First Reading
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A reading of a
bill Bill(s) may refer to: Common meanings * Banknote, paper cash (especially in the United States) * Bill (law), a proposed law put before a legislature * Invoice, commercial document issued by a seller to a buyer * Bill, a bird or animal's beak Plac ...
is a stage of
debate Debate is a process that involves formal discourse on a particular topic, often including a moderator and audience. In a debate, arguments are put forward for often opposing viewpoints. Debates have historically occurred in public meetings, a ...
on the bill held by a general body of a
legislature A legislature is an assembly with the authority to make law Law is a set of rules that are created and are enforceable by social or governmental institutions to regulate behavior,Robertson, ''Crimes against humanity'', 90. with its p ...
. In the Westminster system, developed in the
United Kingdom The United Kingdom of Great Britain and Northern Ireland, commonly known as the United Kingdom (UK) or Britain, is a country in Europe, off the north-western coast of the continental mainland. It comprises England, Scotland, Wales and North ...
, there are generally three readings of a bill as it passes through the stages of becoming, or failing to become,
legislation Legislation is the process or result of enrolled bill, enrolling, enactment of a bill, enacting, or promulgation, promulgating laws by a legislature, parliament, or analogous Government, governing body. Before an item of legislation becomes law i ...
. Some of these readings may be formalities rather than actual debate. The procedure dates back to the centuries before literacy was widespread. Since many members of Parliament were illiterate, the Clerk of Parliament would read aloud a bill to inform members of its contents. By the end of the 16th century, it was practice to have the bill read on three occasions before it was passed.


Preliminary reading

In the
Israel Israel (; he, יִשְׂרָאֵל, ; ar, إِسْرَائِيل, ), officially the State of Israel ( he, מְדִינַת יִשְׂרָאֵל, label=none, translit=Medīnat Yīsrāʾēl; ), is a country in Western Asia. It is situated ...
i
Knesset The Knesset ( he, הַכְּנֶסֶת ; "gathering" or "assembly") is the unicameral legislature of Israel. As the supreme state body, the Knesset is sovereign and thus has complete control of the entirety of the Israeli government (with ...
,
private member bill A private member's bill is a bill (proposed law) introduced into a legislature by a legislator who is not acting on behalf of the executive branch. The designation "private member's bill" is used in most Westminster system jurisdictions, in whi ...
s do not enter the house at first reading. Instead, they are subject to a preliminary reading, where the members introducing the bill present it to the Knesset, followed by a debate on the general outlines of the bill followed by a vote on whether to send it to committee to be prepared for first reading or to remove it from the agenda.


First reading

A first reading is when a
bill Bill(s) may refer to: Common meanings * Banknote, paper cash (especially in the United States) * Bill (law), a proposed law put before a legislature * Invoice, commercial document issued by a seller to a buyer * Bill, a bird or animal's beak Plac ...
is introduced to a
legislature A legislature is an assembly with the authority to make law Law is a set of rules that are created and are enforceable by social or governmental institutions to regulate behavior,Robertson, ''Crimes against humanity'', 90. with its p ...
. Typically, in the
United States The United States of America (U.S.A. or USA), commonly known as the United States (U.S. or US) or America, is a country primarily located in North America. It consists of 50 states, a federal district, five major unincorporated territorie ...
, the title of the bill is read and the bill is immediately assigned to a committee. The bill is then considered by committee between the first and second readings. In the
United States Senate The United States Senate is the upper chamber of the United States Congress, with the House of Representatives being the lower chamber. Together they compose the national bicameral legislature of the United States. The composition and pow ...
and most British-influenced legislatures, the committee consideration occurs between second and third readings. In most non Westminster-style legislatures, a vote is taken on the general outlines of the bill before being sent to committee.


