by sentence of expulsion ----- 34 Disqualifications for Membership of the House of Commons 34 Aliens ------------34 Persons under twenty-one - - - - - - - 35 Lunacy - -- -- -- - -- -35 Peers ------- - - - - - 36 Bankruptcy -----------37 Treason - -- -- -- -- --38 Other crimes - -- -- -- -- - 39 Corrupt practices at elections - -- -- --39 Clergy - -- -- -- -- --40 Returning officers ---------41 Petitioning candidates - - -- -- -- - 41 Disqualification of Certain Office-Holders --------41 General - -- -- -- -- -- 41 t. Non-Political Office - -- -- -- --42 Public Service Disqualification - -- -- --42 Disqualification by Particular Office ------ 44 Effect and Determination of Disqualification ----- 47 Jurisdiction of the Privy Council in Disqualification - - - 48 Penalties - -- -- -- - - --48 Amendment of House of Commons Disqualification Act, 1957- - 49 2. Political Office - -- -- -- -- -49 CHAPTER IV POWER AND JURISDICTION OF PARLIAMENT Extent of Legislative Authority of Parliament collectively - - - - 51 The provisions of the statute of Westminster, 1931 ----- s1 Extent of the Prerogatives of the Crown in Reference to Parliament - - - 53 Annual meeting of Parliament- - - - - - - - - 53 Summons - -- -- -- -- -- -34 Demise of the Crown - -- -- -- -- - 55 Causes of summons - -- -- -- -- - SS Prorogation ------------56 Effect of a prorogation ---------- 37 Meeting of Parliament accelerated or deferred by proclamation 57 Meeting of Parliament accelerated pursuant to statute 57 Meeting tor despatch of business - -- -- -- - 37 Adjournment- - 58 Dissolution - -- -- -- -- -- - 58 Other powers - -- -- -- -- --60 Rights and Functions of the House of Lords - -- -- -- 60 House of Lords as a court of judicature ------ - 60 Principal Power of the Commons - -- -- ..--62 Acts of Attainder and Impeachments -----.---62 Impeachment by the Commons - -- -- -- -63 Bills of attainder - -- -- -- -- -- 63 Table of Contents ix PAGE CHAPTER V GENERAL VIEW OF THE PRIVILEGE OF PARLIAMENT What constitutes privilege -----------64 Collective and individual privileges of each House and of Members of each House 65 Origin of privilege - -- -- -- -- -- - 66 Privileges enjoyed by custom and by statute - -- -- --66 Privilege of Peerage ------------68 Privileges of the Commons originally under the protection of the Lords 68 Privileges of each House part of the Common law of Parliament 69 Neither House may create new privileges ------- - 69 Select Committee on Parliamentary Privilege, 1967 ------ 69 CHAPTER VI PRIVILEGE OF FREEDOM OF SPEECH Scope of chapter - -- -- -- -- -- - 7° Necessity of freedom of speech --------- - jo Inclusion of claim in Speaker s petition and its interpretation 72 Statutory recognition of the privilege ---------73 Duty of Members to maintain the privilege - -- -- --74 Speeches in Parliament not actionable - - 75 Procedure consequential on the privilege of freedom of debate - - - - 75 Right to exclusive cognizance of proceedings in Parliament - - - 81 Matters arising outside Parliament which may be treated as proceedings in Parliament -------------85 Evidence before the courts as to proceedings in Parliament ----- 85 Matters arising in House which are not proceedings in Parliament 86 Proceedings in Parliament and the Criminal Law ------ 87 CHAPTER VII PRIVILEGE OF FREEDOM FROM ARREST OR MOLESTATION Origin and Scope of the Privilege - -- -- -- --89 Freedom from Arrest in Civil Process - -- -- -- -91 Cases illustrating the early recognition of the privilege by the Crown - 91 Commons privileges originally dependent on protection of Lords - - 92 Means of Enforcing the Privilege - -- -- -- -- gz 1. Release of Members from custody: early cases in Commons - - 92 2. Release of Members from custody: early cases in Lords 93 3. Present mode of releasing arrested Members ----- 94 4. Transition to modern practice --------94 Effect of the Privilege on Admissibility of Members as Bail ----- 95 Duration of Privilege - -- -- -- -- -- 96 After dissolution - -- -- -- -- --96 Retrospective effect of the privilege --------96 Discontinuance of certain Privileges ---------97 x. Freedom from being impleaded - - -- -- -- 97 2. Servants privilege - -- -- -- -- -98 Privileges Related to that of Freedom from Arrest ------ 98 x. Privilege relating to Members summoned as Witnesses - - - 98 2, Privilege of exemption from jury service ------ 99 Privilege of Freedom from Arrest Not Claimed in Respect of Criminal Offences or Statutory Detention - -- -- -- -- -- 100 Privilege of freedom from arrest disclaimed in respect of seditious libels - 101 Restriction of the privilege in respect of other criminal offences - - - 101 House to be informed of arrests on criminal charges ----- 102 House to be informed of sentences for criminal offences - - - - 103 House to be informed of issue of attachment order for contempt of court - 103 Statutory detention - -- -- -- -- - 103 Cases of Contempt of Court - -- -- -- -- - 104 Cases in the House of Lords -------- - 104 Cases in the House of Commons - -- -- -- - 104 x Table of Contents PAGE Cases of attachment orders for contempt of court and of fines - - - 105 Limitation on power of courts to commit Members for contempt - - 103 Effect of Privilege on Bankruptcy of Member ------- 106 Privilege Extended from Members to Other Persons - - - - - -106 Cases illustrating extension of privilege to witnesses and others - - - 107 CHAPTER VIII OTHER PRIVILEGES CLAIMED FOR THE COMMONS Privilege of the House of Commons with respect to its own constitution - - 108 Freedom of Access ----------- - 109 Right of Access Denied to Individual Members - - - - - - no Favourable Construction of Commons Proceedings - - - - - - in CHAPTER IX PENAL JURISDICTION OF THE HOUSES OF PARLIAMENT Power to Inflict Punishment for Contempt - - - - - - -11a Differences in punishments inflicted by Lords and Commons - - - 113 Commitment ------------ - 113 Origin ---- - - -- -- -- -114 Recognition of Commons right of commitment - - - - -115 Need of the power of commitment ------- - 115 Inquiry by courts into causes of commitment - - - - - -115 Power of both Houses to secure attendance of persons on Matters of Privilege - 1x6 Power to send for persons in custody - - - - - - - 117 Warrants as protection to officers executing orders of House - - - 117 Forms of Warrants - - - - - - - - - - - -1x7 i. Cause of commitment stated generally - - - - - -118 a. Particular facts stated - - - - - - - - -118 Irregularities in warrants - - - - - - - - -119 Arrests without warrant - -- -- -- -- 120 Punishment by committal exercised by the Speaker - - - - - 120 Directions to the civil power in the Speaker s warrant - - - - 120 Aid and powers claimed for the execution of warrants - - - - 120 Power to break open outer doors : recognition by the courts - - - 121 Protection afforded by either House to Officers executing their orders - - -121 Lords - 121 Commons - -- -- -- -- -- - 122 Present practice in committing Offenders - - - - - - - -122 Orders and warrants for committal to prison ------ 123 Period of imprisonment - -- -- -- -- -- 123 Modes of Punishment other than Committal - - - - - - -125 i. Fines - -- -- -- -- -- - 125 a. Reprimand and admonition - -- -- -- - 126 3. Prosecution of offenders -------- - 127 Punishments inflicted on Members - -- -- -- -- 127 Suspension by the Commons -------- - 127 Expulsion by the Commons - -- -- -- -- 128 Expulsion from the Lords by sentence of the House - - - - - 131 CHAPTER X BREACHES OF PRIVILEGE AND CONTEMPTS A. Acts or Conduct constituting Breach of Privilege or Contempt - - - 13a Contempt in General - - - - - - - - - -13a Misconduct in the Presence of either House or Committees of either House 13a Misconduct of strangers - -- -- -- - 132 Misconduct of counsel - -- -- -- - 133 Misbehaviour on the part of witnesses - - - - - -133 Disobedience to Rules or Orders of either House - - - - - 134 Disobedience to general rules or orders of either House - - - 134 Disobedience to particular orders of either House - - - - 135 Table of Contents xi PAGE Disobedience to Orders of Committees ------ 135 Abuse of the Right of Petition ------- 136 Presenting Forged, Falsified or Fabricated Documents to either House or Committees of either House - - - - - - - -137 Conspiracy to Deceive either House or Committees of either House - - 137 Abstracting or Altering Documents presented to the House - 137 Misconduct of Members or Officers of either House as such - - - 138 Misleading the House - - - - - - - - -138 Corruption in the execution of their office as Members - 138 Acceptance of fees by Members for professional services connected ¦with proceedings in Parliament ------- 138 Advocacy by Members of matters in which they have been concerned professionally - - - - - - - - - -139 Other forms of misconduct ------- - 140 Constructive Contempts - -- -- -- -- 140 Speeches or writings reflecting on either House - 140 Publication of false or perverted reports of debates, etc. - 141 Premature publication or disclosure of a committee s proceedings or evidence - -- -- -- -- - 143 Other indignities offered to either House ----- 143 Obstructing Members of either House in the Discharge of their Duty - 144 Arrest of Members - -- -- -- -- 144 Molestation of Members while in the execution of their duties - 144 Attempts by improper means to influence Members in their parlia- mentary conduct - -- -- -- -- 145 Acts tending indirectly to obstruct Members in the discharge of their duty - -- -- -- -- -- 147 Obstructing Officers of either House X49 Arrest of officers of either House ------- 149 Obstructing officers of either House while in the execution of their duty 150 Acts indirectly tending to obstruct officers of either House in the performance of their duty - - - - - - -151 Obstructing Witnesses - - - - - - - - - -153 Arrest of witnesses - - - - - - - - -152 Molestation of witnesses - -- -- -- - 153 Tampering with witnesses - -- -- -- - 153 Acts tending indirectly to deter witnesses from giving evidence - 153 Legal proceedings against witnesses - - - - - -154 Misconduct affecting Petitioners and Others Soliciting Business before either House - -- -- -- -- -- - 154 Disclosure of Information to Members by Constituents and others - - 155 Offences in Former Session - -- -- -- -- 156 B. Proceedings in Case of Contempt ________ 157 Proceedings upon Complaints by Members of Breach of Privilege - - 158 Proceedings upon complaints against strangers not founded upon documents - -- -- -- -- - 158 Complaints against strangers founded upon documents - - - 159 Hearing of counsel in cases of breach of privilege and contempt - 163 Consideration of reports of committees on questions of privilege 164 Complaints against Members ------ 166 Complaints against Members or officers of the other House - - 169 Proceedings arising from Alleged Disclosure following Secret Sessions - 169 Procedure where Breaches of Privilege or other Contempts are Reported by Committees - -- -- -- -- -- 170 Procedure on Petitions complaining of Matters affecting the Privileges of the House - 171 Complaints by Officers of either House ------- 173 CHAPTER XI JURISDICTION OF COURTS OF LAW IN MATTERS OF PRIVILEGE Scope of the Chapter - -- -- -- -- -- 174 The point of view of the two Houses ------- 175 The point of view of the courts - -- -- -- - 173 Reconciliation of the two points of view ------- 176 Cases Involving Interpretation of Parliamentary Privilege ----- 176 Early cases - -- -- -- -- -- - 176 xii Table of Contents PAGE Increasing tendency of courts to question parliamentary claims - - 177 Later leading cases - - - - - - - - - -182 Earlier Theories on Parliamentary Law and Privilege - - - - - -186 Legislative and judicial jurisdiction of Parliament - - - - - 186 X. The status of the courts -------- - 188 2. Judicial knowledge of the Lex et consuetudo parliamenti - - - 189 3. Declarations as to privilege by either House ----- 191 Limits of Exclusive Privilege Jurisdiction - - - - - - - -192 Direct and Incidental raising of the issue ----- 192 The test of necessity for discharge of function - - - - - -194 General Conclusions - -196 PART II PROCEEDINGS IN PARLIAMENT: PUBLIC BUSINESS CHAPTER XII CONTENT AND SOURCES OF PARLIAMENTARY PROCEDURE Introductory - -- -- -- -- -- -- 201 Written and unwritten procedure - -- -- -- -- 203 The kinds of authority on which the rules of procedure are based - 204 Historical relation between practice and the Standing Orders - 209 CHAPTER XIII MACHINERY OF PARLIAMENT : OFFICERS, RECORDS AND PAPERS I. Palace of Westminster 210 General Arrangements - - - - - - - - - - 210 Chambers of the Two Houses - -- -- -- - 212 Places of Members - 213 Attendance of Members --------- - 214 Leave of absence - - 215 Access to the Houses of Parliament - ------- 216 Admission of Strangers - - - - - - - - - - 216 Intrusion of strangers into the chamber ----- 217 Exclusion of strangers from the galleries ----- 218 Withdrawal of strangers during a division - - - - - 219 Misconduct of strangers in galleries - - - - - -219 a. The Officers of the Two Houses - - - - - - - - -219 The Officers of the Lords - 219 The Lord Chancellor - - - - - - - - -219 Deputy Speakers - 220 Chairman of Committees - -- -- -- - 220 Deputy Chairmen of Committees ------- 220 Permanent officers of the Lords ------- 220 Offices under the Clerk of the Parliaments ----- 221 The Librarian - 222 The Gentleman Usher of the Black Rod ----- 222 The Serjeant-at-Arms -------- - 223 Shorthand writer : Lords and Commons - 223 The Officers of the Commons- - -- -- -- - 223 The Speaker of the House of Commons ----- 223 (1) The Speaker as representative of the House of Commons - 223 (2) The Speaker as presiding officer of the House of Commons - 22s Deputy Speaker in the Commons (S.O. No. 105) - - - - 228 The Chairman of Ways and Means ------ 229 Deputy Chairman of Ways and Means - - - - - -231 Temporary Chairmen --------- 231 Table of Contents xiii PAGE Principal permanent officers of the Commons - - - - - 231 The Commission for Regulating the Offices of the House of Commons 234 Departments in the House of Commons ------ 334 The Staff Board - -- -- -- -- - 336 The Comptroller and Auditor General ------ 337 The Parliamentary Commissioner for Administration - - - - 337 3. Party Machinery in Parliament - -- -- -- -- 337 Changes in procedure effected by party system ----- 337 The official opposition - -- -- -- -- - 338 Leader of the House of Commons -------- 339 Constitution of party machinery - -- -- -- - 339 Duties of whips - -- -- -- -- -- 340 In the Lords - -- -- -- -- -- 340 4. Parliamentary Papers and Publications ------- 341 A. Papers dealing with Daily Business of the two Houses - 241 (1) House of Lords - -- -- -- -- 241 (2) House of Commons - -- -- -- - 343 (3) The official reports of debates in the Lords and Commons - 248 B. Papers presented to Parliament ------- 349 Presentation of papers - - - - - - - - 251 Distribution of papers - -- -- -- - 252 CHAPTER XIV A NEW PARLIAMENT AND OPENING AND CLOSE OF SESSION Parliamentary and Sessional Periods --------- 354 Summons of Parliament ---------- 254 Dissolution of Parliament - -- -- -- -- 255 Prorogation and adjournment --------- 255 Meeting of a New Parliament ---------- 258 Commons attend in the House of Peers ------- 259 Proceedings in the Lords—oaths - -- -- -- - 259 Election of a Speaker by the Commons ------- 259 Oath in the Commons - -- -- -- -- - 262 Opening of New Session ----------- 265 Opening by Queen in person --------- 266 Opening by commission ---------- 266 Report of Queen s Speech - -- -- -- -- 267 Business taken before consideration of Queen s speech - 267 Address in reply to Queen s speech -------- 268 Proceedings on Prorogation of Parliament ------- - 369 CHAPTER XV ARRANGEMENT OF SESSIONAL BUSINESS House of Lords - -- -- -- -- -- - 270 House of Commons ------------ 270 Main Varieties of Public Business - -- -- -- -- 370 (1) Substantive motions - -- -- -- -- 271 (2) Motions for the adjournment of the House ----- 271 (3) Financial business ---------- 271 (4) Bills - --......