House of Commons of The United Kingdom - Procedure

Procedure

See also the stages of a bill section in Acts of Parliament in the United Kingdom

Like the Lords, the Commons meets in the Palace of Westminster in London. The Commons chamber is small and modestly decorated in green, in contrast with the large, lavishly furnished red Lords chamber. There are benches on two sides of the chamber, divided by a centre aisle. This arrangement reflects the design of St Stephen's Chapel, which served as the home of the House of Commons until destroyed by fire in 1834. The Speaker's chair is at one end of the Chamber; in front of it is the Table of the House, on which the Mace rests. The Clerks sit at one end of the Table, close to the Speaker so that they may advise him or her on procedure when necessary. Members of the Government sit on the benches on the Speaker's right, whilst members of the Opposition occupy the benches on the Speaker's left. In front of each set of benches a red line is drawn on the carpet, which members are traditionally not allowed to cross during debates. It has been suggested that the distance between the lines in front of each set of benches is the length of two swords, thus stopping a member from attacking a member on the opposing side. However, the only person who is allowed to wear or carry a sword in the chamber is the Serjant-at-Arms. Government ministers and the leader of the Opposition and the Shadow Cabinet sit on the front rows, and are known as "frontbenchers". Other Members of Parliament, in contrast, are known as "backbenchers". All Members of Parliament cannot fit in the Chamber, which can seat only 427 of the 650 Members. Members who arrive late must stand near the entrance of the House if they wish to listen to debates. Sittings in the Chamber are held each day from Monday to Thursday, and also on some Fridays. During times of national emergency, the House may also sit at weekends.

Sittings of the House are open to the public, but the House may at any time vote to sit in private, which has occurred only twice since 1950. Traditionally, a Member who desired that the House sit privately could shout "I spy strangers" and a vote would automatically follow. In the past, when relations between the Commons and the Crown were less than cordial, this procedure was used whenever the House wanted to keep its debate private. More often, however, this device was used to delay and disrupt proceedings; as a result, it was abolished in 1998. Now, Members seeking that the House sit in private must make a formal motion to that effect. Public debates are broadcast on the radio, on television by BBC Parliament, and are recorded in Hansard.

Sessions of the House of Commons have sometimes been disrupted by angry protesters throwing objects into the Chamber from the galleries—items thrown include leaflets, manure, flour (see Fathers 4 Justice House of Commons protest), and a canister of chlorobenzylidene malonitrile (tear gas). Even members have been known to disturb proceedings of the House. For instance, in 1976, Conservative MP Michael Heseltine seized and brandished the Mace of the House during a heated debate. However, perhaps the most famous disruption of the House of Commons was caused by King Charles I, who entered the Commons Chamber in 1642 with an armed force in order to arrest five members for high treason. This action was deemed a breach of the privilege of the House, and has given rise to the tradition that the monarch not set foot in the House of Commons.

Each year, the parliamentary session begins with the State Opening of Parliament, a ceremony in the Lords Chamber during which the Sovereign, in the presence of Members of both Houses, delivers an address outlining the Government's legislative agenda. The Gentleman Usher of the Black Rod (a Lords official) is responsible for summoning the Commons to the Lords Chamber. When he arrives to deliver his summons, the doors of the Commons Chamber are traditionally slammed shut in his face, symbolising the right of the Lower House to debate without interference. He then knocks on the door three times with his Black Rod, and only then is granted admittance, where he informs the MPs that the Monarch awaits them, after which they proceed to the House of Lords for the Queen's Speech.

During debates, Members may speak only if called upon by the Speaker (or a Deputy Speaker, if the Speaker is not presiding). Traditionally, the presiding officer alternates between calling Members from the Government and Opposition. The Prime Minister, the Leader of the Opposition, and other leaders from both sides are normally given priority. Formerly, all Privy Counsellors were also granted priority; however, the modernisation of Commons procedure in 1998 led to the abolition of this tradition.