Australia

In the
Australian House of Representatives The House of Representatives is the lower house of the bicameral Parliament of Australia, the upper house being the Senate. Its composition and powers are established in Chapter I of the Constitution of Australia. The term of members of the ...
, a bill is automatically read a first time without any question being proposed upon presentation of the bill or it being received from the Senate. However, in the
Australian Senate The Senate is the upper house of the Bicameralism, bicameral Parliament of Australia, the lower house being the House of Representatives (Australia), House of Representatives. The composition and powers of the Senate are established in Chapter ...
, the question on the first reading is always moved immediately after introduction (which is a separate motion altogether) or receipt from the House of Representatives and may be voted on. Amendments to or debate on the first reading is not permitted, except for bills subject to section 53 of the Constitution (i.e. appropriation and
money bill In the Westminster system (and, colloquially, in the United States), a money bill or supply bill is a bill that solely concerns taxation or government spending (also known as appropriation of money), as opposed to changes in public law. Conv ...
s), in which case debate is permitted. The first readings of most ordinary bills are almost always a formality and are passed "on the voices". In extremely rare circumstances however, the Senate may vote against the first reading, which prevents the bill from proceeding further. This has happened as recently as June 2021, when the ''Ministerial Suitability Commission of Inquiry Bill 2021'' (Cth), introduced by Greens Senator
Larissa Waters Larissa Joy Waters (born 8 February 1977) is an Australian politician. She is a member of the Australian Greens and has served as a Senator for Queensland since 2018. She previously served in the Senate from 2011 to 2017, resigning during the ...
in relation to the 1988 rape allegation against the
Attorney-General In most common law jurisdictions, the attorney general or attorney-general (sometimes abbreviated AG or Atty.-Gen) is the main legal advisor to the government. The plural is attorneys general. In some jurisdictions, attorneys general also have exec ...
Christian Porter Charles Christian Porter (born 11 July 1970) is an Australian former politician and lawyer who served as the 37th Attorney-General of Australia from 2017 to 2021 in the Turnbull government and the subsequent Morrison government. He was a Me ...
, was narrowly negatived in a
division Division or divider may refer to: Mathematics *Division (mathematics), the inverse of multiplication *Division algorithm, a method for computing the result of mathematical division Military *Division (military), a formation typically consisting ...
. Similar arrangements are in place in the parliaments of the states and territories.


Canada

In the
House of Commons of Canada The House of Commons of Canada (french: Chambre des communes du Canada) is the lower house of the Parliament of Canada. Together with the Crown and the Senate of Canada, they comprise the bicameral legislature of Canada. The House of Common ...
, in addition to the usual introduction of a bill by a member for first reading, a member of the
cabinet Cabinet or The Cabinet may refer to: Furniture * Cabinetry, a box-shaped piece of furniture with doors and/or drawers * Display cabinet, a piece of furniture with one or more transparent glass sheets or transparent polycarbonate sheets * Filing ...
may move a motion to appoint or to instruct a committee to prepare a bill.


Republic of Ireland

In the
Oireachtas The Oireachtas (, ), sometimes referred to as Oireachtas Éireann, is the Bicameralism, bicameral parliament of Republic of Ireland, Ireland. The Oireachtas consists of: *The President of Ireland *The bicameralism, two houses of the Oireachtas ...
of Ireland, the first stage of a bill is by either of two methods: * ''introduction'' by a private member moving a motion "that leave be given to introduce" the bill—the bill goes to second stage if the motion is carried * ''presentation'' on behalf of either the
government A government is the system or group of people governing an organized community, generally a state. In the case of its broad associative definition, government normally consists of legislature, executive, and judiciary. Government is a ...
(unlimited numbers) or a parliamentary group (one at a time per group in the Dáil, three in the Seanad)—the bill automatically goes to second stage


Israel

In the
Israel Israel (; he, יִשְׂרָאֵל, ; ar, إِسْرَائِيل, ), officially the State of Israel ( he, מְדִינַת יִשְׂרָאֵל, label=none, translit=Medīnat Yīsrāʾēl; ), is a country in Western Asia. It is situated ...
i
Knesset The Knesset ( he, הַכְּנֶסֶת ; "gathering" or "assembly") is the unicameral legislature of Israel. As the supreme state body, the Knesset is sovereign and thus has complete control of the entirety of the Israeli government (with ...
, the committee consideration occurs between first and second readings and (for
private member bill A private member's bill is a bill (proposed law) introduced into a legislature by a legislator who is not acting on behalf of the executive branch. The designation "private member's bill" is used in most Westminster system jurisdictions, in whi ...
s) between preliminary and first readings, and the first reading includes a debate on the general outlines of the bill followed by a vote on whether or not to send it to committee.


Poland

In the Polish
Sejm The Sejm (English: , Polish: ), officially known as the Sejm of the Republic of Poland (Polish: ''Sejm Rzeczypospolitej Polskiej''), is the lower house of the bicameral parliament of Poland. The Sejm has been the highest governing body of t ...
, the first reading comprises a debate on the general outlines of the bill. Notably, only constitutional amendment bills, money bills, electoral law bills, and law code bills have their first reading at a plenary session of the Sejm; all other bills have their first reading occur in committee, unless the
Marshal of the Sejm The Marshal of the Sejm , also known as Sejm Marshal, Chairman of the Sejm or Speaker of the Sejm ( pl, Marszałek Sejmu, ) is the speaker (chair) of the Sejm, the lower house of the Polish Parliament. The office traces its origins to the 15th ...
decides to refer them to the plenum.


