Ordinary bill is a bill that is presented by any house of parliament and is passed by both houses of parliament. An ordinary bill, according to Articles 107 and 108 of the Indian Constitution, is concerned with any issue other than financial matters. It can originate in either House of the state legislature (if the legislature is bicameral). A bill of this nature can be proposed by a minister or by any other member. 

This article explains the Ordinary bill and its procedures are important for UPSC IAS exam preparation.  

Ordinary Bills

• Ordinary bill is introduced in any House of Parliament. This bill is introduced by a Minister or a Private Member of Parliament. 
• An ordinary bill is concerned with any issue other than financial concerns, according to Articles 107 and 108 of the Indian Constitution.
• There is no recommendation of the President in the case of ordinary bills.
• Ordinary bills can be changed or rejected by Rajya Sabha, and they can be delayed for six months. 
• Article 111 of the Indian Constitution requires that a bill be brought to the President for his approval or assent after it has been enacted by both houses of Parliament. 
• In the event of an ordinary bill, there is a provision for a joint sitting.
• An ordinary bill goes through five stages before it becomes a law:
  • First reading,
  • Second reading
  • Third reading.
  • Bill in the Second House
  • Assent of the President

Procedure for Enactment of Ordinary Bills

First Reading

• The member who wishes to introduce the bill must request leave of the House.
• When the House grants leave to introduce a bill, the bill's mover introduces it by reading the bill's title and objectives.
• At this point, there is no debate on the bill. The bill is then published in the Gazette of India.
• If a bill is published in the Gazette prior to its introduction, no leave of the House is required to introduce the bill.
• The bill's introduction and publication in the Gazette constitute the bill's first reading.

Second Reading

During this stage, the bill is subjected to both general and detailed scrutiny before taking on its final form. As a result, it is the most important stage in the passage of a bill. In fact, this stage is divided into three sub-stages:

(a) General Discussion Stage

• The bill's printed copies are distributed to all members.
• The general principles of the bill and its provisions are discussed, but the specifics of the bill are not.
• At this point, the House has the option of taking one of four actions:
  • it may consider the bill immediately or at a later date;
  • it may refer the bill to a House select committee;
  • it may refer the bill to a joint committee of the two Houses; or
  • it may circulate the bill to elicit public opinion.
• A Select Committee is made up of members of the House where the bill originated, while a Joint Committee is made up of members of both Houses of Parliament.

(b) The Committee Stage

• The usual procedure is to refer the bill to a select committee of the House.
• This committee thoroughly examines the bill, clause by clause. It can also change its provisions without changing the underlying principles.
• After scrutinising and debating the bill, the committee reports it back to the House.

(c) The Consideration Stage

• The House considers the bill's provisions clause by clause after receiving it from the select committee. Each clause is discussed and voted on individually.
• Members may also propose amendments, which, if accepted, become part of the bill.

Third Reading

• At this point, the debate is limited to whether the bill should be accepted or rejected as a whole, with no amendments permitted because the general principles underlying the bill have already been scrutinised during the second reading stage.
• If the bill is accepted by the majority of members present and voting, it is considered passed by the House.
• Following that, the bill is authenticated by the House's presiding officer and sent to the second House for consideration and approval.
• Only when both Houses agree on a bill, with or without amendments, is it considered to have been passed by Parliament.

Bill in the Second House

• The bill is also passed through all three stages in the second House, namely first reading, second reading, and third reading. This House has four options:
  • it can pass the bill as sent by the first house (without amendments);
  • it can pass the bill with amendments and send it back to the first House for reconsideration;
  • it can reject the bill entirely; or
  • it can take no action and thus keep the bill pending.
• If the second House passes the bill without amendments or if the first House accepts the amendments proposed by the second House, the bill is considered to have been passed by both Houses and is sent to the president for his signature.
• Whereas, if the first House rejects the amendments proposed by the second House, or the second House rejects the bill entirely, or the second House does not take any action for six months, then a deadlock is declared.
• To break this deadlock, the president can call a joint sitiing of the two Houses.
• The bill is deemed to have been passed by both Houses if the majority of members present and voting in the joint sitting approve it.

Assent of the President

• After both Houses of Parliament have passed a bill, either singly or in a joint sitting, it is presented to the president for his assent. The president has three options:
  • he may give his assent to the bill;
  • he may withhold his assent to the bill; or
  • he may return the bill to the Houses for reconsideration.
• If the president signs the bill, it becomes an act and is entered into the Statute Book.
• If the President refuses to sign the bill, it dies and does not become an act.
• If the President returns the bill for reconsideration, and it is passed by both Houses again, with or without amendments, and presented to the President for his assent, the President must sign the bill.
• As a result, the President has only a "suspensive veto."

Ordinary Bills - Recent Examples

• The National Commission for Homoeopathy (Amendment) Bill 2021
• The National Commission for Indian System of Medicine (Amendment) Bill 2021
• The Central Universities (Amendment) Bill 2021.

So far only 3 Bills have been approved by the joint session of the Parliament. They are:

• The Dowry Prohibition Bill (1960)
• The Banking Service Commission (Repeal) Bill (1977)
• POTA Bill (2002) in place of TADA.

All the three Bills were initiated in the Lok Sabha and they all were rejected by the Rajya Sabha.

Conclusion

An ordinary bill is one that is introduced by any house of parliament and passed by both houses. A Bill is only a draft before it becomes an Act of Parliament. In order to become an Act of Parliament, the Bill must complete the steps mentioned above. Only by following the requirements for each form of Bill will it be qualified to be considered a law.

FAQs

Q1: What is an ordinary bill?

