Manual of Parliamentary Procedures
in the Government of India
Ministry of Parliamentary Affairs
May, 2018
MESSAGE
In a Parliamentary form of Government, day-to-day working of the
Parliamentary System makes large claim on the time and resources of all Ministries/
Departments. The efficient handling of diverse, intricate and enormous Parliament
work requires that Ministries/Departments should have a clear understanding and
knowledge of Parliamentary Procedure. With this in view, Ministry of Parliamentary
Affairs has brought out the revised and updated edition of the ‘Manual of
Parliamentary Procedures in the Government of India’ It is a very comprehensive
reference book for Parliamentary work and procedures.
The changes in Parliamentary procedures, as a result of recent initiatives
by the present Government have been incorporated in this Manual. The present
Government has not only merged both General Budget and Railway Budget
but also advanced the presentation of the merged Budget to 1st of February. The
advancement of presentation of the Budget by a month has paved the way for
early completion of Budget cycle and this has enabled the Ministries to ensure
better planning and execution of schemes from the beginning of the financial year.
The consequential changes in the Parliamentary Procedure due to advancement of
Budget have been suitably incorporated in the Manual.
As a part of Digital India initiatives, Ministry of Parliamentary Affairs
has rolled out OAMS (Online Assurances Monitoring System) in respect of
Government Assurances. I hope Ministries/Departments would find this useful to
monitor the status of Government Assurances. Both the Secretariats of Parliament
have also introduced online hosting of replies to Parliament Questions, instructions
issued by them are also incorporated in the Manual. To give further push to digital
India initiative of Hon’ble Prime Minister, e-Vidhan MMP is being implemented
to enable all State Legislatures to become paperless.
I am sure that the Manual would be of great help to the Ministries, Departments
and other Stakeholders, who may have to deal with processing of legislative
proposals and others items of Parliamentary Business on a day -to- day basis.
March, 2018 (Ananthkumar)
MESSAGE
I am happy to learn that the Ministry of Parliamentary Affairs is bringing out
a new edition of the “Manual of Parliamentary Procedures in the Government of
India”.
I understand that the new edition has taken into account the changes in the
Parliamentary Procedures which have come in to effect over a period of time, I am
sure that the new edition will be immensely beneficial to the officers working in the
Ministries/Departments of Government of India.
(Arjun Ram Meghwal)
New Delhi
19.3.2018
MESSAGE
Parliament as the highest law making body in the country works in a systematical
manner. The proceedings of both the Houses of Parliament are guided by detailed
Rules of Procedures. Ministry of Parliamentary Affairs has been entrusted with
the task of handling Parliamentary work on behalf of the Government in the
Parliament and serves an important bridge between the two Houses of Parliament
and the Government. I am happy to know that Ministry of Parliamentary Affairs
is bringing out the revised and updated version of the ‘Manual of Parliamentary
Procedures’.
The Manual has been revised based on the suggestions given by Ministries,
Departments, both the Secretariats of Parliament and the changes which have been
initiated by the Union Government. The Ministry has launched the OAMS (Online
Assurance Monitoring System) for on line monitoring of Government Assurances.
I hope this will serve as a useful tool for the Ministries to monitor the status of
Government Assurances.
I am sure that this Manual will be of immense use to various Ministries
and Departments of Government of India and serve as a guiding handbook in
understanding Parliamentary work and procedures. I would also like to appreciate
the efforts made by officers of Ministry of Parliamentary Affairs in updating this
manual and wish them to continue their persistent work with the same spirit.
(Vijay Goel)
New Delhi
13.3.2018
Preface to the Fourth Edition
The Third edition of the Manual of Parliamentary Procedures in the
Government of India was brought out in 2004. In order to update the manual again,
suggestions were invited from all Ministries/Departments and both the Secretariats
of Parliament.
Based on these suggestions and also the changes taken place over a period of
time in Parliamentary procedures, the Manual has now been revised. For instance,
Ministry of Civil Aviation pointed out that Ministries/Departments are required to
consult twice the Ministry of Law & Justice (Legislative Department) for framing
up rules etc. and this double consultation is resulting in delay. The Cabinet
Secretariat also advised that the Manual may be suitably amended by the Ministry
of Parliamentary Affairs. Accordingly provisions of para 11.2 of Chapter II has
been revised.
The time of raising matters of urgent public importance in the Rajya Sabha
has been changed from 12 noon to 11 am. This has been reflected in para 15.9 of
Chapter 15.
