A
first reading is when a
bill is introduced to a
legislature. Typically, in the
United States, 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 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, 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 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 bills), in which case debate is permitted. This exception is necessary because section 53 gives senators the right to move requests to the House of Representatives for amendments to a financial bill (to which the Senate is not allowed to amend) at stage of consideration of the bill, including on the first reading. 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 in relation to the
1988 rape allegation against the
Attorney-General Christian Porter, was narrowly negatived in a
division. Similar arrangements are in place in the parliaments of the states and territories.
Canada In the
House of Commons of Canada, in addition to the usual introduction of a bill by a member for first reading, a member of the
cabinet may move a motion to appoint or to instruct a committee to prepare a bill.
Hong Kong In the
Legislative Council of Hong Kong, the short title of the bill is read by the clerk at a council meeting as a formality. The bill is published in the Legal Supplement No. 3 of the
gazette prior to the first reading.
Republic of Ireland In 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 (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
Israeli Knesset, the committee consideration occurs between first and second readings and (for
private member bills) 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.
New Zealand In
New Zealand, 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. It was possible in the earliest years of the
New Zealand Parliament for a bill to be defeated on first reading if a member introduced it and no one seconded it, even if the first reading did not require a formal vote. However, the practice of requiring a seconder for a motion has since been removed, and thus an introduced bill cannot be defeated until the end of its first reading.
Poland In the Polish
Sejm, 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 decides to refer them to the plenum.
Russia In the Russian
State Duma, 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.
United Kingdom In both Houses of the
British Parliament, bills introduced by the government or by MPs and Lords who won the
private members' ballot automatically receive a first reading without the need for the bill being discussed or voted on; the same applies for bills brought from the other House (for example, a bill which has completed all its stages in the House of Lords is immediately brought to the House of Commons, where it receives a first reading). Bills introduced under the
Ten Minute Rule are subject to a debate lasting not more than ten minutes (equally divided between a supporter and an opponent), followed by a vote is held on the motion "That leave be granted to bring in" the bill; the latter receives a first reading only if the motion is carried. After a bill has been read a first time, it is ordered to be printed. == Second reading == A
second reading is the stage of the legislative process where a draft of a
bill 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.
Hong Kong In Legislative Council of Hong Kong, the second reading of the bill starts with the government official or member who introduces the bill moving the motion,"that the bill be read the second time", which they will explain the purpose of the bill. The debate on the bill would then usually been adjourned after the motion is moved, with the bill referred to the House Committee, a committee consisting of all members of the Legislative Council, to allow Members more time to study it. This will be done either in the House Committee, or in a bills committee set up by the House Committee.
Israel In the
Knesset, 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.
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.
Poland In the Polish
Sejm, 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 bill's detailed provisions are considered in the second reading, and then voted on clause by clause.
United Kingdom In both Houses of the British Parliament the second reading includes a debate on the general outlines of the bill, followed by a vote on the motion "that the Bill be now read a second time" (or sometimes on a
wrecking amendment to that motion). If the motion is carried, the bill is then sent either to a
standing committee or to a
Committee of the Whole House, where it is considered and 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. ==Third reading==