---271 Length of a Session ------------ 272 Control of the Time of the Session ------- - 272 Times at which the House normally sits - -- -- -- - 273 Methods of prolonging sittings ---------- 274 Private Members Time - -- -- -- -- -- 275 Government Time --------- -- - 275 Manner of notifying weekly programme of government business - - 275 Business taken in government time ------- 276 Distribution of Time between Private Members, Opposition and Government - 284 xiv Table of Contents PAGE CHAPTER XVI A SITTING : GENERAL ARRANGEMENTS In the House of Lords - -- -- -- -- -- 286 Days and Times of Sitting - -- -- -- -- 286 Adjournment ----------- - 286 Quorum - -- -- -- -- -- - 287 In the House of Commons - -- -- -- -- - 287 Days and Hours of Sitting - -- -- -- -- 287 Extraordinary sittings and adjournments ----- 287 Hours of meeting --------- - 288 Rules for Closing the Sitting -------- - 289 1. When Business is not exempted from the ten o clock rule - - 290 2. When Business is exempted from the ten o clock rule - - 292 3. When the Sitting is suspended pursuant to S.O. No. 2 - - 294 Informal suspension of a Sitting ------- 294 Disposal of questions pending at moment of interruption - - 29S Examples of procedure on business pending at moment of inter- ruption ---------- - 296 Adjournment of the House, without question put - - - - 297 Adjournment on question - -- -- -- - 298 Quorum of the House - -- -- -- -- - 298 Count of the House - 299 Arrangement for distributing the time of the sitting ----- 301 Differences between first four days of week and Friday - - - 301 Time-limits for certain business ------- 301 Incidental interruptions - -- -- -- - 302 Proceedings in Secret Session -------- - 303 CHAPTER XVII ORDER OF ITEMS OF BUSINESS IN PROGRAMME OF SITTING Arrangement of Business in the House of Lords ------ 303 Order of Business ---------- - 305 Arrangement of business in the House of Commons - - - - - - 311 Difference in order of business between Friday and other days - 311 Order of Business ---------- - 312 1. Prayers ----------- - 313 2. Business taken immediately after Prayers - - - - - - 313 (x) Report of Queen s answers to addresses - - - - 313 (2) Formal Communications by Mr. Speaker - - - - 314 (3) Motions for new writs ------- - 314 (4) _ Private Business -------- - 315 Notice paper of private business ------- 315 Time for taking unopposed private business ----- 316 Time for taking opposed private business - - - - - 317 (5) Presentation of Public Petitions ------ 318 (6) Motions for unopposed returns - - - - - -319 3. Questions - -- -- -- -- -- 319 (1) Questions for Oral Answer ------- 319 Time for asking questions - -- -- -- - 319 Notice of questions - -- -- -- -- 320 Speaker s control of questions ------- 321 Limitation of number of oral questions ------ 322 Persons to whom questions may be addressed ... - 322 Rules of order regarding forms and contents of Questions - - 323 Manner of asking questions ------- - 329 (2) Answers to Questions (written and oral) ----- 329 (3) Private Notice Questions ------- 330 4. Business Taken After Questions ------- 331 (x) Ministerial Statements ------- - 331 (2) Introduction of new Members ------ 332 (3) Proposals to move the Adjournment of the House under S.O. No. 9 ----------- 334 (4) Ceremonial speeches - -- -- -- - 335 (5) Giving notice of motions and holding of ballot - 335 Table of Contents xv PAGE (6) Personal explanations ------- - 338 (7) Consideration of Lords amendments or message - - - 340 (8) Raising of a matter of privilege ------ 340 5. Business taken At the Commencement of Public Business - - 344 (1) Presentation of public bills under S.O. No. 37 - - - 345 (2) Government motions regulating the business and sittings of the House - -- -- -- -- -- 346 (3) Motions for leave to bring in bills, and for nomination of select committees under S.O. No. 13------ - 347 6. Privilege Motions Admitting of Notice ------ 348 7. Orders of the Day and Notices of Motions ----- 349 Reading of the orders of the day ------- 349 Procedure upon orders of the day ------- 350 Deferment of orders and motions - - - - - - -351 Procedure on notices of motions ------- 35a Unexpected ending of business and dropped orders - - - 35a Superseded orders - - - - - - - - - 354 Renewal of notices of motions ------- 354 Transaction of Business as a matter of course - 354 8. Business Motions under Standing Order No. 3(2) - 354 9. Business Exempted under S.O.s No.s 3(1) and 4 (Proceedings on Statutory Instruments, Etc.)- - -- -- -- -- 354 ro. Adjournment Motions under S.O. No. 1(7) - - - - - 355 General restrictions on motions for the adjournment of the House - 356 CHAPTER XVIII THE PROCESS OF DEBATE, BY MOTION, QUESTION AND DECISION Question, the central point of debate ------- 338 A. Motions - -- -- -- -- -- -- 359 Rules regulating requirement of notice - - - - - - - 359 Rules governing subject-matter of motions - - - - - -361 Alterations in the terms of question from terms of motion - - - - 367 Moving of motions ---------- - 367 B. Questions ------------ - 368 Proposal of question upon a motion ------- 368 Withdrawal of motions --------- - 368 Methods of superseding question - -- -- -- - 369 Complicated questions ---------- 373 Putting of question at close of debate ------- 373 Orders and resolutions --------- - 375 C. Amendments to Questions, and Amendments to Proposed Amendments - 379 Object of an amendment and effect on debate ------ 379 Notice of amendments to motions ------- - 380 Order in moving amendments - -- -- -- - 380 Questions proposed on amendments ------- 380 Rules with respect to form and content of amendments - - - - 381 Amendments to proposed amendments ------- 384 D. Divisions ------------ - 384 Procedure on a division in the Lords 385 Proxies (Lords) - -- -- -- -- -- 387 Protests (House of Lords) - -- -- -- -- 387 Divisions in the Commons - . 3®® Irregularities discovered at the time of a division ----- 390 Errors discovered after a division - -- -- -- - 391 Publication of division lists - -- -- -- -- 393 Withdrawal of strangers --------- - 393 Voting without hearing question put ------- 394 Pairs - -- -- -- -- -- -- 394 Casting vote of the Speaker - -- -- -- -- 395 Casting vote of chairman in committee of whole house - - - - 397 Speaker voting in committee --------- 398 Canvass for votes by a Member - -- -- -- - 398 E. Personal pecuniary interest - -- -- -- -- 398 xvi Table of Contents PAGE CHAPTER XIX maintenance of order during debate 1. Rules Governing the Time and Manner of Speaking ----- 404 Manner of speaking - -- -- -- -- - 404 Precedence in speaking ---------- 406 Restriction of speeches ---------- 408 2. Rules Governing the Contents of Speeches ------- 411 Summary of rules ----------- 411 Relevancy in debate - - - - - - - - - -411 Reference to prior debates - -- -- -- -- 413 Reflecting upon votes of the House ----- --- 414 Allusions to debates in the other House of the current session - - - 414 References to the Queen in debate -------- 415 Words against Parliament, or either House ------ 416 Matters pending judicial decision - -- -- -- - 416 Discussion of a capital sentence - -- -- -- - 417 Reflections on the Sovereign, etc. - -- -- -- - 417 Personal allusions and unparliamentary expressions ----- 418 Words of heat ---------- 420 Citing documents not before the House ------- 421 3. Rules of Behaviour for Members not Speaking ------ 422 Members to keep their places --------- 422 Crossing before Members speaking -------- 423 Reading of books, etc. - -- -- -- -- - 423 Silence ------------- 423 Hissing or interruption ---------- 423 4. Powers of the Chair to Enforce Order -------- 424 Authority of Speaker in matters of order ------- 424 Dual source of modern power to punish disorder ----- 425 Disciplinary powers of Speaker under ancient usage ----- 425 Disciplinary powers under standing order ------ 427 Right of Members to direct the attention of the Chair to supposed breaches of order - -- -- -- -- -- 430 Proceedings upon the naming of a Member - - - - - -431 Misbehaviour in the lobbies - -- -- -- -- 433 Appendix of unparliamentary expressions ------- - 434 CHAPTER XX METHODS OF CURTAILING DEBATE Obstruction by Prolongation of Debate - -- -- -- - 435 Multiplication of speeches - - - - - - - - -435 Multiplication of amendments - -- -- -- - 436 Proceedings akin to closure - -- -- -- -- 437 1. Closure of Debate - -- -- -- -- -- 438 The ordinary closure - -- -- -- -- - 438 Closure upon the words of a clause or schedule - 439 Closure at moment of interruption -------- 440 2. The Selection of Amendments - -- -- -- -- 441 3. Allocation of Time Orders ---------- 443 Procedure on allocation of time orders - - - - - - _ 443 Usual provisions made under allocation of time orders - - - - 445 Other powers conferred by orders ------- - 448 Orders in case of bills rejected by Lords ------- 449 Voluntary arrangements in place of allocation of time orders - - - 451 List of allocation of time orders - - - - - - - -451 CHAPTER XXI PROCEEDINGS OF PARLIAMENT IN PASSING PUBLIC niiTg Public and private bills Where bills originate - 453 - 453 Table of Contents xvii PAGE I. Proceedings in the House of Lords - - - - - - - 455 Introduction and First Reading - -- -- -- - 455 Introduction without notice -------- 455 Introduction after notice - -- -- -- - 45g First reading - -- -- -- -- - 456 Second Reading - -- -- -- -- -- 458 Methods of opposition to second reading ----- 458 Second reading agreed to with resolution ----- 460 Counsel heard - -- -- -- -- - 460 Commitment - -- -- -- -- -- 460 Committee negatived - -- -- -- -- 460 Order of commitment discharged ------- 461 Bill referred to select or joint committee ----- 46! Consolidation bills - -- -- -- -- 462 Instructions ----------- 462 Committee Stage (Committee of the whole House) ----- 463 Amendments - -- -- -- -- - 463 Proceedings in committee - -- -- -- - 464 Report ------------ - 465 Amendments on report - -- -- -- - 466 Recommitment - -- -- -- -- -- 466 Third Reading - -- -- -- -- -- 467 Opposition to third reading -------- 467 Amendments on third reading ------- 467 Further proceedings after third reading ------ 467 Passing of bill - -- -- -- -- - 468 Privilege amendments --------- 468 Bill sent to the Commons - -- -- -- - 468 Consideration of Commons Amendments, etc. - - - - 469 II. Proceedings in the House of Commons ------- 469 Introduction and First Reading - -- -- -- - 469 Bills brought in upon an order of the House ----- 469 (1) Bills preceded by certain preliminary proceedings - - 469 (2) Bills ordered in without any preliminary proceedings - 471 Method of presentation of bills upon order ----- 473 Bills presented without an order (under S.O. No. 37 (1)) - - 473 Bills brought from the Lords ------- 474 First reading and printing of bills ------- 474 Appointment of second reading ------- 475 Preparation of bills - -- -- -- -- 475 Examination of a bill - -- -- -- -- 477 Printing of a bill before second reading ------ 482 Alterations in a bill - -- -- -- -- 482 Bills withdrawn and other bills presented ----- 482 Synopsis of stages of a bill ------ - 483 Second Reading - -- -- -- -- • 485 Second reading moved --------- 485 Amendments to question for second reading ----- 486 Questions on amendments proposed on second (or third) reading - 489 Bills dropped - -- -- -- -- - 489 Proceedings on bill null and void ------- 489 Counsel ordered ---------- 489 Bills referred to a second reading committee ----- 490 Scottish bills referred or committed on order for second reading - 491 Committal - -- -- -- -- -- - 491 Exceptions to general practice ------- 491 Bills withdrawn after committal ------- 492 Distribution of bills committed to standing committees - - - 492 Transfer of bill from standing committee to committee of the whole House or select committee, and vice versa ----- 493 Functions of a committee on a bill ------ 494 Commencement of committee stage ------ 495 Instructions- - - . - - - - - - - 49 Application of instruction to recommitted bill - 5°3 Procedure on instructions - - _ - - - - - 504 Proceedings in Committee of the whole House ----- 505 Order in which bill is considered ------- 505 Postponement of preamble -------- 505 Notice of amendments in committee - - - - - - 505 xvüi Table of Contents PAGE Clause under consideration ---- - 5o6 Amendments of which notice has been given ----- 5o6 Amendments of which no notice has been given - - - - S07 Withdrawal of amendments ------- - S07 Order in which amendments are taken ------ S07 Admissible amendments - -- -- -- - S07 Inadmissible amendments - . ~ Amendment to leave out subsection of a clause - - - - S13 Amendment ruled out of order after discussion begun - - - 513 Proceedings upon italicized words and privilege amendments - - 514 Division of clauses - -- -- -- -- 515 Transfer of clauses - -- -- -- -- 515 Postponement of clauses - - - - - - - 515 Clauses received pursuant to instructions - - - - - 516 Question for clause standing part of a bill - - - - - 516 New clauses ----------- 517 Schedules and new schedules - - - - - - - 517 Consolidation of bills - - - - - - - - - 518 Division of bills - - - - - - - - - - 518 Preamble - -- -- -- -- -- 519 Title.........- - - 519 Report of Progress - -- -- -- -- 519 When committee make no report ------- 520 Bills committed pro forma - - - _ - - - - - 520 Proceedings of committee not known until reported - - - 521 Report of Bill - -- -- -- -- -- 521 Close of committee proceedings and report of bill - - - - 521 Proceedings on report - ------ - 522 Reprinting of bills - ------ - 522 Consideration of Bill, as Amended - - - - - - - -523 Order for consideration read ------- - 524 Order in which bill is considered ------- 524 New clauses - -- -- -- -- - 524 Amendments to bill - - - - - - - - - 525 New schedules and schedules ------- 526 Amendment of title - - - - - - - - - 526 Inadmissible amendments - -- -- -- - 526 Irregularities in committee noticed on report ----- 526 Discontinuance of engrossment ------- 527 Conclusion of consideration stage ------- 527 Consideration stage taken in standing committee - - - - 527 Recommittal of Bill - -- -- -- -- - 528 Procedure under S.O. No. 53 - -- -- -- 529 Partial recommittal - -- -- -- -- 529 Further recommittal - -- -- -- -- 529 Recommittal before, or on, third reading ----- 530 Report of recommitted bill ------- - 530 Third Reading - -- -- -- -- -- 531 Debate on third reading - -- -- -- - 331 Amendments on third reading - - - - - - -531 Bill passed ---------- - 532 Bill not to be altered otherwise than by amendment - 532 Communication between the two Houses ----- 533 Consideration of Lords Amendments - - - - - - - 533 Time for considering Lords amendments ----- 333 Proceedings on consideration of Lords amendments - 534 Stages in process of securing agreement between the two Houses - 535 Bill originating in the Lords ------- - 541 III. General matter relating to the passing of public bills - 542 Proceeding on hybrid bills - 542 Practice with regard to bills rejected ------ 546 Proposals for suspending or resuming bills ----- 349 Endorsement of Bills - -- -- -- -- - 549 Royal Assent 549 Proceedings on royal assent - - - - - - _ -551 Bills Passed with Unusual Expedition - - - - - - -552 In the House of Lords -------- - 552 In the House of Commons - -- -- -- - 533 Table of Contents Procedure under the Parliament Acts, 1911 and 1949 Bills other than money bills - Subsidiary Points in connection with Legislative Procedure Printing and promulgation of statutes - Commencement of act ------ Informalities in bills ------ Informalities in the agreement of both Houses Informalities in the royal assent - - - - CHAPTER XXII DELEGATED LEGISLATION Introductory - -- -- -- -- -- -- 56o Statutory instruments, etc. - -- -- -- -- - 561 Parliamentary control - 564 Laying before Parliament - -- -- -- -- 565 The affirmative procedure - 567 The negative procedure - 568 Scope of debate - -- -- -- -- -- 569 Time limits ----------- - 570 Special Orders Committee - -- -- -- -- 571 Select Committee on Statutory Instruments ------ 572 Delegation in Church of England matters ------- - 573 CHAPTER XXIII FORMAL COMMUNICATIONS BETWEEN CROWN AND PARLIAMENT AND BETWEEN LORDS AND COMMONS 1. Communications between Crown and Parliament - The Queen s presence in Parliament ------ Communications from the Crown to Parliament - - - - - Communications by messages under the sign manual - Other messages - -- -- -- -- - Acknowledgment of messages from the Crown - Communications to the Crown originating in Parliament - Addresses to the Crown - Mode of presentation of Addresses ------- Answers to Addresses - -- -- -- -- Messages to the Royal Family ------- 2. Communications between the Lords and the Commons - Messages ----------- CHAPTER XXIV THE SYSTEM OF COMMITTEES X. Committees of the whole House - _ - - - - - - - - 591 Committees of the whole House in the Lords ------ 592 Committees