As a part of Digital India initiative, Ministry of Parliamentary Affairs has
rolled out OAMS (Online Assurances Monitoring System) to monitor the
Government Assurances. This has also been suitably explained in the new Manual.
All Ministries/Departments are expected to use this online system hereafter.
The preparation of this Manual in fact took long time than expected, spreading
over several months on account of pressure of work during the Parliament Sessions.
I would like to place on record my deep appreciation of the efforts taken by Dr.
Satya Prakash, Joint Secretary in updating this Manual. He took pains to go through
the entire manuscript and offered valuable suggestions. I also appreciate the efforts
of Shri A.K. Jha, Under Secretary who examined all aspects of the revision in
detail and made possible this Manual under the guidance of Shri A. Manoharan,
Director. I am also thankful to Smt. Suman Bara, Deputy Secretary and Shri S.S.
Patra, Under Secretary and other Officers for their contribution in compiling this
manual. I also acknowledge the service of Shri Parvinder Khatri, Junior Secretariat
Assistant in typing out the manuscript.
I am sure this Manual will be of great help to various Ministries/Departments
of the Government of India.
Suggestions for improvement of the contents of the Manual are always
welcome.
(Surendranath Tripathi)
Secretary
Ministry of Parliamentary Affairs
Government of India
New Delhi.
April, 2018
Preface to the Third Edition
1. The first edition of the “Manual for Handling Parliamentary Work in Ministries”
was brought out by the then Department of Personnel and Administrative Reforms
in July 1973. Subsequently, in 1976, on the request of that department the work
relating to the manual was transferred to the Ministry of Parliamentary Affairs.
Keeping in view the various changes that had taken place in the Parliamentary
Procedure and Practices, the manual was revised in consultation with the concerned
Ministries and the second edition of the manual was brought out by the Ministry of
Parliamentary Affairs in 1989.
2. Over the period, there have been significant changes in the parliamentary
procedures, legislative processes, role of the departmentally-related Standing
Committees of Parliament, constituted for the first time in 1993, in examining the
Demands for Grants, Bills, annual reports of the ministries/departments and long-
term policy documents presented to the Houses. Corresponding to Rule 377 in the
Rules of Procedure and Conduct of Business in Lok Sabha, Rules 180 A-E were
inserted in the Rules of Procedure and Conduct of Business in the Rajya Sabha to
provide for raising of matters of urgent public importance by the members (Special
Mentions) in the Rajya Sabha. Urgent matters of general public importance have
also since been allowed to be raised in Zero Hour in Rajya Sabha/Lok Sabha, with
the permission of the Presiding Officers.
3. In view of the above, the manual has been again reviewed and revised in
consultation with the concerned Ministries. A new Chapter XIV has been added in
regard to nomination of members of Parliament on committees, councils, boards
and commissions etc., set up by the Government. A bibliography of additional
reading material has also been provided at the end. It is also proposed to make it
available in CD format. A copy of it will also be placed on the website ([Link]
[Link] ) of Ministry of Parliamentary Affairs.
4. It is hoped that this manual will be of immense use to various departments of the
Government of India.
5. Although every care has been taken to make the manual as complete, accurate
and useful as possible, there is, nevertheless, always scope for further improvement.
Suggestions for improvement/corrections of errors which might have crept into the
manual, would be welcome.
V.K. AGNIHOTRI
Secretary, Ministry of Parliamentary Affairs
New Delhi
June, 2004
Preface to the First Edition
1. The earlier editions of the Manual of Office Procedure contained only a
chapter devoted to procedures relating to questions, legislation, resolutions and
other motions in Parliament. When the above manual was reviewed during 1971-
72 it was felt that this important subject needed treatment in depth in a separate
manual, which would also bring at one place the various instructions relating to
parliamentary work, which are at present dispersed in a number of publications
and circulars. The relevant chapter and the connected appendix were accordingly
omitted from the latest edition of the Manual of Office Procedure and work taken in
hand to compile a separate manual for handling parliamentary work in Ministries.
2. The draft of this manual was initially prepared in this department under the
guidance of a working group consisting of officers from the Department of
Parliamentary Affairs, the Ministry of Law and Justice and some other departments.
The draft was circulated to all ministries and the manual was finalised by the
working group after taking into account their comments.
3. Every care has been taken to make the manual as complete, accurate and useful
as possible. However, suggestions for improvement and correction of inadvertent
errors which might have crept into it, would be gratefully received and carefully
considered.
