An Ordinary Bill is a Bill that does not fall within the constitutional category of a Money Bill or other Bills subject to special legislative procedures.
Ordinary Bills deal with a wide range of subjects within the legislative competence of the State.
In a State with a bicameral Legislature, an Ordinary Bill may originate in either:
In a unicameral State, it is introduced and passed by the:
The main constitutional provisions governing Ordinary Bills in State Legislatures are:
Therefore:
Article 196 → Introduction and passing
Article 197 → Council's limited power
Article 200 → Governor
Article 201 → President
2. Where Can an Ordinary Bill Originate?
In a State with only a Legislative Assembly:
Ordinary Bill → Legislative Assembly
In a State with both Houses:
Ordinary Bill → Legislative Assembly OR Legislative Council
Thus, unlike a Money Bill:
An Ordinary Bill may originate in either House of a bicameral State Legislature.
3. Introduction of an Ordinary Bill
An Ordinary Bill may be introduced by:
A Minister
A Private Member
A Bill introduced by a Minister is generally called a:
Government Bill
A Bill introduced by a member who is not a minister is called a:
Private Member's Bill
4. Government Bill
A Government Bill is introduced by a:
Minister
It normally represents the legislative policy of the government.
Most major legislation introduced by the State Government takes the form of Government Bills.
5. Private Member's Bill
A Private Member's Bill is introduced by:
A legislator who is not a minister
It may be introduced to:
Raise an issue
Propose legislative reform
Draw attention to a public concern
Present an alternative policy proposal
However, most legislation enacted by the Legislature is introduced by the government.
6. Stages of an Ordinary Bill
The broad stages are:
Introduction
↓
First Reading
↓
Second Reading
↓
Committee / Detailed Examination
↓
Clause-by-Clause Consideration
↓
Third Reading
↓
Voting
↓
Other House, if applicable
↓
Governor
↓
Assent / Return / Reservation
7. First Reading
At the introduction stage:
The Bill is introduced
Its title and broad purpose may be stated
Detailed discussion is generally limited
This is commonly referred to as the:
First Reading
8. Second Reading
The second reading involves more detailed consideration.
It generally includes:
General Discussion
Members debate the:
Principle
Objective
Policy of the Bill
Detailed Consideration
The Bill may be referred to a committee for detailed examination.
9. Committee Stage
An Ordinary Bill may be referred to an appropriate committee.
The committee may examine:
Clauses
Technical provisions
Administrative implications
Financial implications
Possible amendments
The committee submits a:
Report
to the House.
Committee referral is an important mechanism for improving legislative scrutiny.
10. Clause-by-Clause Consideration
After detailed examination, the House may consider the Bill:
Clause by Clause
Members may propose amendments according to the applicable Rules of Procedure.
Each provision is examined before the House proceeds to final passage.
11. Third Reading
At the third reading, the House considers the Bill in its final form.
The discussion is generally focused on:
Whether the Bill should be passed.
The House then votes on the Bill.
12. Voting on an Ordinary Bill
Under Article 189, the general rule is:
Majority of members present and voting
subject to constitutional provisions requiring a different majority.
Therefore:
Quorum
↓
Debate
↓
Voting
↓
Majority of members present and voting
↓
Bill passed
13. Ordinary Bill in a Unicameral State
In a State having only a Legislative Assembly:
Legislative Assembly
↓
Introduction
↓
Discussion
↓
Committee / Detailed Examination
↓
Voting
↓
Passed
↓
Governor
The Bill does not have to pass through a second House.
14. Ordinary Bill in a Bicameral State
In a State having:
Legislative Assembly
Legislative Council
an Ordinary Bill may originate in either House.
The Bill must complete the required legislative process.
If one House passes the Bill, it is transmitted to the other House.
The second House may:
Pass the Bill
Reject it
Pass it with amendments
Delay consideration
15. Legislative Council's Role
The Legislative Council has a:
Revisory and Deliberative Role
in relation to Ordinary Bills.
It does not have an absolute veto over an Ordinary Bill passed by the Assembly.
The Assembly has constitutional primacy when the two Houses disagree.