of the whole House in the Commons ----- 593 2. Standing Committees ----------- 598 Appointment of standing committees ------- 598 Constitution of standing committees 598 Precedence of bills committed to a standing committee - - - - 602 Sittings of standing committees - -- -- -- - 602 Procedure in standing committees ------- - 606 Allocation of time orders - -- -- -- -- 613 Records of proceedings in standing committees - - - - - 614 3. Select Committees - -- -- -- -- -- 615 Appointment and nomination - -------- 615 Scope of deliberations or inquiries -------- 620 Instructions ----------- - 620 Proceedings in select committees - -- -- -- - 621 XIX PAGE 555 555 556 556 557 557 558 - 577 - 577 - 578 - 578 - 579 - 583 - 584 - 584 - 587 - 588 - 588 - 589 - 589 xx Table of Contents PAGE Witnesses ------------ 628 Minutes of evidence ---------- 632 Charges made against members in committees ------ 635 Documents presented to select committees ------ 635 Admission of strangers - - - - - - - - - - 635 Sub-committees - -- -- -- -- -- 636 Expert assistance and consultation ------- - 638 Reports of select committees - -- -- -- -- 639 Procedure in select committees on public bills ------ 649 Sessional committees - - - - - - - - - -651 Sessional committees in the Lords ------- - 651 Sessional committees in the Commons ------- 652 4. Joint Committees of Lords and Commons ------- 658 Appointment of joint committees - -- -- -- - 658 Nomination of members of joint committees ------ 660 Powers of joint committees - -- -- -- -- 661 Sittings and procedure of joint committees ------ 662 Report of a joint committee - -- -- -- -- 663 Sessional joint committee - -- -- -- -- 664 Communications between committees of both Houses - 665 CHAPTER XXV WITNESSES AND PARLIAMENT Mode of Securing Attendance ---------- 666 Summons of witnesses by the Lords ------- 666 Peers, as witnesses, before the Lords ------- 666 Summons of witnesses by the Commons ------- 666 Witnesses absconding - -- -- -- -- - 667 Attendance of Members, how secured ------- 667 Attendance of Members of the other House ------ 668 Officers of either House --------- - 669 Peers, not being Lords of Parliament ------- 669 _ Inquiry to be previously ordered - -- -- -- - 670 Examination, Expenses and Protection of Witnesses ------ 670 Examination of witnesses in the Lords ------- 670 Oaths administered by Lords committee ------- 670 Administration of oaths by Commons committees - - - - - 671 Examination of witnesses at the bar - - - - - - -671 Members, Lords of Parliament, etc. ------- 672 Examination of witnesses before select committees ----- 672 Expenses of witnesses - -- -- -- -- - 674 Protection of witnesses --------- - 675 CHAPTER XXVI FINANCIAL PROCEDURE—INTRODUCTORY General Plan of Chapters on Finance - -- -- -- - 676 Financial Relations Between the Crown and Parliament ----- 676 Cycle of Financial Business - - 677 1. Before the commencement of the financial year ----- 678 2. Business done during the financial year ------ 678 3. Business done after the end of the financial year - - - - 679 CHAPTER XXVII GENERAL RULES OF FINANCIAL PROCEDURE Scope of Financial Procedure - -- -- -- -- - 681 Charges upon the public revenue - - - - - - - - 682 Charges upon the people - -- -- -- -- 682 Limitation of the scope of financial procedure ------ 682 Table of Contents xxi PAGE General Rules of Financial Procedure of the Commons ----- 683 Rule i. Legislative authorization and appropriation of charges - - 683 Rule 2. The financial initiative of the Crown ------ 687 Rule 3. Preliminary consideration of resolutions ----- 689 Rule 4. Intervals between stages of financial legislation - - - - 690 Enforcement of rules of financial procedure ------ 690 Relaxation of financial rules in urgent cases - - - - - -691 Limited scope of the financial standing orders ------ 691 Application to Amendments of Rules Regulating Financial Procedure - - - 691 Disallowance of amendments infringing the financial initiative of the Crown 692 The Royal demand or recommendation fixes the limits of a charge - - 692 Stage of financial resolution which governs bill ----- 697 CHAPTER XXVIII EXPENDITURE : SUPPLY Application to Ordinary Annual Expenditure of the General Rules of Financial Procedure - -- -- -- -- -- -- 699 A. The Estimates ----------- - 699 Different Kinds of Estimates --- _____ 699 1. Ordinary Annual Estimates (Main Estimates) ----- 700 Presentation and publication of estimates ----- 700 Form of the estimates --------- 700 The contents of the estimates - - - - - - -7oi Token votes and sub-heads -------- 703 Revised estimates - -- -- -- -- 703 2. Votes on Account - -- -- -- -- - 703 Votes on account before a dissolution ------ 704 3. Supplementary Estimates --------- 705 (1) Supplementary estimates due to revealed insufficiencies - - 705 (2) Supplementary estimates due to decisions of policy - - - 706 Token votes (supplementary) ------- 707 Supplementary not taken before main estimate - - - - 708 4. Excess Votes - -- -- -- -- -- 708 Procedure on excess votes - -- -- -- - 708 5. Votes of Credit - -- -- -- -- - 709 6. Exceptional Grants ---------- 709 B. The Voting of Supply - -- -- -- -- - 711 Action of the Commons on royal demand for supply - - - 711 Allotted days and supply guillotines - - - - - -711 Procedure under S.O. No. 18 ------- 711 Procedure on the Business of Supply ------ 716 Notice of estimates to be considered ------ 716 Form of supply resolutions -------- 717 Order in which votes may be moved ------ 717 General rules of procedure on Supply - - - - - -718 Relevancy in debate - - - - - - - - -721 C. Bills Authorizing Grants of Supply - -- -- -- - 727 Consolidated Fund bills - -- -- -- - 727 The Appropriation Act - -- -- -- - 728 Authorization of expenditure by the Appropriation Act without specific legal sanction - -- -- -- - 730 Royal assent to bills of aids and supplies - 732 CHAPTER XXIX EXPENDITURE : FINANCIAL RESOLUTIONS Application to new expenditure of the general rules of financial procedure - - 733 Arrangement of chapter - -- -- -- - 733 Forms of proceeding for the initiation of expenditure - 734 A. Varieties of Expenditure Initiated by Financial Resolutions - - - - 735 Tests used to determine whether expenditure involves a charge 735 xxii Table of Contents PAGE Matters Requiring the Queen s Recommendation - - - - - 737 x. Moneys to be provided by Parliament ----- 737 2. Charges upon the Consolidated Fund ----- 738 3. Charges upon the National Loans Fund ----- 738 4. Charges upon rates which attract grants from the Consolidated Fund...........739 5. Substitution of stamp duties involving possible increase in par- ticular cases - -- -- -- -- - 739 6. Remission or compounding of debts to Crown - - - - 739 7. Increase of charge by extension of time ----- 740 8. Specific authority for charge previously authorized only by Appro- priation Act - -- -- -- -- - 741 9. Increase of charge by extension of purposes, etc. - 74* 10. Increase of amount of charge ------- 743 xi. Alteration of incidence of charge ------ 74z 12. Variation of Appropriation and diversion of revenue - - _ - 742 Matters involving Money which do not require the Queen s Recommendation 744 1. Provisions involving the reduction of charges - - - - 744 2. Charges upon rates, etc. -------- 745 3. Charges on public funds other than the Consolidated Fund or the National Loans Fund -------- 745 4. Expenditure covered by existing statutory authority - - - 746 5. Exemption from penalties due to Crown ----- 747 6. Post Office contracts - -- -- -- - 747 7. Implying but not imposing a charge ----- 748 Methods of Advocating Expenditure without the Queen s Recommendation 748 1. Addresses praying for the issue of public money - 748 2. Proposal of expenditure by methods not directly effective - 749 B. Procedure on Financial Resolutions - -- -- -- - 749 1. Methods of Signifying the Exercise of the Royal Initiative - - - 749 (1) Demands by message from the Queen under the sign manual - 749 (2) Signification of Queen s recommendation by a Minister of the Crown - -- -- -- -- - 750 2. Proceedings on Financial Resolutions ------ 750 C. Procedure on Bills Sanctioning Expenditure ------ 752 Presentation under S.O. No. 91------ - 753 Italicized provisions - -- -- -- -- 752 Interpretation of main object in relation to a bill _ - - 754 Procedure on Stages of Bills sanctioning Expenditure ... - 754 Amendments in committee (or on Report) ----- 754 Application of rule to restoration of charges - - - - -755 Restrictive effect of terms of Money Resolution - - - - 755 Related amendments in committee and on report - - - - 756 CHAPTER XXX WAYS AND MEANS Application to ways and means of the general rules of financial procedure - - 757 Arrangement of chapter ----- 757 A. The Scope of Ways and Means -------- - 758 Tests for Determining whether matters involve Charges upon the People 758 Matters Initiated by Ways and Means Resolutions - - - - - 759 1. Taxation - -- -- -- -- - 759 2. Repeal or reduction of alleviations of taxation - - - - 760 3. Delegation of taxing powers within the United Kingdom - - 760 4. Grant of borrowing powers - - - - - - -761 5. Payments into the Consolidated Fund or the National Loans Fund 761 Matters, akin to Charges upon the People, not initiated by Ways and Means Resolutions - -- -- -- -- -- 761 1. Local receipts - -- -- -- -- 761 2. Alleviation of taxation - -- -- -- - 762 3. Levies upon an industry for its own purposes - - - - 762 4. Charges imposed for services rendered by departments - - 763 5. Provisions authorized by existing law ----- 764 6. The delegation of taxing powers to Parliaments outside the United Kingdom - -- -- -- - 764 7- Charges not effective till applied by subsequent legislation - 765 Table of Contents y iii _ , PAGE B. Procedure on the Business of Ways and Means ------ 765 General Rules of Procedure on Ways and Means Business - - - 765 Inclusion of several duties in one resolution ----- 766 Procedure on amendments - -- -- -- - 765 Financial Statement and Budget - -- -- -- - 767 Special procedure on budget resolutions ----- 768 Provisional collection of taxes 76p C. Finance Bills and other Bills Founded on Ways and Means Resolutions - 770 Introduction of Bills - -- -- -- -- - 770 Relation of Bills to Ways and Means Resolutions ----- 771 Bills founded on Ways and Means Resolutions - 771 Bills with italics --------- - 773 Scope of Finance Bills ---------- 77a Debate on Main Stages ---------- 773 Amendments in committee and on report ----- 773 Rules forbidding the increase of charges ----- 774 Charge in bill less than that authorized by resolution - - - 774 Provisions reducing existing charges ------ 773 Third reading of Finance Bill, etc. ----- . 775 CHAPTER XXXI THE HOUSE OF LORDS AND CHARGES The Financial Functions of the Lords - - - - -- -- 776 Concurrence in supplies and taxation ------ 776 Insistence by the Lords on the financial powers reserved to them - 776 Restrictions under Constitutional Usage - -- -- -- - 777 Basis of modern practice with respect to privilege - - - - 777 Local rates ---------- - 777 General but not public funds not within the scope of privilege - 778 Delegation of taxing powers outside the United Kingdom - - 778 Actions which infringe privilege ------- 778 I. Restrictions on the Lords right to initiate bills - - - - 779 Relaxation of privilege by standing order ----- 780 Expedients for avoiding formal infringement of privilege in Lords bills - -- -- -- -- -- 780 z. Restrictions on the Lords* right to amend bills ----- 783 (x) Lords amendments to bills of aids and supplies - 783 Provisions tacked to bills of aids and supplies - - 783 (3) Lords amendments to other bills infringing privilege - - 783 Relaxation of privilege by standing order in the case of Lords amendments -------- - 786 Expedients for avoiding privilege in Lords amendments - 786 3. Right to reject bills retained by Lords ------ 787 Adoption of the practice of an annual inclusive finance bill - - 787 Rejection by Lords of separate financial provisions in non-financial bills - 787 Limitations Imposed by the Parliament Act 1911 ------ 788 Definition of Money Bill - -- -- -- - 788 Procedure in passing Money Bill ------- 788 Money Bills under Parliament Act and bills of aids and supplies 789 Money Bill under Parliament Act and in ordinary parliamentary phraseology - -- -- -- -- - 790 CHAPTER XXXII PUBLIC PETITIONS Course of development of the form of petitioning ------ 793 i. Form of petitions - -- -- -- -- - 793 a. Character and substance of petitions ------ 795 3. Presentation of petitions --------- 798 Presentation of petitions to the Lords - -- -- -- - 799 Presentation of petitions to the Commons ------- 800 xxiv Table of Contents CHAPTER XXXIII PAGE REPRESENTATION IN EUROPEAN ASSEMBLIES Duty of Members of the United Kingdom Parliament- ----- 803 The Council of Europe - - - -- -- -- -- 803 1. The Committee of Ministers - -- -- -- - 804 2. The Consultative Assembly - -- -- -- - 806 Western European Union - -- -- -- -- - 809 The Council............809 The Assembly - -- -- -- -- -- 810 North Atlantic Assembly - - - - - - - - - - - 812 PART III PROCEEDINGS IN PARLIAMENT : PRIVATE BUSINESS CHAPTER XXXIV PRELIMINARY VIEW OF PRIVATE BILLS Introductory - -- -- -- -- -- -- 817 Distinctive Character of Private Bills - -- -- -- - 817 History of private bills --------- - 8x8 Peculiarity of proceedings on private bills ------ 818 Legislative and judicial functions of Parliament ----- 819 Jurisdiction of the courts - -- -- -- -- 819 Principles by which Parliament is guided ------- 820 Private bills pass through same stages as public bills ----- 821 Difficulty in Determining Whether Certain Bills should be Public or Private - 821 Bills brought in by the government for local purposes, etc. - 823 Bills relating to cities and counties, etc. ------- 824 Bills applicable to several localities -------- 826 Bills relating to the administration of justice and various public jurisdictions in a definite area ---------- - 828 Bills concerning property owned by religious communities, colleges, etc. - 830 Bill concerning a government guarantee - - - - - - -831 Bills apparently similar respectively regarded as public and private - - 831 Public bills objected to on the ground that they should have been private or hybrid bills - -- -- -- -- -- 832 Private Bills objected to on the ground that they should have been Public Bills 834 Public Bills introduced vice Private Bills withdrawn ----- 836 Repeal of Public Acts by Private Bills - 836 Alternatives to proceeding by Private Bill ------- 838 (x) Amendments in the general law and adoptive acts - 838 (2) Provisional orders and certificates ------- 838 (3) Special procedure orders - -- -- -- - 839 (4) Private Legislation Procedure (Scotland) Act ----- 839 Proposals for Modification of Private Bill Procedure ------ 839 CHAPTER XXXV PRELIMINARY PROCEEDINGS IN BOTH HOUSES ON PRIVATE BILLS Soliciting and Deposit of Bills - -- -- -- -- 840 Content and form of bills - -- -- -- -- - 840 _ Model Clauses - -- -- -- -- -- 840 Standing Orders (Private Business) -------- - 841 Compliance before presentation of bill ------- 841 Table of Contents sxv PAGE Compliance after presentation of bill ------- 843 Compliance proved before the Examiners ------ 843 Personal Bills (H.C. 191 A, H.L.3) - -- -- -- -- 843 General List of Petitions (S.O. 194 (H.C.)) ------- 843 Memorials Complaining of Non-Compliance ------- 843 In respect of petitions for bills numbered in the general list _ - - 843 In respect of petitions for bills deposited after 37 November - - - 844 In respect of petitions for additional provisions, etc. ----- 844 Preparation of memorials - -- -- -- -- 844 Withdrawal of memorials - -- -- -- -- 844 Sittings of the Examiners ----------- 844 Notice of examination - -- -- -- -- - 844 Striking off and reinsertion of petitions (S.O.s 72, 106 (H.C.)) - - - 845 Statement of proofs - -- -- -- -- - 845 Formal proofs - -- -- -- -- -- 845 Proof by affidavit (S.O. 77 (H.C.), S.O. 80 (H.L.)) ----- 845 Unopposed cases ---------- - 84s Opposed cases ------- - 846 Attendance of witnesses --------- - 846 Hearing of parties on a memorial (S.O.s 75, 76 (H.C.), S.O.s 76, 77 (H.L.)) 846 Specific statements of non-compliance required ----- 846 Preliminary objections - -- -- -- -- - 846 Memorials subject to same rules as petitions ------ 847 Preliminary objections to allegations ------- 847 Objections on points affecting the public ------- 847 Questions of merits excluded -------- - 848 Decisions of the Examiners - - - -- -- -- - 848 Communication of Examiners decisions - - - - - - - 848 Special report from the Examiners (S.O. 79 (U.C.), S.O. 81 (ILL.)) - - 848 Standing Orders Committee (House of Commons) ------ 849 Examiners reports referred (S.O. 104 (U.C.)) - - - - - - 849 Examiners special reports referred (S.O. 104 (H.C.)) - 849 Proceedings of the Standing Orders Committee _ . ^5° Principles by which the Standing Orders Committee are guided - - 851 Standing orders dispensed with and leave given to parties to proceed- - 851 Standing orders not to be dispensed with- - - - - - -851 Decision of Standing Orders Committee objected to in the House - - 85a Special reports from Standing Orders Committee ----- 854 Other duties of Standing Orders Committee (S.O.s 105, 106 (H.C.)) - - 854 Committee of Selection (House of Commons) ------- 855 Supervision of Private Bills by Chairman of Committees and Chairman of Ways and Means ------------- 856 Supervision by the Lords Chairman and his counsel - 836 Copies of bills introduced into either House supplied to Lords Chairman - 836 Supervision by Chairman of Wravs and Means and Speaker s counsel- - 837 Division of Bills between the two Houses before Presentation (S.O. 81 (H.C.), S.O. 90 (H.L.))