M. GOPAL MENON
Additional Secretary and Director O & M
Department of Personnel and Administrative Reforms
(Administrative Reforms)
New Delhi
4th July, 1973
Contents
Messages iii
Preface to the Fourth Edition vii
Preface to the Third Edition viii
Preface to the First Edition ix
Abbreviations xii
1 Introduction 1
2 General Instructions 4
3 Questions 10
4 Laying of Papers on the Table of the House 24
5 Motions, Official Statements, Short Duration Discussions & 29
Resolutions
6 President’s Address 36
7 Budget 38
8 Assurances 45
9 Legislation 50
10 Legislation in respect of States under the President’s Rule 71
11 Subordinate Legislation 75
12 Committees of Parliament 86
13 Consultative Committees 105
14 Nomination of Members of Parliament on Committees, 108
Councils, Boards, Commissions, etc., set up by the
Government
15 Matters raised in the Lok Sabha under Rule 377, in the 113
Rajya Sabha under Rule 180 A-E and in ‘Zero Hour’
16 Miscellaneous 116
17. Constitutional Provisions relating to Parliament 123
18. Important Activities of Ministry of Parliamentary Affairs 142
Annexes
1. Proforma for intimation of legislative and other proposals 149
by Ministries/Departments
2. Type of information which the annual report of a Ministry/ 151
Department may contain
xii Contents
3. Standard list of expressions constituting assurances 153
4. Register of assurances given in Parliament (To be 156
maintained by the Parliament (Unit)
5. Register of assurances given in Parliament (To be 157
maintained by the section concerned)
6. Proforma for communicating fulfillment of assurances 158
7. Form in which the recommendation/ previous sanction of 159
the President has to be communicated by the Minister in-
charge
8. Proforma indicating the Constitutional and procedural 160
requirements to be taken note of while processing a Bill
9. Motion for introduction of a Bill 162
10. Memorandum for exemption from Direction 19A /19B 163
11. Motion for consideration and passing of a Bill 164
12. Motion for referring a Bill to a Select Committee 165
13. Motion for referring a Bill to a Joint Committee of the 166
Houses
14. Motion for circulation of a Bill for eliciting public opinion 167
15. Motion for withdrawal of a Bill in the House in which it has 168
been introduced
16. Motion for withdrawal of a Bill passed by one House and
pending in the other House:
(a) Preliminary motion in the House where the Bill is 169
pending
(b) Concurrence motion in the House where the Bill was 170
passed
(c) Final withdrawal motion in the other House where the 171
Bill is pending
17. Motion for concurrence in the recommendation for 172
reference of a Bill to a Joint Committee
18. Motion for leave to move amendments to a Bill referred to a 173
Select /Joint Committee
19. Motion for leave to move amendments to Bill in the House 174
20. Motion regarding consideration and passing/return of a Bill 175
passed in one House and pending in the other House
Contents xiii
21. Specimen form for communicating revised Financial 176
Memorandum and/or Memorandum regarding Delegated
Legislation
22. Motion for consideration and approval of a statutory rule, 177
regulation, bye-law etc.
23. Standing Committees of Parliament
(a) Constitution, composition and term 178
(b) Ministries/Departments under jurisdiction of the 182
Standing Committees
24. Form for seeking nomination of Members of Parliament on 185
Committees, Councils, Boards, Commissions etc. set up by
the Government
25. Register of Matters raised under Rule 377/Rule 180A-E 186
(Special Mentions) in Parliament (To be maintained by the
Parliament unit)
26. Register of Matters raised under Rule 377/Rule 180A-E 187
(Special Mentions) in Parliament (To be maintained by the
Section concerned)
27. Proforma for supply of information regarding addresses and 188
telephone numbers.