16. If the Council Rejects an Assembly Bill
Suppose an Ordinary Bill is passed by the:
Legislative Assembly
and the Legislative Council:
Rejects the Bill
The Assembly may pass the Bill again.
The Constitution provides a mechanism that limits the Council's ability to block the Bill permanently.
17. If the Council Does Not Pass the Bill
If the Council does not pass an Ordinary Bill within the constitutionally prescribed period, the Assembly may pass the Bill again according to Article 197.
The Council's delaying power is therefore limited.
18. If the Council Passes Amendments
If the Council passes the Bill with amendments and the Assembly does not agree with those amendments, the Assembly may pass the Bill again in the form it considers appropriate, subject to Article 197.
Thus, the Council's amendments do not give it an absolute veto.
19. Time Limits of Legislative Council
For an Ordinary Bill originating in the Assembly:
First Transmission
The Council can delay the Bill for up to:
3 months
Second Transmission
After the Assembly passes the Bill again and sends it to the Council:
1 month
Therefore:
First time → 3 months
Second time → 1 month
The Constitution thereby limits the Council's delaying power.
20. Important Point — No Joint Sitting
There is no constitutional provision for a:
Joint Sitting
of the Legislative Assembly and Legislative Council to resolve disagreement over an Ordinary Bill.
This is an important difference from Parliament.
Therefore:
Parliament
→ Joint Sitting possible in specified cases
State Legislature
→ No Joint Sitting
21. Assembly's Primacy
The Legislative Assembly has greater authority over Ordinary Bills when there is persistent disagreement with the Council.
This does not mean that the Council is irrelevant.
The Council can:
Review legislation
Suggest amendments
Delay legislation
Provide additional deliberation
But it cannot permanently veto an Ordinary Bill passed by the Assembly.
22. Bills Originating in the Legislative Council
An Ordinary Bill may originate in the Legislative Council.
If the Assembly rejects such a Bill, the Council cannot use the Article 197 mechanism to force the Assembly to accept it.
The Assembly has the final legislative advantage.
This demonstrates:
Assembly → Greater Legislative Authority
23. Ordinary Bill vs Money Bill
Feature Ordinary Bill Money Bill
Constitutional provision Articles 196–197 Article 198–199
Origin in bicameral State Either House Only Assembly
Council's role Revisory + limited delaying power Recommendations only
Council time 3 months + 1 month framework 14 days
Speaker certification Not applicable Required
Governor can return Yes No
Joint sitting No No
24. Governor's Role
After an Ordinary Bill has been passed according to the constitutional procedure, it is presented to the:
Governor
Under Article 200, the Governor may:
Give assent
Withhold assent
Return the Bill for reconsideration
Reserve the Bill for the President
The power to return for reconsideration applies to a:
Bill other than a Money Bill
25. Governor Returning an Ordinary Bill
If the Governor returns an Ordinary Bill for reconsideration, the Legislature reconsiders it.
The Legislature may:
Accept the Governor's concerns
Amend the Bill
Pass the Bill again without changes
If the Bill is passed again, the Governor:
Cannot withhold assent
This is an important constitutional distinction.
26. Reservation for President
The Governor may reserve an Ordinary Bill for the consideration of the:
President
under Article 200.
Reservation may be:
Mandatory in specified constitutional circumstances
Discretionary in other constitutionally appropriate circumstances
For example, a Bill that endangers the position of the High Court must be reserved for the President.
27. President's Role
A Bill reserved by the Governor is dealt with under:
Article 201
The President may:
Give assent
Withhold assent
Direct the Governor to return a non-Money Bill to the State Legislature for reconsideration
If the Legislature passes the Bill again, it is returned to the President for consideration.
28. Ordinary Bill and Governor's Options
The sequence can be remembered as:
Ordinary Bill Passed
↓
Governor
├── Assent
├── Withhold Assent
├── Return for Reconsideration
└── Reserve for President
29. Ordinary Bill and President
If reserved:
Governor
↓
President
↓
Assent / Withhold
OR
Return non-Money Bill
↓
State Legislature Reconsiders
↓
President Considers Again
The President's decision is therefore different from the Governor's decision after reconsideration.