Speeches are addressed to the presiding officer, using the words "Mr Speaker," "Madam Speaker," "Mr Deputy Speaker," or "Madam Deputy Speaker." Only the presiding officer may be directly addressed in debate; other Members must be referred to in the third person. Traditionally, Members do not refer to each other by name, but by constituency, using forms such as "the Honourable Member for ," or, in the case of Privy Counsellors, "the Right Honourable Member for ." Members of the same party refer to each other as "my (Right) Honourable friend". This may not always be the case during the actual oral delivery, when it might be difficult for a Member to remember another Member's exact constituency, but it is invariably followed in the transcript entered in the Hansard. The Speaker enforces the rules of the House and may warn and punish Members who deviate from them. Disregarding the Speaker's instructions is considered a breach of the rules of the House and may result in the suspension of the offender from the House. In the case of grave disorder, the Speaker may adjourn the House without taking a vote.

The Standing Orders of the House of Commons do not establish any formal time limits for debates. The Speaker may, however, order a Member who persists in making a tediously repetitive or irrelevant speech to stop speaking. The time set aside for debate on a particular motion is, however, often limited by informal agreements between the parties. Debate may also be restricted by the passage of "Allocation of Time Motions", which are more commonly known as "Guillotine Motions". Alternatively, the House may put an immediate end to debate by passing a motion to invoke Closure. The Speaker is allowed to deny the motion if he or she believes that it infringes upon the rights of the minority. Today, Bills are scheduled according to a Timetable Motion, which the whole House agrees in advance, negating the use of a guillotine.

When the debate concludes, or when the Closure is invoked, the motion in question is put to a vote. The House first votes by voice vote; the Speaker or Deputy Speaker puts the question, and Members respond either "Aye" (in favour of the motion) or "No" (against the motion). The presiding officer then announces the result of the voice vote, but if his or her assessment is challenged by any Member or the voice vote is unclear, a recorded vote known as a division follows. The presiding officer, if he or she believes that the result of the voice vote is clear, may reject the challenge. When a division occurs, members enter one of two lobbies (the "Aye" lobby or the "No" lobby) on either side of the Chamber, where their names are recorded by clerks. A member who wishes to pointedly abstain from a vote may do so by entering both lobbies, casting one vote for and one against. At each lobby are two tellers (themselves Members of the House) who count the votes of the members.

Once the division concludes, the tellers provide the results to the presiding officer, who then announces them to the House. If there is an equality of votes, the Speaker or Deputy Speaker has a casting vote. Traditionally, this casting vote is exercised to allow further debate, if this is possible, or otherwise to avoid a decision being taken without a majority (e.g. voting No to a motion or the third reading of a bill). Ties rarely occur—the last one was in July 1993. The quorum of the House of Commons is 40 members for any vote. If fewer than 40 members have participated, the division is invalid.

Formerly, if a Member sought to raise a point of order during a division, suggesting that some of the rules governing parliamentary procedure are violated, he was required to wear a hat, thereby signalling that he was not engaging in debate. Collapsible top hats were kept in the Chamber just for this purpose. This custom was discontinued in 1998.

The outcome of most votes is largely known beforehand, since political parties normally instruct members on how to vote. A party normally entrusts some Members of Parliament, known as whips, with the task of ensuring that all party members vote as desired. Members of Parliament do not tend to vote against such instructions, since those who do so jeopardise promotion, or may be deselected as party candidates for future elections. Ministers, junior ministers and parliamentary private secretaries who vote against the whips' instructions usually resign. Thus, the independence of Members of Parliament tends to be low, although "backbench rebellions" by members discontent with their party's policies do occur. A member is also traditionally allowed some leeway if the particular interests of his constituency are adversely affected. In some circumstances, however, parties announce "free votes", allowing members to vote as they please. Votes relating to issues of conscience such as abortion and capital punishment are typically free votes.

Pairing is an arrangement where a Member from one party agrees with a Member of another party not to vote in a particular division, allowing both MPs the opportunity not to attend.

A bisque is permission from the Whips given to a Member to miss a vote or debate in the House to attend to constituency business or other matters.