28. D.O. No. 73/2/5/85-Cab dated 25 April, 1985 on Transfer of 189
Questions
29. Procedure for Laying of papers on the Table of Rajya Sabha 190
30. Procedure for Laying of papers on the Table of Lok Sabha 198
31. Internet link of the Documents/Reports/Papers to be laid on 200
the Table of Lok Sabha
32. Guidelines on Constitution, Functions and Procedures of 201
Consultative Committees
33. Procedure for handling of Questions in Rajya Sabha 207
34. Procedure for handling of Questions in Lok Sabha 217
Index 228
Bibliography 261
Abbreviations
1 GSR General Statutory Rules
2 MHA Ministry of Home Affairs
3 MPA Ministry of Parliamentary Affairs
4 RS Rajya Sabha
5 LS Lok Sabha
6 RSR Rules of Procedure and Conduct of Business in the Council 1.1 This m
of States (Rajya Sabha) procedure
different i
7 LSR Rules of Procedure and Conduct of Business in Lok Sabha this manu
in the follo
8 PRO ‘Government and Parliament’ Procedure to be followed by (a) Rules
Ministries in connection with Parliamentary work Lok S
(11th Edition, June, 2014)
(b) Rules
9 SD Directions by the Speaker under the Rules of Procedure and Counc
Conduct of Business in Lok Sabha (c) Direct
and C
10 SO Statutory Orders
(d) ‘Gove
11 SRO Statutory Rules and Orders by Mi
issued
12 MMP Mission Mode Project
(e) A Me
13 OAMS Online Assurance Monitoring System Bills,
1.2 The
14 FRBM Fiscal Responsibility and Budget Management authoritati
conduct o
users of th
the public
at appropr
instruction
1.3 The d
instruction
supplemen
Chapter 1
Introduction
1.1 This manual is intended to be a compilation of the Object of the
manual
procedures to be followed by departments in handling
different items of Parliamentary work. The provisions of
this manual are based broadly on the provisions contained
in the following publications:
(a) Rules of Procedure and Conduct of Business in the
Lok Sabha;
(b) Rules of Procedure and Conduct of Business in the
Council of States (Rajya Sabha);
(c) Directions by the Speaker under the Rules of Procedure
and Conduct of Business in the Lok Sabha;
(d) ‘Government & Parliament’ Procedure to be followed
by Ministries in connection with Parliamentary work,
issued by the Lok Sabha Secretariat; and
(e) A Memorandum on the preparation and passing of
Bills, issued by the Ministry of Law and Justice.
1.2 The manual does not claim to interpret in an Scope of the
manual
authoritative manner the rules of procedure governing the
conduct of business in Rajya /Lok Sabha. Therefore, the
users of the manual are advised that in all cases of doubt,
the publications to which references have been made
at appropriate places in this manual as well as the other
instructions on the subject should be consulted.
1.3 The departments may issue from time to time, such Departmental
instructions
instructions as considered necessary on various aspects to
supplement the provisions contained in the manual.
2 Manual of Parliamentary Procedures
Definition 1.4 In this manual, unless the context otherwise requires: (m) ‘List o
the lis
(a) ‘Accessible documents’ means documents other than
and th
(i) classified documents, and (ii) documents categorised
the se
as “for official use only”;
busine
(b) ‘Article’ means an article of the Constitution of India; day;
(c) ‘Branch officer’, in relation to a section means the (n) ‘List
officer who takes the work directly from the section; secreta
(d) ‘Bulletin’ means the bulletin of each House of Unstar
Parliament; a parti
(e) ‘Central registry’ means a unit within a department (o) ‘Mem
charged with the responsibility of receiving, registering Lok S
and distributing dak meant for that department, and (p) ‘Mone
includes functionaries like resident clerk and night dealin
duty clerk; clause
(f) ‘Classified documents’ or ‘classified information’ Consti
means documents or information bearing security (q) ‘Order
grading;
(g) ‘Constitution’ means the Constitution of India;
(h) ‘Department’ means any of the ministries, departments,
secretariats and offices mentioned in the First Schedule
to the Government of India (Allocation of Business)
Rules, 1961, as amended from time to time;
(i) ‘Financial Bill’ means a Bill or amendment making
provision, among other things, for any of the matters
specified in sub-clauses (a) to (g) of clause (1) of
Article 110 of the Constitution;
(j) ‘House’ means the Rajya Sabha or the Lok Sabha, as
the case may be;
(k) ‘Houses’ means the Rajya Sabha and the Lok Sabha;
(l) ‘Joint Committee’ means a committee consisting of
members from both Houses but does not include a
committee of one House in which members of the
other House are associated;
Introduction 3
(m) ‘List of business’ also referred to as ‘order paper’ means
the list including the supplementary list of business
and the revised list of business, if any, prepared by
the secretariat of the House concerned containing the
business to be transacted by that House on a particular
day;
(n) ‘List of questions’ means the list, prepared by the
secretariat of the House concerned, of Starred,
Unstarred and Short Notice Questions to be asked on
a particular day;
(o) ‘Member’ means a member of the Rajya Sabha or the
Lok Sabha;
(p) ‘Money Bill’ means a Bill containing only provisions
dealing with all or any of the matters specified in sub-
clauses (a) to (g) of clause (1) of Article 110 of the
Constitution and certified as such by the Speaker;
(q) ‘Order paper’–see ‘List of business’;
(b) to kee
Secret
with a
Chapter 2 questi
transa
to the
General Instructions
(c) to rec
from
Parliam
name
Regulation of 2.1 The procedure and conduct of business in Parliament is (d) to tran
business
regulated by rules made under Article 118 of the Constitution officer
and, in relation to certain financial business, by law made
by Parliament under Article 119 of the Constitution. (No (e) to rem
such law has so far been made by Parliament under Article and tim
119.) the co
Duties of 2.2 The principle of collective responsibility of the Council (f) to kee
departments
of Ministers renders it necessary for the Ministers to be Minist
ready to explain every action of the Government in the of the
Rajya Sabha/Lok Sabha. This, in turn, requires the Ministry/ action
Department to be ready to brief the Minister concerned or the ca
the Cabinet adequately on all matters coming up before
(g) to pre
Parliament in whatever form they may be.