............858 Departures from Usual Procedure on Private Bills ------ 839 Petitions for bills deposited after time ------- 859 Petition for Additional Provision - -- -- -- -- 860 Withdrawal of Bills in Commons - -- -- -- -- 861 Parliamentary Agents - -- -- -- -- -- 86a Rules relating to Parliamentary Agents ------- 86a Registry of agents (S.O. 19a (H.C.)) _ - - - - - 863 Members and officers of the House disqualified as agents - 865 Unqualified persons not entitled to call themselves parliamentary agents - 863 Fees Payable on Private Bills - -- -- -- -- - 863 Hybrid bills ------------ 866 Collection of fees ----------- 866 Application ------------ 866 Taxation of Costs - -- -- -- -- -- - 866 Taxing officers - - 867 Lists of charges - -- -- -- -- -- 867 Applications for taxation - -- -- -- -- 867 Costs in both Houses taxed together ------- 867 Certificate to have the effect of a warrant to confess judgment - 868 Costs of provisional and special procedure orders ----- 868 xxvi Table of Contents PAGE CHAPTER XXXYI PETITIONS IN FAVOUR OF, AGAINST, OR RELATING TO PRIVATE BILLS IN THE HOUSE OF COMMONS ; AND THE COURT OF REFEREES Presentation and Withdrawal of Petitions (S.O.s 171, 171A, 172, 173, 219) - - 869 Petitions in Favour of Private Bills - -- -- -- -- 869 Petitions Against Private Bills - - - -- -- - - - 870 Petitions to be presented before a prescribed time (S.O.s 171 A, 217) - 870 Petitions to stand referred to committee on the bill and right of audience (S.O.s 126, 127, 217) --------- - 870 Petitions presented after time - - - - - - - - -871 Death of petitioners - -- -- -- -- - 871 Grounds of objection to be specified (S.O. 128) ----- 872 Locus Standi of Petitioners against Private Bills ------- 872 Court of Referees on Private Bills - -- -- -- -- 872 Constitution and duties (S.O.s 89, 90) - - - - - - - 872 Rules of procedure (S.O.s 91, 91A) - _ - - - - - - - 873 Notice by promoters of intention to object ------ 873 Manner of hearing locus standi cases - - - - - - - 874 Locus standi limited to points alleged in petition ----- 874 Practice of the court regarding locus standi cases ----- 875 Landowners locus standi - -- -- -- -- 875 Locus standi of bodies representing associations, etc. ----- 877 Locus standi on the ground of contingent damage ----- 878 Locus standi against bills affecting water and water supply - - - - 879 Locus standi against amalgamation bills ------- 879 Locus standi on the ground of competition (S.O. 92) ----- 879 Locus standi of frontagers against a tramway bill (S.O. 102) - - - 881 Locus standi of county and municipal authorities, etc. (S.O.s 96-101) - 881 Locus standi of consumers of gas and water ------ 882 Locus standi of shareholders, preference shareholders, and dissentients at a Wharncliffe meeting (S.O. 93) ------- 883 Locus standi of ratepayers and other persons represented - - - - 883 Locus standi against bills brought from the Lords ----- 884 Locus standi objected to on ground of want of precision or informality - 885 Locus standi and the filled-up bill ------- 886 Locus standi of petitioners against a consolidation bill ... - 887 Miscellaneous cases of locus standi -------- 887 Revision by the House of Decisions of Referees ------- 888 Petitioners against Private Bills committed to Specially Constituted Committees - 888 Private Bill Committees instructed by the House to hear certain Petitioners - 889 Petition specially referred by House to Private Bill Committee - - - 889 CHAPTER XXXVII PROCEEDINGS IN THE HOUSE OF COMMONS ON PRIVATE BILLS General - -- -- -- -- -- - 890 Giving of notices in connection with private business - 890 Private business - - - - - - - - - -891 Conduct of bills by Members ------- 891 Private bill registers (S.O. 192) ------- 892 I. Proceedings from Presentation to Committee Stage ----- 892 Presentation of Bill (S.O. 163) - -- -- -- - 892 Printing of private bills (S.O.s 38, 164, 164A, 168) - 892 Financial memorandum required in certain cases (S.O.s 169, 219) - 893 First reading (S.O. 166) - -- -- -- - 893 Second Reading - -- -- -- -- -- 896 Interval between first and second reading (S.O. 170) - 896 Notice of second reading (S.O. 198) ------ 897 Bill examined in Private Bill Oifice (S.O.s 196, 197) - 897 Provisions in private bills, or petitions for additional provision, im- posing charges --------- - 897 Provisions relating to land revenues of the Crown - - - - 898 Peers and charges upon the people in private bills - 899 Table of Contents xxvii PAGE Bills withdrawn and bills presented in lieu of bills withdrawn (S.O.s 74» 75, 214)..........899 Debate on second reading - -- -- -- - 899 Deferment of stages of private bill, etc., if opposed - 901 Stages taken by mistake ------- 901 Committal (S.O. 109) - -- -- -- -- - 902 Instructions ----------- - 902 Time for moving instructions ------- 902 Principles of instructions to Private Bill Committees - 903 Power of committee to make amendments ----- 903 S.O. 17s and its effect on instructions ------ 904 Mandatory instructions ------- 904 Permissive instructions --------- 908 Inadmissible instructions - -- -- -- - 909 Instructions to divide bills - -- -- -- - 911 Grouping of Bills and Nomination of Committees ----- 912 Committees on unopposed bills (S.O.s hi and 132) - - - 913 Committees on opposed bills (S.O.s 109-114) - - - - 91a Interval between committal of opposed private bill and sitting of committee (S.O. 177) - -- -- -- - 914 Departures from ordinary procedure in committal of private bills 914 Bills referred to specially constituted committees - - - - 915 Private bills committed to a joint committee ----- 916 Notice of first sitting of Committee on private bill (S.O. 199) - 919 Filled-up Bill to be Deposited (S.O.s 137, 200) - 919 Supervision by the Chairman of Ways and Means (S.O.s 82, 84, 85) - 919 Scrutiny by Public Departments - -- -- -- - 930 Deposit of bills with Greater London Council, etc. - 921 Amendments to conciliate interested parties ----- 921 Limits to such amendments before sitting of the committee - - 921 II. Committee Stage and Subsequent Proceedings ------ 922 Standing Orders relating to Committees on Opposed Bills - 922 Declaration of Members (S.O. 120) ------ 92a Quorum (S.O.s 121, 122) - -- -- -- - 922 Order in which bills are to be considered (S.O. 124) - - - 933 When opposed bills become unopposed (S.O. 131) - - - 924 Reference of petitions to committee (S.O. 126) - 924 Standing Orders relating to the Committee on Unopposed Bills - - 924 Member if interested not to vote (S.O. 133) ----- 924 Right of promoters to be heard (S.O. 134) ----- 924 Standing Orders relating to Committees on Bills whether Opposed or Un- opposed ----------- - 935 Method of deciding questions (S.O. 135) ----- 925 Copies of filled-up bill to be laid before Members (S.O. 137) - 923 Minutes of proceedings (S.O.s 138, 145) ----- 925 Proof of compliance with certain standing orders only (S.O. 139) - 925 Ministerial reports (S.O.s 144, 146, 147, 156 B, 158) - - - 926 Other documents referred to committee ----- 926 Agreements (S.O. 157) - - - - - - - 927 Standing Orders relating to Committees on certain kinds of Bills - - 927 Bills affecting level of roads and railway ; tramroad or tramway bills 927 Tramway bills - -- -- -- -- - 927 Bills affecting charities or educational foundations (S.O. 158) - - 928 Accommodation for workmen on works (S.O. 159) - 928 Compensation water (S.O. 160) ------- 928 Limits of burial ground, gas works, etc., to be defined (S.O. 161) - 929 Bills relating to water companies (S.O. 162) ------ 929 Application of money to be recited in local authorities bills (England and Wales) (S.O. 153) - -- -- -- - 929 Bills promoted by local authorities (S.O. 156) - 929 Bills affecting grants under Local Government Acts (S.O. 156B) - 930 Greater London Council (Money) bills (S.O.s 221-223) - - - 931 Proceedings in Committee - -- -- -- -- 931 (1) Committees on unopposed bills ------ 932 (2) Committees on opposed bills ------- 933 Proceedings on Private Bills before Specially Constituted Committees - 950 Report of Bill - 951 Every private bill as amended in committee to be printed and delivered (S.O.S 179,203)...... - 951 Table of Contents PAGE Bills withdrawn or referred to Examiner after report - - - 951 Recommittal of private bill - - - 952 Proceedings on and after report of private bill (S.O. 178) - - 953 Proceedings on Consideration and Third Reading ----- 955 Debate on consideration and third reading ----- 955 Amendments on consideration ------- 955 Bill ordered to be read the third time - - - - - - 955 Entry of amendments on consideration or third reading (S.O. 206) 955 Notice of third reading of private bill (S.O. 205) - - - - 956 Third reading of private bill (S.O. 184) ----- 957 Recommittal on third reading ------- 957 Queen s consent ---------- 957 Bill examined before being sent to the Lords (S.O. 207) - 957 Lords Amendments (S.O.s 88, 186, 208) ------ 957 Commons privileges infringed by the Lords ----- 959 General Provisions ----------- 959 Standing orders suspended - _- - - - - - - 959 Suspension of Bills till Following Session ------ 959 Further suspension of bills ------- - 960 CHAPTER XXXVIII PROCEEDINGS IN THE HOUSE OP LORDS ON PRIVATE AND PERSONAL BILLS, ROYAL ASSENT AND CLASSIFICATION OF ACTS Introductory ------------ - 961 (1) Private Bills - -- -- -- -- -- - 962 Proceedings before the Examiners (S.O.s 69-83) ----- 962 Standing Orders Committee (S.O.s 84-89) ------ 963 The Chairman of Committees -------- - 964 First reading (S.O. 98) ---------- 964 Petitions against private bills (S.O.s 101-103) ------ 964 Second reading - -- -- -- -- -- 964 Instructions ----------- - 965 Commitment- - -- -- -- -- -- 966 Committee of Selection (S.O. 95) - -- -- -- - 966 Select Committees on private bills ------- - 966 Select Committees ---------- - 967 Unopposed bills referred by the Chairman of Committees to a Select Committee - 969 Rejection of bill by Select Committee ------- 970 The Unopposed Committee - -- -- -- - 970 Committees on bills whether opposed or unopposed (S.O.s 123-130) - - 971 Recommitment of private bills - -- -- -- - 972 Deposit of amended bills (S.O. 147) ------- 972 Report stage ----------- - 972 Third reading --------- - 973 Proceedings after third reading - -- -- -- - 973 Commons amendments (S.O. 150) -------- 973 Withdrawal of bills - - 973 Greater London Council (Money) Bills (S.O.s 175-177) - - - - 974 Bills relating to Northern Ireland (S.O. 200) ------ 974 (2) Personal Bills (S.O.s 151-174) -------- - 974 Definition (S.O. 151) - - - - - - - - - - 974 Preliminary stages ---------- - 974 Proceedings of the Personal Bills Committee (S.O.s 166, 167) - - - 976 First reading of personal bill (S.O. 156) ------- 976 Proceedings after first reading (S.O.s 157, 162) ----- 976 Petitions against personal bills (S.O. 158) 976 Commitment of personal bills (S.O.S 159, 160, 161) - 976 Committees on personal bills -------- - 977 (3) Restitution, etc., Bills - -- -- -- -- - 977 Royal Assent - - 978 Classification of Private Acts - -- -- -- -- - 979 The present system - 979 Past systems 979 Table of Contents xxix PAGE CHAPTER XXXIX PROVISIONAL ORDERS AND CERTIFICATES: SPECIAL PROCEDURE ORDERS Introductory ---------- - 981 Scope of the Provisional Order and Special Procedure Order Systems - 983 Provisional order bills: enabling provisions - - - - - 984 Special procedure orders: enabling provisions ------ 985 Preliminary Proceedings : Provisional and Special Procedure Orders - - - 986 Procedure in Parliament on Bills for Confirming Provisional Orders - - - 986 First reading and reference to Examiners ------ 987 Second Reading - -- -- -- -- -- 987 Committee stage ---------- - 988 Amendments to confirming bills - -- -- -- - 989 Later stages ----------- - 991 Parliament Act - 991 Suspension of provisional order bills - - - - - - -991 Procedure in Parliament on Special Procedure Orders - - - - - -991 Presentation of orders - - - - - - - - - -991 Deposit of plans - -- -- -- -- -- 992 Petitions relating to orders - -- -- -- -- 993 Proceedings following Chairmen s report- ------ 994 Joint committee stage - -- -- -- -- - 995 Operation of orders - -- -- -- -- - 997 Procedure in Parliament on Bills to confirm Special Procedure Orders - - - 998 Bills to confirm orders amended by a joint committee - - - - 998 Bills to confirm orders which a joint committee has rejected - 998 Special Procedure Orders relating only to Scotland ------ 998 Procedure on orders before presentation ------- 999 Procedure on orders after presentation ------- 999 Fees and Taxation of Costs - -- -- -- -- - 1000 CHAPTER XL PRIVATE LEGISLATION PROCEDURE (SCOTLAND) Scope of Procedure Act - -- -- -- -- -- 1001 Private Legislation Affecting Scotland and Elsewhere ----- 1002 The General Orders - -- -- -- -- -- 1003 Application for a Provisional Order --------- 1003 Report by the Chairmen (Lords and Commons) ------ 1004 Procedure for Promotion of Substituted Bills ------- 1004 Proceedings before Examiner on Proposed Provisional Order - 1003 Issue of Provisional Order - 1006 Proceedings on Orders on which an Inquiry is held ------ 1006 Proceedings on Order on which no Inquiry is held ------ 1008 Procedure on Provisional Orders when modified ------- 1008 Procedure upon Bills to confirm Orders - -- -- -- - 1008 Procedure on Bills to confirm Orders on which no Inquiry has been held (S. 7) - 1009 Procedure on Bills to confirm Orders on which Inquiry has been held (S. 9) - 1009 Committal of Bill to a Joint Committee - -- -- -- - 1010 Subsequent Procedure on Bill in First House ------- 1010 Procedure in First House on Bills when no Joint Committee is Appointed - - 1010 Procedure in Second House upon Bills to confirm Order on which an Inquiry has been held - -- -- -- -- -- -- roii APPENDIX HOUSE OF COMMONS STANDING ORDERS RELATIVE TO PUBLIC BUSINESS Sittings of the House - -- -- -- -- -- IOi3 Arrangement of Public Business - -- -- -- -- 1017 Private Business - -- -- -- -- -- - 1017 Questions - 1018 Special Adjournment Motions ---------- 1019 Anticipation - -- -- -- -- -- -- 1020 xxx Table of Contents PAGB Seconders - 1020 Bringing in Bills and Nominating Select Committees at commencement of Public Business - -- -- -- -- -- -- 1021 Orders of the Day ------------ 1021 Motions for the Adjournment of the House ------- 1021 Supply and Ways and Means - -- -- -- -- - 1021 Order of the Day for Committee - -- -- -- -- 1924 Committees of the whole House - -- -- -- -- 1024 Order in the House ------------ 1024 Dilatory Motions - -- -- -- -- -- - 1025 Count of the House ------------ 1026 Closure of Debate - -- -- -- -- -- - 1026 Amendments ----------- 1027 Divisions - 1027 Public Bills - 1028 Standing Committees - 1031 Select Committees ------------ 1037 Public Accounts - 1038 Expenditure Committee - - - - - - - - - - -1038 Sittings of Committees - - - - - . - - - - -1038 Public Money ------------- 1039 Packet and Telegraphic Contracts - - - - - - - - -1039 Public Petitions - 1040 Deputy Speaker and Chairmen ---------- 1040 Members ------ X041 Witnesses - 1041 Strangers - 1041 Letters - 1042 Parliamentary Papers - 1042 Earlier Meeting of House ----------- 1043 index..................