Russia

In the Russian
State Duma The State Duma (russian: Госуда́рственная ду́ма, r=Gosudárstvennaja dúma), commonly abbreviated in Russian as Gosduma ( rus, Госду́ма), is the lower house of the Federal Assembly of Russia, while the upper house ...
, the first reading includes a debate on the general outlines of the bill followed by a vote on whether or not to send it to committee.


New Zealand

In
New Zealand New Zealand ( mi, Aotearoa ) is an island country in the southwestern Pacific Ocean. It consists of two main landmasses—the North Island () and the South Island ()—and over 700 smaller islands. It is the sixth-largest island count ...
, once a bill passes first reading it is normally referred to a select committee. However, the government can have a bill skip the select committee stage by a simple majority vote in Parliament. Even if the first reading does not require a formal vote, a bill can nonetheless be defeated on first reading if a member introduces it and no one seconds it.


Second reading

A second reading is the stage of the legislative process where a draft of a
bill Bill(s) may refer to: Common meanings * Banknote, paper cash (especially in the United States) * Bill (law), a proposed law put before a legislature * Invoice, commercial document issued by a seller to a buyer * Bill, a bird or animal's beak Plac ...
is read a second time. In most Westminster-style legislatures, a vote is taken on the general outlines of the bill before being sent to committee. In most non-Westminster-style legislatures, the bill's detailed provisions are considered in the second reading, and then voted on clause by clause.


Republic of Ireland

In the Oireachtas, the second reading is referred to as "second stage", though the subheading "second reading" is used in Dáil standing orders, and the motion at second stage is still "that the Bill is to be read a second time". A bill introduced in one house enters the other house at second stage, except that the Seanad second stage is waived for Dáil
consolidation bill A consolidation bill is a bill introduced into the Parliament of the United Kingdom with the intention of consolidating several Acts of Parliament or Statutory Instruments into a single Act. Such bills simplify the statute book without significan ...
s. Once the bill passes second stage it is referred to a select committee of that house or taken in committee stage by the whole house.


Israel

In the
Knesset The Knesset ( he, הַכְּנֶסֶת ; "gathering" or "assembly") is the unicameral legislature of Israel. As the supreme state body, the Knesset is sovereign and thus has complete control of the entirety of the Israeli government (with ...
, the bill's detailed provisions are considered in the second reading, and then voted on clause by clause. However, continuous stretches of clauses without any proposed amendments (which includes different wordings for the same clause written in the original bill), are voted as a single bloc. The starting point for the bill considered in second reading is its post-committee consideration text, which can vary widely from the bill voted on in first reading, even to the point of mergers and splits.


Poland

In the Polish
Sejm The Sejm (English: , Polish: ), officially known as the Sejm of the Republic of Poland (Polish: ''Sejm Rzeczypospolitej Polskiej''), is the lower house of the bicameral parliament of Poland. The Sejm has been the highest governing body of t ...
, the second reading comprises a consideration of the committee's report on the bill (as committee consideration between first and second readings), and an introduction of any proposed amendments, although the Sejm's standing orders do not provide for a clause by clause vote on the bill itself, or on any amendment, during the second reading. If amendments are introduced to a bill, it is returned for further committee consideration between second and third readings unless the Sejm decides otherwise.


Russia

In the Russian
State Duma The State Duma (russian: Госуда́рственная ду́ма, r=Gosudárstvennaja dúma), commonly abbreviated in Russian as Gosduma ( rus, Госду́ма), is the lower house of the Federal Assembly of Russia, while the upper house ...
, the bill's detailed provisions are considered in the second reading, and then voted on clause by clause.


United States

In the United States Senate, a bill is either referred to committee or placed on the Calendar of Business after second reading. No vote is held on whether to read the bill a second time. In U.S. legislatures where consideration in committee precedes second reading, the procedure varies as to how a bill reaches second reading. In Illinois, for example, legislation is automatically read a second time, after which amendments are in order.


