Bills, Motions and Committees

The path of an ordinary bill:

• It may start in either House. After it is introduced, the member in charge may move that it be taken into consideration, referred to a Select Committee of the House, referred to a Joint Committee of both Houses (only with the other House's concurrence), or circulated to elicit public opinion.
• It is passed by each House and then goes to the President for assent (Article 111).
• Article 108: if one House rejects the bill, the Houses disagree on amendments, or six months pass without the other House passing it, the President may call a joint sitting. The Speaker presides and a simple majority of members present and voting decides.
• A joint sitting is not available for a money bill (the Rajya Sabha can only delay it) or a constitutional amendment bill (each House must pass it separately by a special majority).
• Joint sittings have been held three times: the Dowry Prohibition Bill (1961), the Banking Service Commission (Repeal) Bill (1978) and the Prevention of Terrorism Bill (2002).

Money bills (Articles 109, 110 and 117):

• Article 110: a money bill deals only with taxes, government borrowing, the custody of the Consolidated Fund or the Contingency Fund, and appropriation of money from the Consolidated Fund, and related matters.
• A bill is not a money bill merely because it provides for fines, fees for licences or services, or a tax by a local authority for local purposes.
• The Speaker decides whether a bill is a money bill, and the decision is final.
• It can be introduced only in the Lok Sabha, on the President's recommendation (Article 117).
• Article 109: the Rajya Sabha may discuss it and recommend changes, but must return it within 14 days, and cannot reject or amend it. The Lok Sabha may accept or reject the recommendations.

The budget: Article 112 requires the Annual Financial Statement (estimated receipts and expenditure for the year) to be laid before Parliament. Article 113: the demands for grants are voted by the Lok Sabha only. Article 114: the Appropriation Bill.

The adjournment motion:

• Draws the House's attention to a definite matter of urgent public importance that is recent. It is an extraordinary procedure that sets aside normal business.
• Used in the Lok Sabha only, and needs the support of 50 members. It carries an element of censure of the government.
• The matter must be one for which the Government of India is responsible. A matter within the jurisdiction of a State Government cannot be raised by it.
• The Speaker has full discretion to give or refuse consent.

Parliament likewise does not discuss matters that lie wholly with a State government.

How committees work:

• Members are elected by the House (by proportional representation) on a motion, or nominated by the Speaker or the Chairman, depending on the committee.
• Standing committees are permanent; ad hoc committees are set up for a task and end with it (the Railway Convention Committee is ad hoc).
• The three financial committees are standing committees: the Public Accounts Committee, the Estimates Committee and the Committee on Public Undertakings.
• Public Accounts Committee: examines the accounts of the Government of India and the CAG's audit reports. 22 members (15 Lok Sabha, 7 Rajya Sabha). Its chairperson is appointed by the Speaker, by convention from the opposition.
• Estimates Committee: 30 members, all from the Lok Sabha.