Q2: How is an ordinary bill different from a money bill?

Q3: What is the process of passing an ordinary bill in the Indian Parliament?

Q4: Can the Rajya Sabha reject an ordinary bill?

Q5: What happens if the President refuses to give assent to an ordinary bill?

MCQs

1. Which of the following can introduce an ordinary bill?

a) Only the President

b) Only a member of the Lok Sabha

c) Only a member of the Rajya Sabha

d) Any member of either house of Parliament

2. How does the passage of an ordinary bill differ from a money bill in Parliament?

a) Money bills can only be introduced in the Rajya Sabha

b) The Rajya Sabha cannot amend or reject a money bill

c) Ordinary bills must be introduced by the Prime Minister

d) Ordinary bills do not require the President’s assent

3. What happens if there is a deadlock between the Lok Sabha and Rajya Sabha over an ordinary bill?

a) The President can pass the bill

b) The bill is automatically passed after 30 days

c) A joint sitting of both houses is called

d) The bill is rejected

4. Which stage of an ordinary bill involves a detailed discussion and voting on each clause?

a) First Reading

b) Second Reading

c) Committee Stage

d) Third Reading

5. What can the Rajya Sabha do if it disagrees with an ordinary bill passed by the Lok Sabha?

a) It can reject or amend the bill

b) It can refuse to debate the bill

c) It can override the Lok Sabha

d) It can pass the bill without changes

GS Mains Questions and Model Answers

Q1. Discuss the legislative process for an ordinary bill in the Indian Parliament.

Answer: The legislative process for an ordinary bill in the Indian Parliament involves several stages. The bill can be introduced in either the Lok Sabha or Rajya Sabha by a minister or a private member. The first stage is the First Reading, where the bill is introduced and its general principles are discussed. The bill then goes to the Second Reading, which is the most important stage where each clause of the bill is discussed and amendments may be proposed and voted on.
Following this, the bill undergoes the Third Reading, where members debate the final form of the bill. If passed by one house, it moves to the other house, where it undergoes a similar process. In case of disagreement between the two houses, a joint sitting may be called to resolve the deadlock. Once both houses pass the bill, it is sent to the President for assent. Upon receiving the President’s assent, the bill becomes law.

Q2. Analyze the role of the Rajya Sabha in the legislative process of an ordinary bill.

Answer: The Rajya Sabha plays a critical role in the legislative process of an ordinary bill, though its powers are somewhat limited compared to the Lok Sabha. An ordinary bill can be introduced in either house, and the Rajya Sabha has the authority to discuss, amend, or even reject the bill. This makes the Rajya Sabha a vital forum for deliberation and revision of proposed legislation.
However, the Rajya Sabha does not have the final say in passing a bill. If there is a disagreement between the two houses, the Constitution provides for a joint sitting, where members of both houses come together to vote on the bill. In such cases, the Lok Sabha’s larger numerical strength often prevails. Nevertheless, the Rajya Sabha’s role is crucial in ensuring that the concerns of states and diverse stakeholders are considered in the legislative process.

Q3. Evaluate the importance of the joint sitting mechanism in resolving deadlocks over ordinary bills.

Answer: The joint sitting mechanism in the Indian parliamentary system is an essential tool for resolving deadlocks over ordinary bills between the Lok Sabha and Rajya Sabha. In cases where the two houses cannot agree on a bill, the President can summon a joint sitting of both houses, as provided under Article 108 of the Constitution. This process ensures that legislative stalemates do not indefinitely delay the passage of important bills.
The joint sitting also reflects the federal nature of India’s Parliament, as it balances the interests of both the directly elected Lok Sabha and the indirectly elected Rajya Sabha. However, the Lok Sabha’s numerical superiority means that it usually prevails in joint sittings, which reinforces the dominance of the lower house in the legislative process. Overall, the joint sitting mechanism is crucial for maintaining the efficiency and functionality of Parliament, ensuring that legislative business is not hindered by political differences.

Previous Year Questions on  Ordinary Bills

1. UPSC CSE Mains 2016

Question. What happens when the Rajya Sabha rejects an ordinary bill passed by the Lok Sabha? Explain the procedure to resolve such a deadlock.

Answer: When the Rajya Sabha rejects an ordinary bill passed by the Lok Sabha, or if it proposes amendments that the Lok Sabha disagrees with, a deadlock arises. The Constitution provides a mechanism to resolve such a deadlock through a joint sitting of both houses of Parliament. The joint sitting is convened by the President of India under Article 108 of the Constitution.
During the joint sitting, members of both the Lok Sabha and Rajya Sabha debate and vote on the bill together. Since the Lok Sabha has more members, it generally prevails in the joint sitting. This mechanism ensures that legislative processes are not indefinitely stalled due to disagreements between the two houses. Joint sittings have been rare in India’s parliamentary history, highlighting the importance of consensus-building in the legislative process.

2. UPSC CSE Mains 2017

Question. Analyze the role of the President in the legislative process of an ordinary bill.

Answer: The President of India plays a key role in the legislative process of an ordinary bill at the final stage. Once an ordinary bill has been passed by both the Lok Sabha and Rajya Sabha, it is presented to the President for assent. The President has three options: to give assent to the bill, to withhold assent, or to return the bill to Parliament for reconsideration (except in the case of a money bill).
If the bill is returned and passed again by both houses with or without amendments, the President is constitutionally obliged to give assent. The President's role, while largely ceremonial, acts as a check to ensure that all constitutional and legal requirements are fulfilled before a bill becomes law. The President’s assent is the final step that transforms a bill into an enforceable law in India.