adam_txt	Titel: Erskine May's "Treatise on the law, privileges, proceedings and usage of parliament" Autor: May, Erskine Jahr: 1971 TABLE OF CONTENTS PAGE Preface - -- -- -- . .y Table of Abbreviations ------ xxxi PART I CONSTITUTION, POWERS AND PRIVILEGES OF PARLIAMENT CHAPTER I THE CONSTITUENT PARTS OF PARLIAMENT PAGE Introductory - - -- -- -- - - -- -3 The Sovereign - -- -- -- -- -- -3 The House of Lords _ _ - 4 Expenses of Members of the House of Lords ------ 6 The House of Commons -----------7 Representation in the House of Commons 8 Payment of Members - -- -- -- -- - io Travelling expenses of Members - - - - - - - -13 Members' Fund - -- -- -- -- -- 15 Members' Contributory Pension Fund - -- -- -- 16 CHAPTER II ELECTIONS The Electorate - 17 Disqualification of electors - -- -- -- -- 17 Constituencies - -- -- -- -- --18 Registration of electors ----------20 Registration officers - - - - - - - - - -20 Postal and proxy voting - - - - - - - ' - - -21 The holding of elections - -- -- -- --23 Election Campaigns - -- -- -- -- - 22 New Writs - 23 Vacancies during a Session - -- -- -- -- 23 Period for presenting petitions - -- -- -- -24 Vacancy by peerage - -- -- -- -- - 24 Supersedeas to writs -25 Issue of Warrants by the Speaker during Adjournment or Recess - - 26 Appointment of Members to issue writs -------27 Manner of issue of writs - - 27 Return of Writs - -- -- -- -- -- - 27 Correction of error in return ---------27 Failure to make return to writ - -- -- -- - 28 Members returned for two places - -- -- -- -28 Double returns - -- -- -- -- -- 20 vir viii Table of Contents PAGE Trial of Controverted Elections - - - - - - -- -29 Former procedure -----------29 Present procedure - - - - - - - - - - -30 Proceedings of the House in matters of election - - - - 31 Proceedings of House upon determination of election trials - - 31 CHAPTER III DISQUALIFICATION FOB MEMBERSHIP OF EITHER HOUSE Di qualifications for Membership of the House of Lords ----- 33 Aliens ------------33 Persons under twenty-one - - - - - - - - 33 Bankruptcy - -- -- -- -- -33 Treason - .---34 Disqualification by sentence of expulsion ----- 34 Disqualifications for Membership of the House of Commons 34 Aliens ------------34 Persons under twenty-one - - - - - - - "35 Lunacy - -- -- -- - -- -35 Peers ------- - - - - - 36 Bankruptcy -----------37 Treason - -- -- -- -- --38 Other crimes - -- -- -- -- - 39 Corrupt practices at elections - -- -- --39 Clergy - -- -- -- -- --40 Returning officers ---------41 Petitioning candidates - - -- -- -- - 41 Disqualification of Certain Office-Holders --------41 General - -- -- -- -- -- 41 t. Non-Political Office - -- -- -- --42 Public Service Disqualification - -- -- --42 Disqualification by Particular Office ------ 44 Effect and Determination of Disqualification ----- 47 Jurisdiction of the Privy Council in Disqualification - - - 48 Penalties - -- -- -- - - --48 Amendment of House of Commons Disqualification Act, 1957- - 49 2. Political Office - -- -- -- -- -49 CHAPTER IV POWER AND JURISDICTION OF PARLIAMENT Extent of Legislative Authority of Parliament collectively - - - - 51 The provisions of the statute of Westminster, 1931 ----- s1 Extent of the Prerogatives of the Crown in Reference to Parliament - - - 53 Annual meeting of Parliament- - - - - - - - - 53 Summons - -- -- -- -- -- -34 Demise of the Crown - -- -- -- -- - 55 Causes of summons - -- -- -- -- - SS Prorogation ------------56 Effect of a prorogation ---------- 37 Meeting of Parliament accelerated or deferred by proclamation 57 Meeting of Parliament accelerated pursuant to statute 57 Meeting tor despatch of business - -- -- -- - 37 Adjournment- - 58 Dissolution - -- -- -- -- -- - 58 Other powers - -- -- -- -- --60 Rights and Functions of the House of Lords - -- -- -- 60 House of Lords as a court of judicature ------ - 60 Principal Power of the Commons - -- -- .--62 Acts of Attainder and Impeachments -----.---62 Impeachment by the Commons - -- -- -- -63 Bills of attainder - -- -- -- -- -- 63 Table of Contents ix PAGE CHAPTER V GENERAL VIEW OF THE PRIVILEGE OF PARLIAMENT What constitutes privilege -----------64 Collective and individual privileges of each House and of Members of each House 65 Origin of privilege - -- -- -- -- -- - 66 Privileges enjoyed by custom and by statute - -- -- --66 Privilege of Peerage ------------68 Privileges of the Commons originally under the protection of the Lords 68 Privileges of each House part of the Common law of Parliament 69 Neither House may create new privileges ------- - 69 Select Committee on Parliamentary Privilege, 1967 ------ 69 CHAPTER VI PRIVILEGE OF FREEDOM OF SPEECH Scope of chapter - -- -- -- -- -- - 7° Necessity of freedom of speech --------- - "jo Inclusion of claim in Speaker's petition and its interpretation 72 Statutory recognition of the privilege ---------73 Duty of Members to maintain the privilege - -- -- --74 Speeches in Parliament not actionable - - 75 Procedure consequential on the privilege of freedom of debate - - - - 75 Right to exclusive cognizance of proceedings in Parliament - - - 81 Matters arising outside Parliament which may be treated as proceedings in Parliament -------------85 Evidence before the courts as to proceedings in Parliament ----- 85 Matters arising in House which are not proceedings in Parliament 86 Proceedings in Parliament and the Criminal Law ------ 87 CHAPTER VII PRIVILEGE OF FREEDOM FROM ARREST OR MOLESTATION Origin and Scope of the Privilege - -- -- -- --89 Freedom from Arrest in Civil Process - -- -- -- -91 Cases illustrating the early recognition of the privilege by the Crown - 91 Commons' privileges originally dependent on protection of Lords - - 92 Means of Enforcing the Privilege - -- -- -- -- gz 1. Release of Members from custody: early cases in Commons - - 92 2. Release of Members from custody: early cases in Lords 93 3. Present mode of releasing arrested Members ----- 94 4. Transition to modern practice --------94 Effect of the Privilege on Admissibility of Members as Bail ----- 95 Duration of Privilege - -- -- -- -- -- 96 After dissolution - -- -- -- -- --96 Retrospective effect of the privilege --------96 Discontinuance of certain Privileges ---------97 x. Freedom from being impleaded - - -- -- -- 97 2. Servants' privilege - -- -- -- -- -98 Privileges Related to that of Freedom from Arrest ------ 98 x. Privilege relating to Members summoned as Witnesses - - - 98 2, Privilege of exemption from jury service ------ 99 Privilege of Freedom from Arrest Not Claimed in Respect of Criminal Offences or Statutory Detention - -- -- -- -- -- 100 Privilege of freedom from arrest disclaimed in respect of seditious libels - 101 Restriction of the privilege in respect of other criminal offences - - - 101 House to be informed of arrests on criminal charges ----- 102 House to be informed of sentences for criminal offences - - - - 103 House to be informed of issue of attachment order for contempt of court - 103 Statutory detention - -- -- -- -- - 103 Cases of Contempt of Court - -- -- -- -- - 104 Cases in the House of Lords -------- - 104 Cases in the House of Commons - -- -- -- - 104 x Table of Contents PAGE Cases of attachment orders for contempt of court and of fines - - - 105 Limitation on power of courts to commit Members for contempt - - 103 Effect of Privilege on Bankruptcy of Member ------- 106 Privilege Extended from Members to Other Persons - - - - - -106 Cases illustrating extension of privilege to witnesses and others - - - 107 CHAPTER VIII OTHER PRIVILEGES CLAIMED FOR THE COMMONS Privilege of the House of Commons with respect to its own constitution - - 108 Freedom of Access ----------- - 109 Right of Access Denied to Individual Members - - - - - - no Favourable Construction of Commons' Proceedings - - - - - - in CHAPTER IX PENAL JURISDICTION OF THE HOUSES OF PARLIAMENT Power to Inflict Punishment for Contempt - - - - - - -11a Differences in punishments inflicted by Lords and Commons - - - 113 Commitment ------------ - 113 Origin ---- - - -- -- -- -114 Recognition of Commons' right of commitment - - - - -115 Need of the power of commitment ------- - 115 Inquiry by courts into causes of commitment - - - - - -115 Power of both Houses to secure attendance of persons on Matters of Privilege - 1x6 Power to send for persons in custody - - - - - - - 117 Warrants as protection to officers executing orders of House - - - 117 Forms of Warrants - - - - - - - - - - - -1x7 i. Cause of commitment stated generally - - - - - -118 a. Particular facts stated - - - - - - - - -118 Irregularities in warrants - - - - - - - - -119 Arrests without warrant - -- -- -- -- 120 Punishment by committal exercised by the Speaker - - - - - 120 Directions to the civil power in the Speaker's warrant - - - - 120 Aid and powers claimed for the execution of warrants - - - - 120 Power to break open outer doors : recognition by the courts - - - 121 Protection afforded by either House to Officers executing their orders - - -121 Lords - 121 Commons - -- -- -- -- -- - 122 Present practice in committing Offenders - - - - - - - -122 Orders and warrants for committal to prison ------ 123 Period of imprisonment - -- -- -- -- -- 123 Modes of Punishment other than Committal - - - - - - -125 i. Fines - -- -- -- -- -- - 125 a. Reprimand and admonition - -- -- -- - 126 3. Prosecution of offenders -------- - 127 Punishments inflicted on Members - -- -- -- -- 127 Suspension by the Commons -------- - 127 Expulsion by the Commons - -- -- -- -- 128 Expulsion from the Lords by sentence of the House - - - - - 131 CHAPTER X BREACHES OF PRIVILEGE AND CONTEMPTS A. Acts or Conduct constituting Breach of Privilege or Contempt - - - 13a Contempt in General - - - - - - - - - -13a Misconduct in the Presence of either House or Committees of either House 13a Misconduct of strangers - -- -- -- - 132 Misconduct of counsel - -- -- -- - 133 Misbehaviour on the part of witnesses - - - - - -133 Disobedience to Rules or Orders of either House - - - - - 134 Disobedience to general rules or orders of either House - - - 134 Disobedience to particular orders of either House - - - - 135 Table of Contents xi PAGE Disobedience to Orders of Committees ------ 135 Abuse of the Right of Petition ------- 136 Presenting Forged, Falsified or Fabricated Documents to either House or Committees of either House - - - - - - - -137 Conspiracy to Deceive either House or Committees of either House - - 137 Abstracting or Altering Documents presented to the House - 137 Misconduct of Members or Officers of either House as such - - - 138 Misleading the House - - - - - - - - -138 Corruption in the execution of their office as Members - 138 Acceptance of fees by Members for professional services connected ¦with proceedings in Parliament ------- 138 Advocacy by Members of matters in which they have been concerned professionally - - - - - - - - - -139 Other forms of misconduct ------- - 140 Constructive Contempts - -- -- -- -- 140 Speeches or writings reflecting on either House - 140 Publication of false or perverted reports of debates, etc. - 141 Premature publication or disclosure of a committee's proceedings or evidence - -- -- -- -- - 143 Other indignities offered to either House ----- 143 Obstructing Members of either House in the Discharge of their Duty - 144 Arrest of Members - -- -- -- -- 144 Molestation of Members while in the execution of their duties - 144 Attempts by improper means to influence Members in their parlia- mentary conduct - -- -- -- -- 145 Acts tending indirectly to obstruct Members in the discharge of their duty - -- -- -- -- -- 147 Obstructing Officers of either House X49 Arrest of officers of either House ------- 149 Obstructing officers of either House while in the execution of their duty 150 Acts indirectly tending to obstruct officers of either House in the performance of their duty - - - - - - -151 Obstructing Witnesses - - - - - - - - - -153 Arrest of witnesses - - - - - - - - -152 Molestation of witnesses - -- -- -- - 153 Tampering with witnesses - -- -- -- - 153 Acts tending indirectly to deter witnesses from giving evidence - 153 Legal proceedings against witnesses - - - - - -154 Misconduct affecting Petitioners and Others Soliciting Business before either House - -- -- -- -- -- - 154 Disclosure of Information to Members by Constituents and others - - 155 Offences in Former Session - -- -- -- -- 156 B. Proceedings in Case of Contempt _ 157 Proceedings upon Complaints by Members of Breach of Privilege - - 158 Proceedings upon complaints against strangers not founded upon documents - -- -- -- -- - 158 Complaints against strangers founded upon documents - - - 159 Hearing of counsel in cases of breach of privilege and contempt - 163 Consideration of reports of committees on questions of privilege 164 Complaints against Members ------ 166 Complaints against Members or officers of the other House - - 169 Proceedings arising from Alleged Disclosure following Secret Sessions - 169 Procedure where Breaches of Privilege or other Contempts are Reported by Committees - -- -- -- -- -- 170 Procedure on Petitions complaining of Matters affecting the Privileges of the House - 171 Complaints by Officers of either House ------- 173 CHAPTER XI JURISDICTION OF COURTS OF LAW IN MATTERS OF PRIVILEGE Scope of the Chapter - -- -- -- -- -- 174 The point of view of the two Houses ------- 175 The point of view of the courts - -- -- -- - 173 Reconciliation of the two points of view ------- 176 Cases Involving Interpretation of Parliamentary Privilege ----- 176 Early cases - -- -- -- -- -- - 176 xii Table of Contents PAGE Increasing tendency of courts to question parliamentary claims - - 177 Later leading cases - - - - - - - - - -182 Earlier Theories on Parliamentary Law and Privilege - - - - - -186 Legislative and judicial jurisdiction of Parliament - - - - - 186 X. The status of the courts -------- - 188 2. Judicial knowledge of the Lex et consuetudo parliamenti - - - 189 3. Declarations as to privilege by either House ----- 191 Limits of Exclusive Privilege Jurisdiction - - - - - - - -192 " Direct " and " Incidental " raising of the issue ----- 192 The test of necessity for discharge of function - - - - - -194 General Conclusions - -196 PART II PROCEEDINGS IN PARLIAMENT: PUBLIC BUSINESS CHAPTER XII CONTENT AND SOURCES OF PARLIAMENTARY PROCEDURE Introductory - -- -- -- -- -- -- 201 Written and unwritten procedure - -- -- -- -- 203 The kinds of authority on which the rules of procedure are based - 204 Historical relation between practice and the Standing Orders - 209 CHAPTER XIII MACHINERY OF PARLIAMENT : OFFICERS, RECORDS AND PAPERS I. Palace of Westminster 210 General Arrangements - - - - - - - - - - 210 Chambers of the Two Houses - -- -- -- - 212 Places of Members - 213 Attendance of Members --------- - 214 Leave of absence - - 215 Access to the Houses of Parliament - ------- 216 Admission of Strangers - - - - - - - - - - 216 Intrusion of strangers into the chamber ----- 217 Exclusion of strangers from the galleries ----- 218 Withdrawal of strangers during a division - - - - - 219 Misconduct of strangers in galleries - - - - - -219 a. The Officers of the Two Houses - - - - - - - - -219 The Officers of the Lords - 219 The Lord Chancellor - - - - - - - - -219 Deputy Speakers - 220 Chairman of Committees - -- -- -- - 220 Deputy Chairmen of Committees ------- 220 Permanent officers of the Lords ------- 220 Offices under the Clerk of the Parliaments ----- 221 The Librarian - 222 The Gentleman Usher of the Black Rod ----- 222 The Serjeant-at-Arms -------- - 223 Shorthand writer : Lords and Commons - 223 The Officers of the Commons- - -- -- -- - 223 The Speaker of the House of Commons ----- 223 (1) The Speaker as representative of the House of Commons - 223 (2) The Speaker as presiding officer of the House of Commons - 22s Deputy Speaker in the Commons (S.O. No. 105) - - - - 228 The Chairman of Ways and Means ------ 229 Deputy Chairman of Ways and Means - - - - - -231 Temporary Chairmen --------- 231 Table of Contents xiii PAGE Principal permanent officers of the Commons - - - - - 231 The Commission for Regulating the Offices of the House of Commons 234 Departments in the House of Commons ------ 334 The Staff Board - -- -- -- -- - 336 The Comptroller and Auditor General ------ 337 The Parliamentary Commissioner for Administration - - - - 337 3. Party Machinery in Parliament - -- -- -- -- 337 Changes in procedure effected by party system ----- 337 The official opposition - -- -- -- -- - 338 Leader of the House of Commons -------- 339 Constitution of party machinery - -- -- -- - 339 Duties of whips - -- -- -- -- -- 340 In the Lords - -- -- -- -- -- 340 4. Parliamentary Papers and Publications ------- 341 A. Papers dealing with Daily Business of the two Houses - 241 (1) House of Lords - -- -- -- -- 241 (2) House of Commons - -- -- -- - 343 (3) The official reports of debates in the Lords and Commons - 248 B. Papers presented to Parliament ------- 349 Presentation of papers - - - - - - - - 251 Distribution of papers - -- -- -- - 252 CHAPTER XIV A NEW PARLIAMENT AND OPENING AND CLOSE OF SESSION Parliamentary and Sessional Periods --------- 354 Summons of Parliament ---------- 254 Dissolution of Parliament - -- -- -- -- 255 Prorogation and adjournment --------- 255 Meeting of a New Parliament ---------- 258 Commons attend in the House of Peers ------- 259 Proceedings in the Lords—oaths - -- -- -- - 259 Election of a Speaker by the Commons ------- 259 Oath in the Commons - -- -- -- -- - 262 Opening of New Session ----------- 265 Opening by Queen in person --------- 266 Opening by commission ---------- 266 Report of Queen's Speech - -- -- -- -- 267 Business taken before consideration of Queen's speech - 267 Address in reply to Queen's speech -------- 268 Proceedings on Prorogation of Parliament ------- - 369 CHAPTER XV ARRANGEMENT OF SESSIONAL BUSINESS House of Lords - -- -- -- -- -- - 270 House of Commons ------------ 270 Main Varieties of Public Business - -- -- -- -- 370 (1) Substantive motions - -- -- -- -- 271 (2) Motions for the adjournment of the House ----- 271 (3) Financial business ---------- 271 (4) Bills - --.