New Zealand

In New Zealand, once a bill passes a second reading it is then considered clause-by-clause by the whole Parliament. If a majority of Parliament agree, the bill can be considered part-by-part, saving considerable time. Because most bills must have majority support to pass a second reading, it is now very rare for a bill to be considered clause-by-clause.


Third reading

A third reading is the stage of a legislative process in which a bill is read with all
amendment An amendment is a formal or official change made to a law, contract, constitution, or other legal document. It is based on the verb to amend, which means to change for better. Amendments can add, remove, or update parts of these agreements. They ...
s and given final approval by a legislative body. In legislatures whose procedures are based on those of the Westminster system, the third reading occurs after the bill has been amended by committee and considered for amendment at report stage (or, in Israel's case, second reading). In most bicameral legislatures, a bill must separately pass the third reading in both chambers. Once that happens, it is sent on for
promulgation Promulgation is the formal proclamation or the declaration that a new statutory or administrative law is enacted after its final approval. In some jurisdictions, this additional step is necessary before the law can take effect. After a new law ...
, such as
royal assent Royal assent is the method by which a monarch formally approves an act of the legislature, either directly or through an official acting on the monarch's behalf. In some jurisdictions, royal assent is equivalent to promulgation, while in other ...
in the Westminster system or signing by the president or governor in the U.S. model. In some bicameral legislatures, such as the
Parliament of Poland The parliament of Poland is the bicameral legislature of Poland. It is composed of an upper house (the Senate) and a lower house (the Sejm). Both houses are accommodated in the ''Sejm'' complex in Warsaw. The Constitution of Poland does not ref ...
or of the Czech Republic, a bill must pass three readings in the lower house, but only one reading in the upper house, at which the bill may be passed unchanged, amended, or rejected; and if the bill is not passed unchanged by the upper house, it is returned to the lower house, which may impose its original version by a
supermajority A supermajority, supra-majority, qualified majority, or special majority is a requirement for a proposal to gain a specified level of support which is greater than the threshold of more than one-half used for a simple majority. Supermajority ru ...
, and is sent to promulgation after passing both chambers. This "imperfect" procedure requires that all bills must be introduced to the lower house, although this may be mitigated by giving the upper house the right to submit bills to the lower. In a unicameral legislature, after passing the third reading in the sole chamber, the bill goes on directly for promulgation.


Republic of Ireland

In the Oireachtas of Ireland, the equivalent of the third reading is referred to as the "fifth stage" or "final stage". The motion is "That the Bill do now pass", except that the Seanad motion for a
money bill In the Westminster system (and, colloquially, in the United States), a money bill or supply bill is a bill that solely concerns taxation or government spending (also known as appropriation of money), as opposed to changes in public law. Conv ...
is "That the Bill be returned to the Dáil". When a bill passes one house, it is sent to the other house and enters at second stage. After both houses have passed the bill, it is sent to the
President of Ireland The president of Ireland ( ga, Uachtarán na hÉireann) is the head of state of Republic of Ireland, Ireland and the supreme commander of the Defence Forces (Ireland), Irish Defence Forces. The president holds office for seven years, and can ...
to be signed into law.Seanad Standing Orders 163


Poland

In the Polish
Sejm The Sejm (English: , Polish: ), officially known as the Sejm of the Republic of Poland (Polish: ''Sejm Rzeczypospolitej Polskiej''), is the lower house of the bicameral parliament of Poland. The Sejm has been the highest governing body of t ...
, the third reading comprises a presentation of the amdnemdnets passed in second reading (or of a second committee report on the bill that was returned to committee after second reading), and a voting sequence: first on a motion to reject the bill (if one is introduced), then on the amendments introduced in second reading, and a final vote on the bill as amended.


See also

* *
Bill (law) A bill is proposed legislation under consideration by a legislature. A bill does not become law until it is passed by the legislature as well as, in most cases, approved by the executive. Once a bill has been enacted into law, it is called an '' ...
*
Parliamentary procedure Parliamentary procedure is the accepted rules, ethics, and customs governing meetings of an assembly or organization. Its object is to allow orderly deliberation upon questions of interest to the organization and thus to arrive at the sense or t ...
*
Separation of powers Separation of powers refers to the division of a state's government into branches, each with separate, independent powers and responsibilities, so that the powers of one branch are not in conflict with those of the other branches. The typic ...


References


Bibliography

* Australian Senate
'Consideration of legislation'
''Brief Guides to Senate Procedure'', No. 9, Department of the Senate, Canberra. * * * {{DEFAULTSORT:Reading (Legislature) Statutory law