Most major new legislation reaches Parliament in the form of a Government Bill, but the motivation behind it can come from several sources. Usually Government departments or Commissions and Committees of Inquiry suggest new laws. On the other hand, pressure from particular groups who have supporters in Parliament (nature conservation and animal welfare charities, landowners or industrialists for example), can stimulate debates which may influence the introduction of new legislation. The main proposals for legislation appear in the Queen's speech at the beginning of every session of Parliament. Once the Cabinet has agreed on the proposed legislation, new Bills are steered through Parliament by the relevant Minister.
Legislation can also result from Private Members' Bills. These are brought before the Commons by an MP, who has a personal or constituency interest in a particular subject, or they can be introduced by a peer or peeress in the House of Lords. If they are to succeed, Private Members' Bills must concern an urgent issue that is widely supported by members across all political parties. In the past they have addressed the abolition of the death penalty, animal welfare, sexual behaviour, abortion and other issues of conscience.
The passage of Bills through Parliament.
Before a new Bill becomes law, it passes through many stages and in Parliament, examined, debated and amended, before finally being adopted. This long process of discussion offers opportunities to change the wording of the proposed law.
The detailed content of Government Bills is prepared by civil servants and parliamentary draughtsmen. They sometimes seek advice from outside sources before publishing the draft Bill, but must get agreement inside Whitehall (from the Treasury for example) before the Government can agree to it. Once Government Ministers have approved the draft Bill, it is usually introduced into the House of Commons, although some Bills start in the House of Lords.
The First Reading in the House of Commons is a formality to tell MPs a new Bill is on its way. At the First Reading an order is issued for the draft Bill to be printed and a date is set for the Second Reading.
The Second Reading provides an opportunity for a general discussion of the Bill, establishing 'markers' for future amendments. MPs are briefed by their assistants and consider the opinions of their constituents and the arguments of the interest groups the Bill will affect. The Wildlife Trusts are often very active at this stage, informing MPs and putting forward ideas.
If the Bill passes its Second Reading, it goes into Committee. Standing Committees consider the Bill line by line in the light of debates held at the Second Reading and other information presented to them. By this time it is normally accepted that the Bill will become law, and the Opposition concentrates on negotiating changes to individual points. When the Committee has finished making changes, the Bill passes back to the whole House to "report" any changes.
The Report Stage provides another opportunity for amendments to be discussed. finally, the Bill is subject to a Third Reading - a tidying up stage - before it passes to the House of Lords.
In the Lords, the Bill passes through the same process. Instead of a Standing Committee, the Lords employ a Committee of the Whole House to scrutinise the Bill line by line. Amendments can be introduced and 'second thoughts' discussed before the motion 'that the Bill now do pass' is voted on. This gives the Opposition a final chance to call for changes and slow the adoption of the law.
Amendments proposed by the Lords are considered in the Commons and are either accepted or rejected. The Commons have authority in cases of dispute between the two Houses, and the Lords will withdraw their objections if they meet with strong opposition. The Bill then receives Royal Assent, and the new Bill - now an Act of Parliament - is law.
Influencing legislation
The Wildlife Trusts ensure their views on wildlife issues are heard by MPs, Lords, Government Ministers and civil servants. The best way for you to help us do this is to find out what legislation is passing through Parliament and make sure that your MP understands the impact on wildlife and the environment. Your local wildlife trust can brief you on the current issues and the best arguments to present to your MP.
Although Parliament may seem a long way from our everyday lives, MPs do listen to their constituents and will take your concerns into account.
Further reading
Greer, I (1985) The Right to be Heard Pitman Press, Bath. A simple guide to how Parliament works and some ways to influence it.
Wilson, D (1993) Campaigning: The A-Z of public advocacy. Hawksmere Plc. London. Useful sections on working with your MP and getting campaigns up and running.