---271 Length of a Session ------------ 272 Control of the Time of the Session ------- - 272 Times at which the House normally sits - -- -- -- - 273 Methods of prolonging sittings ---------- 274 Private Members' Time - -- -- -- -- -- 275 Government Time --------- -- - 275 Manner of notifying weekly programme of government business - - 275 Business taken in government time ------- 276 Distribution of Time between Private Members, Opposition and Government - 284 xiv Table of Contents PAGE CHAPTER XVI A SITTING : GENERAL ARRANGEMENTS In the House of Lords - -- -- -- -- -- 286 Days and Times of Sitting - -- -- -- -- 286 Adjournment ----------- - 286 Quorum - -- -- -- -- -- - 287 In the House of Commons - -- -- -- -- - 287 Days and Hours of Sitting - -- -- -- -- 287 Extraordinary sittings and adjournments ----- 287 Hours of meeting --------- - 288 Rules for Closing the Sitting -------- - 289 1. When Business is not exempted from the ten o'clock rule - - 290 2. When Business is exempted from the ten o'clock rule - - 292 3. When the Sitting is suspended pursuant to S.O. No. 2 - - 294 Informal suspension of a Sitting ------- 294 Disposal of questions pending at moment of interruption - - 29S Examples of procedure on business pending at moment of inter- ruption ---------- - 296 Adjournment of the House, without question put - - - - 297 Adjournment on question - -- -- -- - 298 Quorum of the House - -- -- -- -- - 298 Count of the House - 299 Arrangement for distributing the time of the sitting ----- 301 Differences between first four days of week and Friday - - - 301 Time-limits for certain business ------- 301 Incidental interruptions - -- -- -- - 302 Proceedings in Secret Session -------- - 303 CHAPTER XVII ORDER OF ITEMS OF BUSINESS IN PROGRAMME OF SITTING Arrangement of Business in the House of Lords ------ 303 Order of Business ---------- - 305 Arrangement of business in the House of Commons - - - - - - 311 Difference in order of business between Friday and other days - 311 Order of Business ---------- - 312 1. Prayers ----------- - 313 2. Business taken immediately after Prayers - - - - - - 313 (x) Report of Queen's answers to addresses - - - - 313 (2) Formal Communications by Mr. Speaker - - - - 314 (3) Motions for new writs ------- - 314 (4) _ Private Business -------- - 315 Notice paper of private business ------- 315 Time for taking unopposed private business ----- 316 Time for taking opposed private business - - - - - 317 (5) Presentation of Public Petitions ------ 318 (6) Motions for unopposed returns - - - - - -319 3. Questions - -- -- -- -- -- 319 (1) Questions for Oral Answer ------- 319 Time for asking questions - -- -- -- - 319 Notice of questions - -- -- -- -- 320 Speaker's control of questions ------- 321 Limitation of number of oral questions ------ 322 Persons to whom questions may be addressed . - 322 Rules of order regarding forms and contents of Questions - - 323 Manner of asking questions ------- - 329 (2) Answers to Questions (written and oral) ----- 329 (3) Private Notice Questions ------- 330 4. Business Taken After Questions ------- 331 (x) Ministerial Statements ------- - 331 (2) Introduction of new Members ------ 332 (3) Proposals to move the Adjournment of the House under S.O. No. 9 ----------- 334 (4) Ceremonial speeches - -- -- -- - 335 (5) Giving notice of motions and holding of ballot - 335 Table of Contents xv PAGE (6) Personal explanations ------- - 338 (7) Consideration of Lords amendments or message - - - 340 (8) Raising of a matter of privilege ------ 340 5. Business taken "At the Commencement of Public Business" - - 344 (1) Presentation of public bills under S.O. No. 37 - - - 345 (2) Government motions regulating the business and sittings of the House - -- -- -- -- -- 346 (3) Motions for leave to bring in bills, and for nomination of select committees under S.O. No. 13------ - 347 6. Privilege Motions Admitting of Notice ------ 348 7. Orders of the Day and Notices of Motions ----- 349 Reading of the orders of the day ------- 349 Procedure upon orders of the day ------- 350 Deferment of orders and motions - - - - - - -351 Procedure on notices of motions ------- 35a Unexpected ending of business and dropped orders - - - 35a Superseded orders - - - - - - - - - 354 Renewal of notices of motions ------- 354 Transaction of Business as a matter of course - 354 8. Business Motions under Standing Order No. 3(2) - 354 9. Business Exempted under S.O.s No.s 3(1) and 4 (Proceedings on Statutory Instruments, Etc.)- - -- -- -- -- 354 ro. Adjournment Motions under S.O. No. 1(7) - - - - - 355 General restrictions on motions for the adjournment of the House - 356 CHAPTER XVIII THE PROCESS OF DEBATE, BY MOTION, QUESTION AND DECISION Question, the central point of debate ------- 338 A. Motions - -- -- -- -- -- -- 359 Rules regulating requirement of notice - - - - - - - 359 Rules governing subject-matter of motions - - - - - -361 Alterations in the terms of question from terms of motion - - - - 367 Moving of motions ---------- - 367 B. Questions ------------ - 368 Proposal of question upon a motion ------- 368 Withdrawal of motions --------- - 368 Methods of superseding question - -- -- -- - 369 Complicated questions ---------- 373 Putting of question at close of debate ------- 373 Orders and resolutions --------- - 375 C. Amendments to Questions, and Amendments to Proposed Amendments - 379 Object of an amendment and effect on debate ------ 379 Notice of amendments to motions ------- - 380 Order in moving amendments - -- -- -- - 380 Questions proposed on amendments ------- 380 Rules with respect to form and content of amendments - - - - 381 Amendments to proposed amendments ------- 384 D. Divisions ------------ - 384 Procedure on a division in the Lords 385 Proxies (Lords) - -- -- -- -- -- 387 Protests (House of Lords) - -- -- -- -- 387 Divisions in the Commons - " " . " " " " " " 3®® Irregularities discovered at the time of a division ----- 390 Errors discovered after a division - -- -- -- - 391 Publication of division lists - -- -- -- -- 393 Withdrawal of strangers --------- - 393 Voting without hearing question put ------- 394 Pairs - -- -- -- -- -- -- 394 Casting vote of the Speaker - -- -- -- -- 395 Casting vote of chairman in committee of whole house - - - - 397 Speaker voting in committee --------- 398 Canvass for votes by a Member - -- -- -- - 398 E. Personal pecuniary interest - -- -- -- -- 398 xvi Table of Contents PAGE CHAPTER XIX maintenance of order during debate 1. Rules Governing the Time and Manner of Speaking ----- 404 Manner of speaking - -- -- -- -- - 404 Precedence in speaking ---------- 406 Restriction of speeches ---------- 408 2. Rules Governing the Contents of Speeches ------- 411 Summary of rules ----------- 411 Relevancy in debate - - - - - - - - - -411 Reference to prior debates - -- -- -- -- 413 Reflecting upon votes of the House ----- --- 414 Allusions to debates in the other House of the current session - - - 414 References to the Queen in debate -------- 415 Words against Parliament, or either House ------ 416 Matters pending judicial decision - -- -- -- - 416 Discussion of a capital sentence - -- -- -- - 417 Reflections on the Sovereign, etc. - -- -- -- - 417 Personal allusions and unparliamentary expressions ----- 418 Words of heat ---------- 420 Citing documents not before the House ------- 421 3. Rules of Behaviour for Members not Speaking ------ 422 Members to keep their places --------- 422 Crossing before Members speaking -------- 423 Reading of books, etc. - -- -- -- -- - 423 Silence ------------- 423 Hissing or interruption ---------- 423 4. Powers of the Chair to Enforce Order -------- 424 Authority of Speaker in matters of order ------- 424 Dual source of modern power to punish disorder ----- 425 Disciplinary powers of Speaker under ancient usage ----- 425 Disciplinary powers under standing order ------ 427 Right of Members to direct the attention of the Chair to supposed breaches of order - -- -- -- -- -- 430 Proceedings upon the naming of a Member - - - - - -431 Misbehaviour in the lobbies - -- -- -- -- 433 Appendix of unparliamentary expressions ------- - 434 CHAPTER XX METHODS OF CURTAILING DEBATE Obstruction by Prolongation of Debate - -- -- -- - 435 Multiplication of speeches - - - - - - - - -435 Multiplication of amendments - -- -- -- - 436 Proceedings akin to closure - -- -- -- -- 437 1. Closure of Debate - -- -- -- -- -- 438 The ordinary closure - -- -- -- -- - 438 Closure upon the words of a clause or schedule - 439 Closure at moment of interruption -------- 440 2. The Selection of Amendments - -- -- -- -- 441 3. Allocation of Time Orders ---------- 443 Procedure on allocation of time orders - - - - - - _ 443 Usual provisions made under allocation of time orders - - - - 445 Other powers conferred by orders ------- - 448 Orders in case of bills rejected by Lords ------- 449 Voluntary arrangements in place of allocation of time orders - - - 451 List of allocation of time orders - - - - - - - -451 CHAPTER XXI PROCEEDINGS OF PARLIAMENT IN PASSING PUBLIC niiTg Public and private bills Where bills originate - 453 - 453 Table of Contents xvii PAGE I. Proceedings in the House of Lords - - - - - - - 455 Introduction and First Reading - -- -- -- - 455 Introduction without notice -------- 455 Introduction after notice - -- -- -- - 45g First reading - -- -- -- -- - 456 Second Reading - -- -- -- -- -- 458 Methods of opposition to second reading ----- 458 Second reading agreed to with resolution ----- 460 Counsel heard - -- -- -- -- - 460 Commitment - -- -- -- -- -- 460 Committee negatived - -- -- -- -- 460 Order of commitment discharged ------- 461 Bill referred to select or joint committee ----- 46! Consolidation bills - -- -- -- -- 462 Instructions ----------- 462 Committee Stage (Committee of the whole House) ----- 463 Amendments - -- -- -- -- - 463 Proceedings in committee - -- -- -- - 464 Report ------------ - 465 Amendments on report - -- -- -- - 466 Recommitment - -- -- -- -- -- 466 Third Reading - -- -- -- -- -- 467 Opposition to third reading -------- 467 Amendments on third reading ------- 467 Further proceedings after third reading ------ 467 Passing of bill - -- -- -- -- - 468 Privilege amendments --------- 468 Bill sent to the Commons - -- -- -- - 468 Consideration of Commons Amendments, etc. - - - - 469 II. Proceedings in the House of Commons ------- 469 Introduction and First Reading - -- -- -- - 469 Bills brought in upon an order of the House ----- 469 (1) Bills preceded by certain preliminary proceedings - - 469 (2) Bills ordered in without any preliminary proceedings - 471 Method of presentation of bills upon order ----- 473 Bills presented without an order (under S.O. No. 37 (1)) - - 473 Bills brought from the Lords ------- 474 First reading and printing of bills ------- 474 Appointment of second reading ------- 475 Preparation of bills - -- -- -- -- 475 Examination of a bill - -- -- -- -- 477 Printing of a bill before second reading ------ 482 Alterations in a bill - -- -- -- -- 482 Bills withdrawn and other bills presented ----- 482 Synopsis of stages of a bill ------ - 483 Second Reading - -- -- -- -- • 485 Second reading moved --------- 485 Amendments to question for second reading ----- 486 Questions on amendments proposed on second (or third) reading - 489 Bills dropped - -- -- -- -- - 489 Proceedings on bill null and void ------- 489 Counsel ordered ---------- 489 Bills referred to a second reading committee ----- 490 Scottish bills referred or committed on order for second reading - 491 Committal - -- -- -- -- -- - 491 Exceptions to general practice ------- 491 Bills withdrawn after committal ------- 492 Distribution of bills committed to standing committees - - - 492 Transfer of bill from standing committee to committee of the whole House or select committee, and vice versa ----- 493 Functions of a committee on a bill ------ 494 Commencement of committee stage ------ 495 Instructions- - - . - - - - - - - 49 Application of instruction to recommitted bill - 5°3 Procedure on instructions - - _ - - - - - 504 Proceedings in Committee of the whole House ----- 505 Order in which bill is considered ------- 505 Postponement of preamble -------- 505 Notice of amendments in committee - - - - - - 505 xvüi Table of Contents PAGE Clause under consideration ---- - " 5o6 Amendments of which notice has been given ----- 5o6 Amendments of which no notice has been given - - - - S07 Withdrawal of amendments ------- - S07 Order in which amendments are taken ------ S07 Admissible amendments - -- -- -- - S07 Inadmissible amendments - . ~ " " " " " " Amendment to leave out subsection of a clause - - - - S13 Amendment ruled out of order after discussion begun - - - 513 Proceedings upon italicized words and privilege amendments - - 514 Division of clauses - -- -- -- -- 515 Transfer of clauses - -- -- -- -- 515 Postponement of clauses - - - - - - - " 515 Clauses received pursuant to instructions - - - - - 516 Question for clause standing part of a bill - - - - - 516 New clauses ----------- 517 Schedules and new schedules - - - - - - - 517 Consolidation of bills - - - - - - - - - 518 Division of bills - - - - - - - - - - 518 Preamble - -- -- -- -- -- 519 Title.- - - 519 Report of Progress - -- -- -- -- 519 When committee make no report ------- 520 Bills committed pro forma - - - _ - - - - - 520 Proceedings of committee not known until reported - - - 521 Report of Bill - -- -- -- -- -- 521 Close of committee proceedings and report of bill - - - - 521 Proceedings on report - ------ - 522 Reprinting of bills - ------ - 522 Consideration of Bill, as Amended - - - - - - - -523 Order for consideration read ------- - 524 Order in which bill is considered ------- 524 New clauses - -- -- -- -- - 524 Amendments to bill - - - - - - - - - 525 New schedules and schedules ------- 526 Amendment of title - - - - - - - - - 526 Inadmissible amendments - -- -- -- - 526 Irregularities in committee noticed on report ----- 526 Discontinuance of engrossment ------- 527 Conclusion of consideration stage ------- 527 Consideration stage taken in standing committee - - - - 527 Recommittal of Bill - -- -- -- -- - 528 Procedure under S.O. No. 53 - -- -- -- 529 Partial recommittal - -- -- -- -- 529 Further recommittal - -- -- -- -- 529 Recommittal before, or on, third reading ----- 530 Report of recommitted bill ------- - 530 Third Reading - -- -- -- -- -- 531 Debate on third reading - -- -- -- - 331 Amendments on third reading - - - - - - -531 Bill passed ---------- - 532 Bill not to be altered otherwise than by amendment - 532 Communication between the two Houses ----- 533 Consideration of Lords Amendments - - - - - - - 533 Time for considering Lords amendments ----- 333 Proceedings on consideration of Lords amendments - 534 Stages in process of securing agreement between the two Houses - 535 Bill originating in the Lords ------- - 541 III. General matter relating to the passing of public bills - 542 Proceeding on hybrid bills - 542 Practice with regard to bills rejected ------ 546 Proposals for suspending or resuming bills ----- 349 Endorsement of Bills - -- -- -- -- - 549 Royal Assent 549 Proceedings on royal assent - - - - - - _ -551 Bills Passed with Unusual Expedition - - - - - - -552 In the House of Lords -------- - 552 In the House of Commons - -- -- -- - 533 Table of Contents Procedure under the Parliament Acts, 1911 and 1949 Bills other than money bills - Subsidiary Points in connection with Legislative Procedure Printing and promulgation of statutes - Commencement of act ------ Informalities in bills ------ Informalities in the agreement of both Houses Informalities in the royal assent - - - - CHAPTER XXII DELEGATED LEGISLATION Introductory - -- -- -- -- -- -- 56o Statutory instruments, etc. - -- -- -- -- - 561 Parliamentary control - 564 Laying before Parliament - -- -- -- -- 565 The affirmative procedure - 567 The negative procedure - 568 Scope of debate - -- -- -- -- -- 569 Time limits ----------- - 570 Special Orders Committee - -- -- -- -- 571 Select Committee on Statutory Instruments ------ 572 Delegation in Church of England matters ------- - 573 CHAPTER XXIII FORMAL COMMUNICATIONS BETWEEN CROWN AND PARLIAMENT AND BETWEEN LORDS AND COMMONS 1. Communications between Crown and Parliament - The Queen's presence in Parliament ------ Communications from the Crown to Parliament - - - - - Communications by messages under the sign manual - Other messages - -- -- -- -- - Acknowledgment of messages from the Crown - Communications to the Crown originating in Parliament - Addresses to the Crown - Mode of presentation of Addresses ------- Answers to Addresses - -- -- -- -- Messages to the Royal Family ------- 2. Communications between the Lords and the Commons - Messages ----------- CHAPTER XXIV THE SYSTEM OF COMMITTEES X. Committees of the whole House - _ - - - - - - - - 591 Committees of the whole House in the Lords ------ 592 Committees of the whole House in the Commons ----- 593 2. Standing Committees ----------- 598 Appointment of standing committees ------- 598 Constitution of standing committees 598 Precedence of bills committed to a standing committee - - - - 602 Sittings of standing committees - -- -- -- - 602 Procedure in standing committees ------- - 606 Allocation of time orders - -- -- -- -- 613 Records of proceedings in standing committees - - - - - 614 3. Select Committees - -- -- -- -- -- 615 Appointment and nomination - -------- 615 Scope of deliberations or inquiries -------- 620 Instructions ----------- - 620 Proceedings in select committees - -- -- -- - 621 XIX PAGE 555 555 556 556 557 557 558 - 577 - 577 - 578 - 578 - 579 - 583 - 584 - 584 - 587 - 588 - 588 - 589 - 589 xx Table of Contents PAGE Witnesses ------------ 628 Minutes of evidence ---------- 632 Charges made against members in committees ------ 635 Documents presented to select committees ------ 635 Admission of strangers - - - - - - - - - - 635 Sub-committees - -- -- -- -- -- 636 Expert assistance and consultation ------- - 638 Reports of select committees - -- -- -- -- 639 Procedure in select committees on public bills ------ 649 Sessional committees - - - - - - - - - -651 Sessional committees in the Lords ------- - 651 Sessional committees in the Commons ------- 652 4. Joint Committees of Lords and Commons ------- 658 Appointment of joint committees - -- -- -- - 658 Nomination of members of joint committees ------ 660 Powers of joint committees - -- -- -- -- 661 Sittings and procedure of joint committees ------ 662 Report of a joint committee - -- -- -- -- 663 Sessional joint committee - -- -- -- -- 664 Communications between committees of both Houses - 665 CHAPTER XXV WITNESSES AND PARLIAMENT Mode of Securing Attendance ---------- 666 