30. Ordinary Bill and Quorum
The House must satisfy the required quorum before conducting legislative business.
Under Article 189(3), the constitutional default is:
10 members or one-tenth of the total membership, whichever is greater
unless the State Legislature provides otherwise by law.
If quorum is absent:
Speaker/Chairman → Adjourn or suspend the meeting
31. Ordinary Bill and Legislative Privileges
Legislators enjoy certain protections under:
Article 194
These include freedom of speech in legislative proceedings and immunity in respect of specified speech and votes.
These protections facilitate free legislative debate.
32. Ordinary Bill and Anti-Defection
Voting on an Ordinary Bill may also be affected by the:
Tenth Schedule
A member may face disqualification in specified circumstances for voting or abstaining contrary to a valid party direction.
Thus:
Ordinary Bill + Party Whip → Possible Anti-Defection Consequences
subject to constitutional provisions and exceptions.
33. Ordinary Bill and Dissolution
The effect of dissolution of the Legislative Assembly on a pending Ordinary Bill depends on where the Bill is pending and its legislative status.
A key principle is:
A Bill pending in the Legislative Assembly generally lapses when the Assembly is dissolved.
A Bill pending in the Legislative Council but not passed by the Assembly does not lapse merely because the Assembly is dissolved.
34. Lapse of Ordinary Bills — Quick View
Situation Effect on Dissolution
Bill pending in Assembly Generally lapses
Bill passed by Assembly and pending in Council Does not lapse merely due to dissolution
Bill pending in Council but not passed by Assembly Does not lapse merely due to dissolution
Bill passed by both Houses and pending before Governor Does not lapse merely because Assembly is dissolved
The exact effect depends on the constitutional stage of the Bill.
35. Ordinary Bill and Legislative Council
The Council can contribute through:
Detailed debate
Review
Amendments
Delay within constitutional limits
Specialised representation
But the Council cannot:
Permanently block an Assembly-originated Ordinary Bill
because Article 197 limits its delaying power.
36. Importance of Ordinary Bills
Ordinary Bills constitute a major part of State legislation.
They can deal with subjects within the State's legislative competence, including matters concerning:
State administration
Public order
Public health
Agriculture
Local government
State taxation, subject to constitutional provisions
Education and other areas within constitutional competence
The precise legislative competence is determined by the Constitution's distribution of legislative powers.
37. UPSC Prelims Facts
Ordinary Bills are governed mainly by Articles 196, 197 and 200.
In a bicameral State, an Ordinary Bill may originate in either House.
In a unicameral State, an Ordinary Bill originates in the Legislative Assembly.
An Ordinary Bill may be introduced by a Minister or a Private Member.
Article 197 limits the delaying power of the Legislative Council.
The Council can delay an Assembly-originated Ordinary Bill for up to 3 months on the first occasion.
After the Assembly passes it again, the Council can delay it for up to 1 month.
There is no joint sitting of the two Houses of a State Legislature.
The Legislative Assembly has greater authority over Ordinary Bills.
An Ordinary Bill originating in the Council can ultimately be defeated by the Assembly.
Governor may return an Ordinary Bill for reconsideration.
Governor cannot return a Money Bill for reconsideration.
If an Ordinary Bill is passed again after being returned by the Governor, the Governor cannot withhold assent.
Governor may reserve an Ordinary Bill for the President.
Article 201 deals with Bills reserved for the President.
Speaker certification is specifically associated with Money Bills, not Ordinary Bills.
The general voting rule is majority of members present and voting, subject to constitutional exceptions.
Quorum is governed by Article 189.
Legislative privileges are governed by Article 194.
The Tenth Schedule may affect voting by legislators.
Dissolution may cause certain pending Bills to lapse depending on their stage.
38. UPSC Prelims Traps
Trap 1
"An Ordinary Bill can be introduced only in the Legislative Assembly."
False
In a bicameral State, it can originate in either House.
Trap 2
"Legislative Council has an absolute veto over an Ordinary Bill."
False
Its delaying power is constitutionally limited.
Trap 3
"State Legislature has a joint sitting to resolve disagreement over an Ordinary Bill."
False
There is no constitutional provision for a joint sitting.
