An introduction to Parliament

Parliament Explained

An Introduction
to Parliament
Parliament is responsible
for making and repealing laws
in the UK and for scrutinising
the work of the Government.

What is Parliament? 1
Parliament and Government 2
The House of Commons 3
How laws are made 9
The House of Lords 11
The Government 13
The Monarchy 14

What is
Parliament?
Parliament is the highest legislative
authority in the United Kingdom – the
institution responsible for making and
repealing UK law – and is also responsible
for scrutinising (checking) the work of
the Government.

The Parliament of the United Kingdom
consists of:

• The House of Commons (659 elected
Members of Parliament or MPs)

• The House of Lords (approximately 700
unelected members known as peers)

• The Queen (our hereditary monarch)

All three combine to carry out the work
of Parliament.

1 Parliament Explained

Parliament and
Government
What is the Government? What is the difference
between Parliament
The Government is made up of approximately
and Government?
100 members of the political party which
has the majority of seats in the House of Parliament is the supreme authority in
Commons following a general election. the UK, made up of nearly 1,400 elected
Most of these will come from the House of and unelected members and the monarch.
Commons, the elected Chamber, but there Parliament can use its power to limit the
will also be some from the House of Lords. actions of Government in a number of
ways and thus prevent it from becoming
too dominant.

House of Commons 659 MPs House of Lords c 700 Members
Opposition Parties Governing Party Governing Party Opposition Parties & Crossbenchers

Government
Shadow Ministers Prime Minister Ministers Whips
Ministers Whips
Whips Backbenchers
Whips
Backbenchers Law Lords
Backbenchers Bishops
Backbenchers

An Introduction to Parliament 2

The House
of Commons
What is the Elections
House of Commons? What is a general election?
Fair and free elections are an essential part of a democracy,
The House of Commons consists of 659 Members of Parliament
allowing citizens to determine how they want the country to
(MPs) who are democratically elected by voters (the ‘electorate’)
be governed. A general election is held when Parliament is
to each represent an area of the UK known as a constituency
dissolved by the Queen on the advice of the Prime Minister of
or seat.
the day. All seats in the House of Commons are then vacant and
the leader of the party that wins the most seats in the Commons
The main functions of the House of Commons are:
in the subsequent general election forms the government. In the
• to pass laws; United Kingdom we do not have fixed-term Parliaments, that is
the time between general elections, and there is no minimum
• to provide (by voting for taxation) the means
length of a Parliament. The maximum life of a Parliament is five
of carrying on the work of government;
years and within that period it is up to the Prime Minister to decide
• to scrutinise government policy and administration, when to call a general election. Thursdays are popular days for
including proposals for expenditure; and elections although there is no law that says this must be so.
• to debate the major issues of the day.
What role do political parties play?
The political party which wins the most seats in the House A political party is a group of people who seek to influence
of Commons at a general election is known as the governing or form the government according to their agreed views and
party and its leader becomes the Prime Minister. The second principles. Political parties are essential in a democracy to provide
largest party is known as the Official Opposition and its leader voters with a choice between options. The Westminster Parliament
is the Leader of the Opposition. All other parties are known has traditionally been dominated by the two-party system, with
as opposition parties even though some of them will support two main parties forming the Government and Official Opposition.
the governing party. A number of other smaller parties and, occasionally independent
candidates, also win seats in Parliament.

Who can stand as a candidate
in a general election?
Most people who are British, Commonwealth or Irish Republic
citizens may stand as a candidate at a parliamentary election
providing they are aged 21 or over. However, a number of people
(eg members of the House of Lords and those who need to be
politically impartial while carrying out their jobs such as judges
and senior civil servants) are disqualified. Anyone wishing to
stand for election must be nominated on an official nomination
paper together with the names of ten electors who will support
him or her. A £500 deposit must be paid and this is lost if the
candidate does not secure 5% of the total number of votes cast
in the constituency. To stand a realistic chance of being elected
under our present system a candidate needs to represent one
of the three main political parties in Great Britain (Conservative,
Labour and Liberal democrat) or a nationalist or unionist party
in Scotland, Wales or Northern Ireland. Each party has its own
method of selecting candidates. People can also stand as
independent candidates. The fact that almost anyone can stand
for election to the House of Commons is one of the essential
freedoms in our democracy and provides voters with a choice.