Summons of witnesses by the Lords ------- 666 Peers, as witnesses, before the Lords ------- 666 Summons of witnesses by the Commons ------- 666 Witnesses absconding - -- -- -- -- - 667 Attendance of Members, how secured ------- 667 Attendance of Members of the other House ------ 668 Officers of either House --------- - 669 Peers, not being Lords of Parliament ------- 669 _ Inquiry to be previously ordered - -- -- -- - 670 Examination, Expenses and Protection of Witnesses ------ 670 Examination of witnesses in the Lords ------- 670 Oaths administered by Lords' committee ------- 670 Administration of oaths by Commons' committees - - - - - 671 Examination of witnesses at the bar - - - - - - -671 Members, Lords of Parliament, etc. ------- 672 Examination of witnesses before select committees ----- 672 Expenses of witnesses - -- -- -- -- - 674 Protection of witnesses --------- - 675 CHAPTER XXVI FINANCIAL PROCEDURE—INTRODUCTORY General Plan of Chapters on Finance - -- -- -- - 676 Financial Relations Between the Crown and Parliament ----- 676 Cycle of Financial Business - - 677 1. Before the commencement of the financial year ----- 678 2. Business done during the financial year ------ 678 3. Business done after the end of the financial year - - - - 679 CHAPTER XXVII GENERAL RULES OF FINANCIAL PROCEDURE Scope of Financial Procedure - -- -- -- -- - 681 Charges upon the public revenue - - - - - - - - 682 Charges upon the people - -- -- -- -- 682 Limitation of the scope of financial procedure ------ 682 Table of Contents xxi PAGE General Rules of Financial Procedure of the Commons ----- 683 Rule i. Legislative authorization and appropriation of charges - - 683 Rule 2. The financial initiative of the Crown ------ 687 Rule 3. Preliminary consideration of resolutions ----- 689 Rule 4. Intervals between stages of financial legislation - - - - 690 Enforcement of rules of financial procedure ------ 690 Relaxation of financial rules in urgent cases - - - - - -691 Limited scope of the financial standing orders ------ 691 Application to Amendments of Rules Regulating Financial Procedure - - - 691 Disallowance of amendments infringing the financial initiative of the Crown 692 The Royal demand or recommendation fixes the limits of a charge - - 692 Stage of financial resolution which governs bill ----- 697 CHAPTER XXVIII EXPENDITURE : SUPPLY Application to Ordinary Annual Expenditure of the General Rules of Financial Procedure - -- -- -- -- -- -- 699 A. The Estimates ----------- - 699 Different Kinds of Estimates --- _ 699 1. Ordinary Annual Estimates (Main Estimates) ----- 700 Presentation and publication of estimates ----- 700 Form of the estimates --------- 700 The contents of the estimates - - - - - - -7oi Token votes and sub-heads -------- 703 Revised estimates - -- -- -- -- 703 2. Votes on Account - -- -- -- -- - 703 Votes on account before a dissolution ------ 704 3. Supplementary Estimates --------- 705 (1) Supplementary estimates due to revealed insufficiencies - - 705 (2) Supplementary estimates due to decisions of policy - - - 706 Token votes (supplementary) ------- 707 Supplementary not taken before main estimate - - - - 708 4. Excess Votes - -- -- -- -- -- 708 Procedure on excess votes - -- -- -- - 708 5. Votes of Credit - -- -- -- -- - 709 6. Exceptional Grants ---------- 709 B. The Voting of Supply - -- -- -- -- - 711 Action of the Commons on royal demand for supply - - - 711 Allotted days and supply guillotines - - - - - -711 Procedure under S.O. No. 18 ------- 711 Procedure on the Business of Supply ------ 716 Notice of estimates to be considered ------ 716 Form of supply resolutions -------- 717 Order in which votes may be moved ------ 717 General rules of procedure on Supply - - - - - -718 Relevancy in debate - - - - - - - - -721 C. Bills Authorizing Grants of Supply - -- -- -- - 727 Consolidated Fund bills - -- -- -- - 727 The Appropriation Act - -- -- -- - 728 Authorization of expenditure by the Appropriation Act without specific legal sanction - -- -- -- - 730 Royal assent to bills of aids and supplies - 732 CHAPTER XXIX EXPENDITURE : FINANCIAL RESOLUTIONS Application to new expenditure of the general rules of financial procedure - - 733 Arrangement of chapter - -- -- -- - 733 Forms of proceeding for the initiation of expenditure - 734 A. Varieties of Expenditure Initiated by Financial Resolutions - - - - 735 Tests used to determine whether expenditure involves a " charge " 735 xxii Table of Contents PAGE Matters Requiring the Queen's Recommendation - - - - - 737 x. Moneys to be provided by Parliament ----- 737 2. Charges upon the Consolidated Fund ----- 738 3. Charges upon the National Loans Fund ----- 738 4. Charges upon rates which attract grants from the Consolidated Fund.739 5. Substitution of stamp duties involving possible increase in par- ticular cases - -- -- -- -- - 739 6. Remission or compounding of debts to Crown - - - - 739 7. Increase of charge by extension of time ----- 740 8. Specific authority for charge previously authorized only by Appro- priation Act - -- -- -- -- - 741 9. Increase of charge by extension of purposes, etc. - 74* 10. Increase of amount of charge ------- 743 xi. Alteration of incidence of charge ------ 74z 12. Variation of Appropriation and diversion of revenue - - _ - 742 Matters involving Money which do not require the Queen's Recommendation 744 1. Provisions involving the reduction of charges - - - - 744 2. Charges upon rates, etc. -------- 745 3. Charges on public funds other than the Consolidated Fund or the National Loans Fund -------- 745 4. Expenditure covered by existing statutory authority - - - 746 5. Exemption from penalties due to Crown ----- 747 6. Post Office contracts - -- -- -- - 747 7. Implying but not imposing a charge ----- 748 Methods of Advocating Expenditure without the Queen's Recommendation 748 1. Addresses praying for the issue of public money - 748 2. Proposal of expenditure by methods not directly effective - 749 B. Procedure on Financial Resolutions - -- -- -- - 749 1. Methods of Signifying the Exercise of the Royal Initiative - - - 749 (1) Demands by message from the Queen under the sign manual - 749 (2) Signification of Queen's recommendation by a Minister of the Crown - -- -- -- -- - 750 2. Proceedings on Financial Resolutions ------ 750 C. Procedure on Bills Sanctioning Expenditure ------ 752 Presentation under S.O. No. 91------ - 753 Italicized provisions - -- -- -- -- 752 Interpretation of "main object" in relation to a bill _ - - 754 Procedure on Stages of Bills sanctioning Expenditure . - 754 Amendments in committee (or on Report) ----- 754 Application of rule to restoration of charges - - - - -755 Restrictive effect of terms of Money Resolution - - - - 755 Related amendments in committee and on report - - - - 756 CHAPTER XXX WAYS AND MEANS Application to ways and means of the general rules of financial procedure - - 757 Arrangement of chapter ----- 757 A. The Scope of Ways and Means -------- - 758 Tests for Determining whether matters involve Charges upon the People 758 Matters Initiated by Ways and Means Resolutions - - - - - 759 1. Taxation - -- -- -- -- - 759 2. Repeal or reduction of alleviations of taxation - - - - 760 3. Delegation of taxing powers within the United Kingdom - - 760 4. Grant of borrowing powers - - - - - - -761 5. Payments into the Consolidated Fund or the National Loans Fund 761 Matters, akin to Charges upon the People, not initiated by Ways and Means Resolutions - -- -- -- -- -- 761 1. Local receipts - -- -- -- -- 761 2. Alleviation of taxation - -- -- -- - 762 3. Levies upon an industry for its own purposes - - - - 762 4. Charges imposed for services rendered by departments - - 763 5. Provisions authorized by existing law ----- 764 6. The delegation of taxing powers to Parliaments outside the United Kingdom - -- -- -- - 764 7- Charges not effective till applied by subsequent legislation - 765 Table of Contents y\iii _ , PAGE B. Procedure on the Business of Ways and Means ------ 765 General Rules of Procedure on Ways and Means Business - - - 765 Inclusion of several duties in one resolution ----- 766 Procedure on amendments - -- -- -- - 765 Financial Statement and Budget - -- -- -- - 767 Special procedure on budget resolutions ----- 768 Provisional collection of taxes 76p C. Finance Bills and other Bills Founded on Ways and Means Resolutions - 770 Introduction of Bills - -- -- -- -- - 770 Relation of Bills to Ways and Means Resolutions ----- 771 Bills founded on Ways and Means Resolutions - 771 Bills with italics --------- - 773 Scope of Finance Bills ---------- 77a Debate on Main Stages ---------- 773 Amendments in committee and on report ----- 773 Rules forbidding the increase of charges ----- 774 Charge in bill less than that authorized by resolution - - - 774 Provisions reducing existing charges ------ 773 Third reading of Finance Bill, etc. ----- . 775 CHAPTER XXXI THE HOUSE OF LORDS AND CHARGES The Financial Functions of the Lords - - - - -- -- 776 Concurrence in supplies and taxation ------ 776 Insistence by the Lords on the financial powers reserved to them - 776 Restrictions under Constitutional Usage - -- -- -- - 777 Basis of modern practice with respect to privilege - - - - 777 Local rates ---------- - 777 General but not public funds not within the scope of privilege - 778 Delegation of taxing powers outside the United Kingdom - - 778 Actions which infringe privilege ------- 778 I. Restrictions on the Lords' right to initiate bills - - - - 779 Relaxation of privilege by standing order ----- 780 Expedients for avoiding formal infringement of privilege in Lords bills - -- -- -- -- -- 780 z. Restrictions on the Lords* right to amend bills ----- 783 (x) Lords amendments to bills of aids and supplies - 783 Provisions " tacked " to bills of aids and supplies - - 783 (3) Lords amendments to other bills infringing privilege - - 783 Relaxation of privilege by standing order in the case of Lords amendments -------- - 786 Expedients for avoiding privilege in Lords amendments - 786 3. Right to reject bills retained by Lords ------ 787 Adoption of the practice of an annual inclusive finance bill - - 787 Rejection by Lords of separate financial provisions in non-financial bills - 787 Limitations Imposed by the Parliament Act 1911 ------ 788 Definition of Money Bill - -- -- -- - 788 Procedure in passing Money Bill ------- 788 "Money Bills" under Parliament Act and bills of aids and supplies 789 " Money Bill " under Parliament Act and in ordinary parliamentary phraseology - -- -- -- -- - 790 CHAPTER XXXII PUBLIC PETITIONS Course of development of the form of petitioning ------ 793 i. Form of petitions - -- -- -- -- - 793 a. Character and substance of petitions ------ 795 3. Presentation of petitions --------- 798 Presentation of petitions to the Lords - -- -- -- - 799 Presentation of petitions to the Commons ------- 800 xxiv Table of Contents CHAPTER XXXIII PAGE REPRESENTATION IN EUROPEAN ASSEMBLIES Duty of Members of the United Kingdom Parliament- ----- 803 The Council of Europe - - - -- -- -- -- 803 1. The Committee of Ministers - -- -- -- - 804 2. The Consultative Assembly - -- -- -- - 806 Western European Union - -- -- -- -- - 809 The Council.809 The Assembly - -- -- -- -- -- 810 North Atlantic Assembly - - - - - - - - - - - 812 PART III PROCEEDINGS IN PARLIAMENT : PRIVATE BUSINESS CHAPTER XXXIV PRELIMINARY VIEW OF PRIVATE BILLS Introductory - -- -- -- -- -- -- 817 Distinctive Character of Private Bills - -- -- -- - 817 History of private bills --------- - 8x8 Peculiarity of proceedings on private bills ------ 818 Legislative and judicial functions of Parliament ----- 819 Jurisdiction of the courts - -- -- -- -- 819 Principles by which Parliament is guided ------- 820 Private bills pass through same stages as public bills ----- 821 Difficulty in Determining Whether Certain Bills should be Public or Private - 821 Bills brought in by the government for local purposes, etc. - 823 Bills relating to cities and counties, etc. ------- 824 Bills applicable to several localities -------- 826 Bills relating to the administration of justice and various public jurisdictions in a definite area ---------- - 828 Bills concerning property owned by religious communities, colleges, etc. - 830 Bill concerning a government guarantee - - - - - - -831 Bills apparently similar respectively regarded as public and private - - 831 Public bills objected to on the ground that they should have been private or hybrid bills - -- -- -- -- -- 832 Private Bills objected to on the ground that they should have been Public Bills 834 Public Bills introduced vice Private Bills withdrawn ----- 836 Repeal of Public Acts by Private Bills - 836 Alternatives to proceeding by Private Bill ------- 838 (x) Amendments in the general law and adoptive acts - 838 (2) Provisional orders and certificates ------- 838 (3) Special procedure orders - -- -- -- - 839 (4) Private Legislation Procedure (Scotland) Act ----- 839 Proposals for Modification of Private Bill Procedure ------ 839 CHAPTER XXXV PRELIMINARY PROCEEDINGS IN BOTH HOUSES ON PRIVATE BILLS Soliciting and Deposit of Bills - -- -- -- -- 840 Content and form of bills - -- -- -- -- - 840 _ Model Clauses - -- -- -- -- -- 840 Standing Orders (Private Business) -------- - 841 Compliance before presentation of bill ------- 841 Table of Contents sxv PAGE Compliance after presentation of bill ------- 843 Compliance proved before the Examiners ------ 843 Personal Bills (H.C. 191 A, H.L.3) - -- -- -- -- 843 General List of Petitions (S.O. 194 (H.C.)) ------- 843 Memorials Complaining of Non-Compliance ------- 843 In respect of petitions for bills numbered in the general list _ - - 843 In respect of petitions for bills deposited after 37 November - - - 844 In respect of petitions for additional provisions, etc. ----- 844 Preparation of memorials - -- -- -- -- 844 Withdrawal of memorials - -- -- -- -- 844 Sittings of the Examiners ----------- 844 Notice of examination - -- -- -- -- - 844 Striking off and reinsertion of petitions (S.O.s 72, 106 (H.C.)) - - - 845 Statement of proofs - -- -- -- -- - 845 Formal proofs - -- -- -- -- -- 845 Proof by affidavit (S.O. 77 (H.C.), S.O. 80 (H.L.)) ----- 845 Unopposed cases ---------- - 84s Opposed cases ------- - 846 Attendance of witnesses --------- - 846 Hearing of parties on a memorial (S.O.s 75, 76 (H.C.), S.O.s 76, 77 (H.L.)) 846 Specific statements of non-compliance required ----- 846 Preliminary objections - -- -- -- -- - 846 Memorials subject to same rules as petitions ------ 847 Preliminary objections to allegations ------- 847 Objections on points affecting the public ------- 847 Questions of merits excluded -------- - 848 Decisions of the Examiners - - - -- -- -- - 848 Communication of Examiners' decisions - - - - - - - 848 Special report from the Examiners (S.O. 79 (U.C.), S.O. 81 (ILL.)) - - 848 Standing Orders Committee (House of Commons) ------ 849 Examiners' reports referred (S.O. 104 (U.C.)) - - - - - - 849 Examiners' special reports referred (S.O. 104 (H.C.)) - 849 Proceedings of the Standing Orders Committee _ ". " " " ^5° Principles by which the Standing Orders Committee are guided - - 851 Standing orders dispensed with and leave given to parties to proceed- - 851 Standing orders not to be dispensed with- - - - - - -851 Decision of Standing Orders Committee objected to in the House - - 85a Special reports from Standing Orders Committee ----- 854 Other duties of Standing Orders Committee (S.O.s 105, 106 (H.C.)) - - 854 Committee of Selection (House of Commons) ------- 855 Supervision of Private Bills by Chairman of Committees and Chairman of Ways and Means ------------- 856 Supervision by the Lords' Chairman and his counsel - 836 Copies of bills introduced into either House supplied to Lords' Chairman - 836 Supervision by Chairman of Wravs and Means and Speaker's counsel- - 837 Division of Bills between the two Houses before Presentation (S.O. 81 (H.C.), S.O. 90 (H.L.)).858 Departures from Usual Procedure on Private Bills ------ 839 Petitions for bills deposited after time ------- 859 Petition for Additional Provision - -- -- -- -- 860 Withdrawal of Bills in Commons - -- -- -- -- 861 Parliamentary Agents - -- -- -- -- -- 86a Rules relating to Parliamentary Agents ------- 86a Registry of agents (S.O. 19a (H.C.)) _ - - - - - 863 Members and officers of the House disqualified as agents - 865 Unqualified persons not entitled to call themselves parliamentary agents - 863 Fees Payable on Private Bills - -- -- -- -- - 863 Hybrid bills ------------ 866 Collection of fees ----------- 866 Application ------------ 866 Taxation of Costs - -- -- -- -- -- - 866 Taxing officers - - 867 Lists of charges - -- -- -- -- -- 867 Applications for taxation - -- -- -- -- 867 Costs in both Houses taxed together ------- 867 Certificate to have the effect of a warrant to confess judgment - 868 Costs of provisional and special procedure orders ----- 868 xxvi Table of Contents PAGE CHAPTER XXXYI PETITIONS IN FAVOUR OF, AGAINST, OR RELATING TO PRIVATE BILLS IN THE HOUSE OF COMMONS ; AND THE COURT OF REFEREES Presentation and Withdrawal of Petitions (S.O.s 171, 171A, 172, 173, 219) - - 869 Petitions in Favour of Private Bills - -- -- -- -- 869 Petitions Against Private Bills - - - -- -- - - - 870 Petitions to be presented before a prescribed time (S.O.s 171 A, 217) - 870 Petitions to stand referred to committee on the bill and right of audience (S.O.s 126, 127, 217) --------- - 870 Petitions presented after time - - - - - - - - -871 Death of petitioners - -- -- -- -- - 871 Grounds of objection to be specified (S.O. 128) ----- 872 Locus Standi of Petitioners against Private Bills ------- 872 Court of Referees on Private Bills - -- -- -- -- 872 Constitution and duties (S.O.s 89, 90) - - - - - - - 872 Rules of procedure (S.O.s 91, 91A) - _ - - - - - - - 873 Notice by promoters of intention to object ------ 873 Manner of hearing locus standi cases - - - - - - - 874 Locus standi limited to points alleged in petition ----- 874 Practice of the court regarding locus standi cases ----- 875 Landowners' locus standi - -- -- -- -- 875 Locus standi of bodies representing associations, etc. ----- 877 Locus standi on the ground of contingent damage ----- 878 Locus standi against bills affecting water and water supply - - - - 879 Locus standi against amalgamation bills ------- 879 Locus standi on the ground of competition (S.O. 92) ----- 879 Locus standi