Trap 4
"Council gets only 14 days to consider an Ordinary Bill."
False
The 14-day period applies to a Money Bill.
For an Assembly-originated Ordinary Bill, the Council's delaying periods are:
3 months + 1 month
Trap 5
"Money Bill and Ordinary Bill follow the same procedure."
False
Money Bills have special constitutional procedures.
Trap 6
"Governor cannot return an Ordinary Bill."
False
The Governor may return an Ordinary Bill for reconsideration.
Trap 7
"If the Governor returns an Ordinary Bill and the Legislature passes it again, the Governor may again withhold assent."
False
After reconsideration and repassage, the Governor cannot withhold assent.
Trap 8
"Speaker certifies every Ordinary Bill."
False
The constitutional certification by the Speaker concerns whether a Bill is a Money Bill.
Trap 9
"An Ordinary Bill pending in the Legislative Council always lapses when the Assembly is dissolved."
False
A Bill pending in the Council but not passed by the Assembly does not lapse merely because of Assembly dissolution.
Trap 10
"Private Member's Bill means a Bill introduced by a member of the opposition."
False
It means a Bill introduced by a member who is not a minister, regardless of party.
39. Easy Memory Trick
Key Articles
196 → Bills
197 → Council's limited power
198 → Money Bill Procedure
199 → Money Bill Definition
200 → Governor
201 → President
Ordinary Bill in Bicameral State
Either House
↓
Passage
↓
Other House
↓
Council Delay
↓
3 Months
↓
Assembly Repasses
↓
Council
↓
1 Month
↓
Assembly Prevails
↓
Governor
Governor
Ordinary Bill
↓
Assent
OR
Return
OR
Reserve
OR
Withhold
40. Quick Revision
ORDINARY BILL
↓
Can originate in either House
↓
First Reading
↓
Second Reading
↓
Committee / Detailed Scrutiny
↓
Clause-by-Clause Consideration
↓
Third Reading
↓
Voting
↓
Other House
↓
Governor
↓
Assent / Return / Reservation
↓
Law
In case of Council delay:
Assembly Bill
↓
Council
↓
3 Months
↓
Assembly Repasses
↓
Council
↓
1 Month
↓
Assembly's Will Prevails
41. Mains Perspective
The procedure for Ordinary Bills in a State Legislature reflects the balance between:
Bicameral Deliberation
and:
Democratic Majority
The Legislative Council provides:
Revision
Deliberation
Additional scrutiny
Representation of specialised interests
But Article 197 prevents the Council from becoming an absolute veto chamber.
The Legislative Assembly therefore retains greater authority while the Council performs an important revisory role.
42. Challenges
The legislative process may face:
Limited Scrutiny
Bills may sometimes be passed without adequate committee examination.
Political Polarisation
Political disagreements can reduce constructive deliberation.
Disruptions
Frequent disruptions can reduce legislative productivity.
Limited Research Capacity
Members may lack adequate technical and legislative research support.
Delayed Committee Reports
Detailed scrutiny may be affected by procedural delays.
43. Reform Perspective
The quality of Ordinary Bill legislation can be improved through:
Greater Committee Referral
Important Bills should receive detailed examination.
Pre-Legislative Consultation
Stakeholders and citizens should be consulted where appropriate.
Adequate Debate
Members should have sufficient time to examine Bills.
Better Research Support
Legislators should have access to professional legislative research.
Transparent Amendments
Proposed amendments should be made available well before voting.
Stronger Legislative Capacity
Members and legislative staff should receive training in lawmaking and policy analysis.
The goal should be:
Better Scrutiny → Better Legislation → Better Governance
44. Conclusion
An Ordinary Bill is the standard form of legislation in a State Legislature outside the special constitutional categories such as Money Bills.
The key points are:
Bicameral State → Can originate in either House
Assembly-originated Bill → Council has limited delaying power
First delay → 3 months
Second delay → 1 month
No Joint Sitting
Governor → Article 200
President → Article 201 for reserved Bills
Assembly → Greater Legislative Authority
The overall purpose is to balance:
Deliberation + Revision + Majority Rule + Constitutional Safeguards