as may
Duties of officers 2.3 All officers are expected to anticipate matters that are
(h) to sub
likely to be raised in Parliament and keep ready as much
Minist
information as possible in respect of such matters.
(i) to note
General duties of 2.4 There is normally a full-fledged Parliament Unit in
Parliament Unit in the
each Ministry/Department to receive, handle, pursue
allotte
and coordinate (but not deal with substantively) all
“5½–3
Parliamentary work concerning the Ministry/Department.
the inf
The functions of this unit are:
margin
(a) to serve as a central coordinating point for all
(j) to see t
Parliamentary work;
Sabha
hour o
on day
expect
General Instructions 5
(b) to keep in touch with the Rajya Sabha/Lok Sabha
Secretariat and the Ministry of Parliamentary Affairs
with a view to obtaining advance intimation about
question(s) finally admitted and other business to be
transacted, and to transmit that information forthwith
to the concerned officers/sections;
(c) to receive through their central registry, all the dak
from the RS/LS Secretariat and the Ministry of
Parliamentary Affairs (unless they are addressed by
name to officers);
(d) to transmit without delay all the papers to the concerned
officers/sections;
(e) to remind the officers/sections concerned for prompt
and timely disposal of the matter till, where necessary,
the concerned file reaches the Minister;
(f) to keep in touch with the private secretary to the
Minister to see that the matter is brought to the attention
of the Minister without delay and to take such further
action as may be called for according to the needs of
the case;
(g) to prepare the pad for the Minister and senior officers
as may be required under departmental instructions;
(h) to submit a duplicate pad to the private secretary to the
Minister;
(i) to note in the margin, where relevant, against each item
in the list of business received for the day, the time
allotted, the time already spent and the balance thus:
“5½–3 = 2½ hours”, and if the time is not specified or
the information is not available, to state this fact in the
margin;
(j) to see that the Parliament Assistant is present in the Rajya
Sabha/Lok Sabha Official Gallery during the question
hour on question days of the Ministry/Department and
on days when business of the Ministry/Department is
expected to come up in the Rajya Sabha/Lok Sabha;
6 Manual of Parliamentary Procedures
(k) to see that a representative of the Ministry/Department 2.7 The R
is present in the Official Gallery of each House if there informatio
is business concerning the Ministry/Department in both of their o
the Houses simultaneously; with vario
be careful
(l) to arrange for one officer of the Parliament Unit to be them and
available every day when either of the Houses is in direct to t
session at the office telephone of the Unit from 09.00 from Mini
hours till half an hour after the House adjourns; in connec
(m) to keep in touch with the Parliament Assistant, and meant for
if he is not available, with the representative of the Speaker (
Ministry of Parliamentary Affairs present in the Official communic
Gallery, so as to be in a position to give information at senior offi
a moment’s notice about the stage of the proceedings 2.8 Whic
relating to that Ministry/Department; and present in
(n) to perform such other functions as may be laid down by business,
departmental instructions. The offic
Official G
Duties of the 2.5 All dak relating to Parliamentary work from the RS/LS including
Central Registry
Secretariat and the Ministry of Parliamentary Affairs: Minister.
(a) if received in the central registry, will be delivered at 2.9 A roste
once to the Parliament Unit; and during g
Departme
(b) if received by the night duty clerk will, where necessary, expected
be read over to the Parliament Assistant or, in his down poin
absence, his superior on the telephone at once and dealt of the note
with according to his instructions. concerned
Priority for 2.6.1 All references received from the RS/LS Secretariat those poin
parliamentary
papers and the Ministry of Parliamentary Affairs and all files in 2.10 A cop
connection with various items of Parliamentary work will Secretaria
be given utmost priority. will be go
2.6.2 Each Ministry/Department will issue departmental Minister.
instructions specifying the levels at which papers relating
to various items of Parliamentary work will be submitted
(a) at the dak stage, and (b) for final approval.