of " frontagers " against a tramway bill (S.O. 102) - - - 881 Locus standi of county and municipal authorities, etc. (S.O.s 96-101) - 881 Locus standi of consumers of gas and water ------ 882 Locus standi of shareholders, preference shareholders, and " dissentients " at a " Wharncliffe " meeting (S.O. 93) ------- 883 Locus standi of ratepayers and other persons represented - - - - 883 Locus standi against bills brought from the Lords ----- 884 Locus standi objected to on ground of want of precision or informality - 885 Locus standi and the " filled-up " bill ------- 886 Locus standi of petitioners against a consolidation bill . - 887 Miscellaneous cases of locus standi -------- 887 Revision by the House of Decisions of Referees ------- 888 Petitioners against Private Bills committed to Specially Constituted Committees - 888 Private Bill Committees instructed by the House to hear certain Petitioners - 889 Petition specially referred by House to Private Bill Committee - - - 889 CHAPTER XXXVII PROCEEDINGS IN THE HOUSE OF COMMONS ON PRIVATE BILLS General - -- -- -- -- -- - 890 Giving of notices in connection with private business - 890 Private business - - - - - - - - - -891 Conduct of bills by Members ------- 891 Private bill registers (S.O. 192) ------- 892 I. Proceedings from Presentation to Committee Stage ----- 892 Presentation of Bill (S.O. 163) - -- -- -- - 892 Printing of private bills (S.O.s 38, 164, 164A, 168) - 892 Financial memorandum required in certain cases (S.O.s 169, 219) - 893 First reading (S.O. 166) - -- -- -- - 893 Second Reading - -- -- -- -- -- 896 Interval between first and second reading (S.O. 170) - 896 Notice of second reading (S.O. 198) ------ 897 Bill examined in Private Bill Oifice (S.O.s 196, 197) - 897 Provisions in private bills, or petitions for additional provision, im- posing charges --------- - 897 Provisions relating to land revenues of the Crown - - - - 898 Peers and charges upon the people in private bills - 899 Table of Contents xxvii PAGE Bills withdrawn and bills presented in lieu of bills withdrawn (S.O.s 74» 75, 214).899 Debate on second reading - -- -- -- - 899 Deferment of stages of private bill, etc., if opposed - 901 Stages taken by mistake ------- 901 Committal (S.O. 109) - -- -- -- -- - 902 Instructions ----------- - 902 Time for moving instructions ------- 902 Principles of instructions to Private Bill Committees - 903 Power of committee to make amendments ----- 903 S.O. 17s and its effect on instructions ------ 904 Mandatory instructions ------- 904 Permissive instructions --------- 908 Inadmissible instructions - -- -- -- - 909 Instructions to divide bills - -- -- -- - 911 Grouping of Bills and Nomination of Committees ----- 912 Committees on unopposed bills (S.O.s hi and 132) - - - 913 Committees on opposed bills (S.O.s 109-114) - - - - 91a Interval between committal of opposed private bill and sitting of committee (S.O. 177) - -- -- -- - 914 Departures from ordinary procedure in committal of private bills 914 Bills referred to specially constituted committees - - - - 915 Private bills committed to a joint committee ----- 916 Notice of first sitting of Committee on private bill (S.O. 199) - 919 " Filled-up " Bill to be Deposited (S.O.s 137, 200) - 919 Supervision by the Chairman of Ways and Means (S.O.s 82, 84, 85) - 919 Scrutiny by Public Departments - -- -- -- - 930 Deposit of bills with Greater London Council, etc. - 921 Amendments to conciliate interested parties ----- 921 Limits to such amendments before sitting of the committee - - 921 II. Committee Stage and Subsequent Proceedings ------ 922 Standing Orders relating to Committees on Opposed Bills - 922 Declaration of Members (S.O. 120) ------ 92a Quorum (S.O.s 121, 122) - -- -- -- - 922 Order in which bills are to be considered (S.O. 124) - - - 933 When opposed bills become unopposed (S.O. 131) - - - 924 Reference of petitions to committee (S.O. 126) - 924 Standing Orders relating to the Committee on Unopposed Bills - - 924 Member if interested not to vote (S.O. 133) ----- 924 Right of promoters to be heard (S.O. 134) ----- 924 Standing Orders relating to Committees on Bills whether Opposed or Un- opposed ----------- - 935 Method of deciding questions (S.O. 135) ----- 925 Copies of " filled-up " bill to be laid before Members (S.O. 137) - 923 Minutes of proceedings (S.O.s 138, 145) ----- 925 Proof of compliance with certain standing orders only (S.O. 139) - 925 Ministerial reports (S.O.s 144, 146, 147, 156 B, 158) - - - 926 Other documents referred to committee ----- 926 Agreements (S.O. 157) - - - - - - - 927 Standing Orders relating to Committees on certain kinds of Bills - - 927 Bills affecting level of roads and railway ; tramroad or tramway bills 927 Tramway bills - -- -- -- -- - 927 Bills affecting charities or educational foundations (S.O. 158) - - 928 Accommodation for workmen on works (S.O. 159) - 928 Compensation water (S.O. 160) ------- 928 Limits of burial ground, gas works, etc., to be defined (S.O. 161) - 929 Bills relating to water companies (S.O. 162) ------ 929 Application of money to be recited in local authorities' bills (England and Wales) (S.O. 153) - -- -- -- - 929 Bills promoted by local authorities (S.O. 156) - 929 Bills affecting grants under Local Government Acts (S.O. 156B) - 930 Greater London Council (Money) bills (S.O.s 221-223) - - - 931 Proceedings in Committee - -- -- -- -- 931 (1) Committees on unopposed bills ------ 932 (2) Committees on opposed bills ------- 933 Proceedings on Private Bills before Specially Constituted Committees - 950 Report of Bill - 951 Every private bill as amended in committee to be printed and delivered (S.O.S 179,203). - 951 Table of Contents PAGE Bills withdrawn or referred to Examiner after report - - - 951 Recommittal of private bill - - - " " 952 Proceedings on and after report of private bill (S.O. 178) - - 953 Proceedings on Consideration and Third Reading ----- 955 Debate on consideration and third reading ----- 955 Amendments on consideration ------- 955 Bill ordered to be read the third time - - - - - - 955 Entry of amendments on consideration or third reading (S.O. 206) 955 Notice of third reading of private bill (S.O. 205) - - - - 956 Third reading of private bill (S.O. 184) ----- 957 Recommittal on third reading ------- 957 Queen's consent ---------- 957 Bill examined before being sent to the Lords (S.O. 207) - 957 Lords' Amendments (S.O.s 88, 186, 208) ------ 957 Commons' privileges infringed by the Lords ----- 959 General Provisions ----------- 959 Standing orders suspended - _- - - - - - - 959 Suspension of Bills till Following Session ------ 959 Further suspension of bills ------- - 960 CHAPTER XXXVIII PROCEEDINGS IN THE HOUSE OP LORDS ON PRIVATE AND PERSONAL BILLS, ROYAL ASSENT AND CLASSIFICATION OF ACTS Introductory ------------ - 961 (1) Private Bills - -- -- -- -- -- - 962 Proceedings before the Examiners (S.O.s 69-83) ----- 962 Standing Orders Committee (S.O.s 84-89) ------ 963 The Chairman of Committees -------- - 964 First reading (S.O. 98) ---------- 964 Petitions against private bills (S.O.s 101-103) ------ 964 Second reading - -- -- -- -- -- 964 Instructions ----------- - 965 Commitment- - -- -- -- -- -- 966 Committee of Selection (S.O. 95) - -- -- -- - 966 Select Committees on private bills ------- - 966 Select Committees ---------- - 967 Unopposed bills referred by the Chairman of Committees to a Select Committee - 969 Rejection of bill by Select Committee ------- 970 The "Unopposed Committee" - -- -- -- - 970 Committees on bills whether opposed or unopposed (S.O.s 123-130) - - 971 Recommitment of private bills - -- -- -- - 972 Deposit of amended bills (S.O. 147) ------- 972 Report stage ----------- - 972 Third reading --------- - 973 Proceedings after third reading - -- -- -- - 973 Commons' amendments (S.O. 150) -------- 973 "Withdrawal of bills - - 973 Greater London Council (Money) Bills (S.O.s 175-177) - - - - 974 Bills relating to Northern Ireland (S.O. 200) ------ 974 (2) Personal Bills (S.O.s 151-174) -------- - 974 Definition (S.O. 151) - - - - - - - - - - 974 Preliminary stages ---------- - 974 Proceedings of the Personal Bills Committee (S.O.s 166, 167) - - - 976 First reading of personal bill (S.O. 156) ------- 976 Proceedings after first reading (S.O.s 157, 162) ----- 976 Petitions against personal bills (S.O. 158) 976 Commitment of personal bills (S.O.S 159, 160, 161) - 976 Committees on personal bills -------- - 977 (3) Restitution, etc., Bills - -- -- -- -- - 977 Royal Assent - - 978 Classification of Private Acts - -- -- -- -- - 979 The present system - 979 Past systems 979 Table of Contents xxix PAGE CHAPTER XXXIX PROVISIONAL ORDERS AND CERTIFICATES: SPECIAL PROCEDURE ORDERS Introductory ---------- - 981 Scope of the Provisional Order and Special Procedure Order Systems - 983 Provisional order bills: enabling provisions - - - - - 984 Special procedure orders: enabling provisions ------ 985 Preliminary Proceedings : Provisional and Special Procedure Orders - - - 986 Procedure in Parliament on Bills for Confirming Provisional Orders - - - 986 First reading and reference to Examiners ------ 987 Second Reading - -- -- -- -- -- 987 Committee stage ---------- - 988 Amendments to confirming bills - -- -- -- - 989 Later stages ----------- - 991 Parliament Act - 991 Suspension of provisional order bills - - - - - - -991 Procedure in Parliament on Special Procedure Orders - - - - - -991 Presentation of orders - - - - - - - - - -991 Deposit of plans - -- -- -- -- -- 992 Petitions relating to orders - -- -- -- -- 993 Proceedings following Chairmen's report- ------ 994 Joint committee stage - -- -- -- -- - 995 Operation of orders - -- -- -- -- - 997 Procedure in Parliament on Bills to confirm Special Procedure Orders - - - 998 Bills to confirm orders amended by a joint committee - - - - 998 Bills to confirm orders which a joint committee has rejected - 998 Special Procedure Orders relating only to Scotland ------ 998 Procedure on orders before presentation ------- 999 Procedure on orders after presentation ------- 999 Fees and Taxation of Costs - -- -- -- -- - 1000 CHAPTER XL PRIVATE LEGISLATION PROCEDURE (SCOTLAND) Scope of Procedure Act - -- -- -- -- -- 1001 Private Legislation Affecting "Scotland and Elsewhere" ----- 1002 The "General Orders" - -- -- -- -- -- 1003 Application for a Provisional Order --------- 1003 Report by the Chairmen (Lords and Commons) ------ 1004 Procedure for Promotion of Substituted Bills ------- 1004 Proceedings before Examiner on Proposed Provisional Order - 1003 Issue of Provisional Order - 1006 Proceedings on Orders on which an Inquiry is held ------ 1006 Proceedings on Order on which no Inquiry is held ------ 1008 Procedure on Provisional Orders when modified ------- 1008 Procedure upon Bills to confirm Orders - -- -- -- - 1008 Procedure on Bills to confirm Orders on which no Inquiry has been held (S. 7) - 1009 Procedure on Bills to confirm Orders on which Inquiry has been held (S. 9) - 1009 Committal of Bill to a Joint Committee - -- -- -- - 1010 Subsequent Procedure on Bill in First House ------- 1010 Procedure in First House on Bills when no Joint Committee is Appointed - - 1010 Procedure in Second House upon Bills to confirm Order on which an Inquiry has been held - -- -- -- -- -- -- roii APPENDIX HOUSE OF COMMONS STANDING ORDERS RELATIVE TO PUBLIC BUSINESS Sittings of the House - -- -- -- -- -- IOi3 Arrangement of Public Business - -- -- -- -- 1017 Private Business - -- -- -- -- -- - 1017 Questions - 1018 Special Adjournment Motions ---------- 1019 Anticipation - -- -- -- -- -- -- 1020 xxx Table of Contents PAGB Seconders - 1020 Bringing in Bills and Nominating Select Committees at commencement of Public Business - -- -- -- -- -- -- 1021 Orders of the Day ------------ 1021 Motions for the Adjournment of the House ------- 1021 Supply and Ways and Means - -- -- -- -- - 1021 Order of the Day for Committee - -- -- -- -- 1924 Committees of the whole House - -- -- -- -- 1024 Order in the House ------------ 1024 Dilatory Motions - -- -- -- -- -- - 1025 Count of the House ------------ 1026 Closure of Debate - -- -- -- -- -- - 1026 Amendments ----------- 1027 Divisions - 1027 Public Bills - 1028 Standing Committees - 1031 Select Committees ------------ 1037 Public Accounts - 1038 Expenditure Committee - - - - - - - - - - -1038 Sittings of Committees - - - - - . - - - - -1038 Public Money ------------- 1039 Packet and Telegraphic Contracts - - - - - - - - -1039 Public Petitions - 1040 Deputy Speaker and Chairmen ---------- 1040 Members ------ X041 Witnesses - 1041 Strangers - 1041 Letters - 1042 Parliamentary Papers - 1042 Earlier Meeting of House ----------- 1043 index.
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author	May, Thomas Erskine 1815-1886
author2	Cocks, Barnett 1907-
author2_role	edt
author2_variant	b c bc
author_GND	(DE-588)117557781 (DE-588)12220073X
author_facet	May, Thomas Erskine 1815-1886 Cocks, Barnett 1907-
author_role	aut
author_sort	May, Thomas Erskine 1815-1886
author_variant	t e m te tem
building	Verbundindex
bvnumber	BV023509160
callnumber-first	L - Education
callnumber-label	LAW
callnumber-raw	LAW
callnumber-search	LAW
callnumber-sort	LAW
classification_rvk	PL 715
ctrlnum	(OCoLC)729687463 (DE-599)BVBBV023509160
dewey-full	328.42/05
dewey-hundreds	300 - Social sciences
dewey-ones	328 - The legislative process
dewey-raw	328.42/05
dewey-search	328.42/05
dewey-sort	3328.42 15
dewey-tens	320 - Political science (Politics and government)
discipline	Rechtswissenschaft Politologie
discipline_str_mv	Rechtswissenschaft Politologie
edition	18. ed.
format	Book
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id	DE-604.BV023509160
illustrated	Not Illustrated
index_date	2024-07-02T22:31:05Z
indexdate	2024-07-09T21:23:35Z
institution	BVB
isbn	0406291012
language	English
oai_aleph_id	oai:aleph.bib-bvb.de:BVB01-016832363
oclc_num	729687463
open_access_boolean
owner	DE-521 DE-188
owner_facet	DE-521 DE-188
physical	XXXV, 1108 S.
publishDate	1971
publishDateSearch	1971
publishDateSort	1971
publisher	Butterworth
record_format	marc
spelling	May, Thomas Erskine 1815-1886 Verfasser (DE-588)117557781 aut Erskine May's treatise on the law, privileges, proceedings and usage of parliament ed.: Barnett Cocks Treatise on the law, privileges, proceedings and usage of parliament 18. ed. London [u.a.] Butterworth 1971 XXXV, 1108 S. txt rdacontent n rdamedia nc rdacarrier Great Britain. Parliament -- Rules and practice Großbritannien Parliament (DE-588)1221916-2 gnd rswk-swf Großbritannien Parliament House of Commons (DE-588)35578-1 gnd rswk-swf Großbritannien Parliament House of Lords (DE-588)1025242-3 gnd rswk-swf Parlamentsrecht (DE-588)4173380-0 gnd rswk-swf Parlamentswahl (DE-588)4173374-5 gnd rswk-swf Parlament (DE-588)4044685-2 gnd rswk-swf Großbritannien Parliament (DE-588)1221916-2 b 1\p DE-604 Großbritannien Parliament House of Commons (DE-588)35578-1 b 2\p DE-604 Großbritannien Parliament House of Lords (DE-588)1025242-3 b 3\p DE-604 Parlamentswahl (DE-588)4173374-5 s 4\p DE-604 Parlamentsrecht (DE-588)4173380-0 s 5\p DE-604 Parlament (DE-588)4044685-2 s 6\p DE-604 Cocks, Barnett 1907- (DE-588)12220073X edt HBZ Datenaustausch application/pdf http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=016832363&sequence=000001&line_number=0001&func_code=DB_RECORDS&service_type=MEDIA Inhaltsverzeichnis 1\p cgwrk 20201028 DE-101 https://d-nb.info/provenance/plan#cgwrk 2\p cgwrk 20201028 DE-101 https://d-nb.info/provenance/plan#cgwrk 3\p cgwrk 20201028 DE-101 https://d-nb.info/provenance/plan#cgwrk 4\p cgwrk 20201028 DE-101 https://d-nb.info/provenance/plan#cgwrk 5\p cgwrk 20201028 DE-101 https://d-nb.info/provenance/plan#cgwrk 6\p cgwrk 20201028 DE-101 https://d-nb.info/provenance/plan#cgwrk
spellingShingle	May, Thomas Erskine 1815-1886 Erskine May's treatise on the law, privileges, proceedings and usage of parliament Great Britain. Parliament -- Rules and practice Großbritannien Parliament (DE-588)1221916-2 gnd Großbritannien Parliament House of Commons (DE-588)35578-1 gnd Großbritannien Parliament House of Lords (DE-588)1025242-3 gnd Parlamentsrecht (DE-588)4173380-0 gnd Parlamentswahl (DE-588)4173374-5 gnd Parlament (DE-588)4044685-2 gnd
subject_GND	(DE-588)1221916-2 (DE-588)35578-1 (DE-588)1025242-3 (DE-588)4173380-0 (DE-588)4173374-5 (DE-588)4044685-2
title	Erskine May's treatise on the law, privileges, proceedings and usage of parliament
title_alt	Treatise on the law, privileges, proceedings and usage of parliament
title_auth	Erskine May's treatise on the law, privileges, proceedings and usage of parliament
title_exact_search	Erskine May's treatise on the law, privileges, proceedings and usage of parliament
title_exact_search_txtP	Erskine May's treatise on the law, privileges, proceedings and usage of parliament
title_full	Erskine May's treatise on the law, privileges, proceedings and usage of parliament ed.: Barnett Cocks
title_fullStr	Erskine May's treatise on the law, privileges, proceedings and usage of parliament ed.: Barnett Cocks
title_full_unstemmed	Erskine May's treatise on the law, privileges, proceedings and usage of parliament ed.: Barnett Cocks
title_short	Erskine May's treatise on the law, privileges, proceedings and usage of parliament
title_sort	erskine may s treatise on the law privileges proceedings and usage of parliament
topic	Great Britain. Parliament -- Rules and practice Großbritannien Parliament (DE-588)1221916-2 gnd Großbritannien Parliament House of Commons (DE-588)35578-1 gnd Großbritannien Parliament House of Lords (DE-588)1025242-3 gnd Parlamentsrecht (DE-588)4173380-0 gnd Parlamentswahl (DE-588)4173374-5 gnd Parlament (DE-588)4044685-2 gnd
topic_facet	Great Britain. Parliament -- Rules and practice Großbritannien Parliament Großbritannien Parliament House of Commons Großbritannien Parliament House of Lords Parlamentsrecht Parlamentswahl Parlament
url	http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=016832363&sequence=000001&line_number=0001&func_code=DB_RECORDS&service_type=MEDIA
work_keys_str_mv	AT maythomaserskine erskinemaystreatiseonthelawprivilegesproceedingsandusageofparliament AT cocksbarnett erskinemaystreatiseonthelawprivilegesproceedingsandusageofparliament AT maythomaserskine treatiseonthelawprivilegesproceedingsandusageofparliament AT cocksbarnett treatiseonthelawprivilegesproceedingsandusageofparliament

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