Who is able to vote in What is a constituency?
parliamentary elections? The United Kingdom is divided up into areas known as constituencies.
You live in a constituency and can register to vote there when old
All British, Irish and Commonwealth citizens are entitled to
enough. Each party contesting a constituency (seat) will select one
register to vote in elections to the House of Commons providing
prospective candidate to be the MP. There may also be independent
they are 18 or over and are not disqualified in any way. Irish
candidates. You have one vote that you cast for the person who you
and Commonwealth citizens must be resident in the UK. Those
wish to represent you in Parliament. Through this you also vote for
who cannot vote are members of the House of Lords, offenders
the party which you wish to be in Government.
detained in mental hospitals, prisoners who have been sentenced
to more than 12 months imprisonment, those convicted of corrupt
or illegal practices at elections within the previous five years,
citizens of countries other than the Commonwealth or Republic
of Ireland and those who are lunatics, as legally defined. This
is very different from the situation in the early 19th century
when only around 3 adults in every 100 were eligible to vote.
The franchise (right to vote) has been gradually extended over
the past two centuries. Women over 30 were allowed to vote for
the first time in 1918 and the Representation of the People Act
1969 lowered the voting age from 21 to 18. You can only vote if
your name appears on the electoral register. Each autumn a form
is sent to every household to be completed with details of all
occupants who are eligible to vote as well as those who will be
18 during the next year but you can add your name at any time
during the year. Voting is not compulsory and can be done in
person or, on application, by post or proxy. A constituency map of London

There are currently 659 constituencies in the United Kingdom
containing an average of 67,300 electors. Constituency boundaries
are determined by a number of factors such as geographical
features, local government boundaries, area and electorate.
They are kept under review by the Boundary Commissions who
report at regular intervals, recommending any changes due to
factors such as population growth.

What happens during an election campaign?
Once the Prime Minister decides to call a general election he
or she will go to see the Monarch to request that Parliament is
dissolved. Once Parliament is dissolved the Government continues
but there cease to be any MPs. All those MPs seeking re-election
return to their constituencies as prospective candidates and they
fight the election campaign on the same basis as all other
candidates. Election campaigns are national events using all
aspects of the media to publicise party policies and personalities.
Each of the main political parties will publish a manifesto setting
out its policies on all major issues and will produce a wide range
of publicity material. There are limits to how much each party
and individual candidates can spend on their election campaigns.
Paying for political advertising on radio and television is not
permitted but political advertising is allowed in the press and on
billboards. Television and radio coverage of elections is required
to be impartial. Locally candidates will hold meetings and will
be out and about to meet as many constituents as possible in
such places as shopping centres and by knocking on doors to
canvas support. They may each post one communication relating
to the election to each household in the constituency free of
charge. Despite all of this, evidence suggests that the majority
of voters have decided how they are going to vote before the
election campaign begins and few people are influenced by what
they read or hear.


What happens on polling day? What do MPs do?
On election day voting takes place between 07.00 and 22.00 in
a number of places in each constituency, known as polling stations; There is no job description for an MP. There are many calls on
these are usually in public places such as schools and town or the time of MPs and, as individuals, it is up to them to decide
village halls. Only those voters whose names appear on the how best to carry out their role. When Parliament is in session
electoral register are eligible to vote. Voting is by secret ballot. most MPs will spend Monday to Thursday, and occasionally part
Each voter is given a ballot paper listing the names of candidates of Friday, in Westminster and the remaining time in their
in alphabetical order. The voter marks the ballot paper with a cross constituency. During the time when Parliament is not in session,
in the box opposite the name of the candidate of his or her choice recesses, MPs are able to spend more time in their constituencies.
and folds the paper to conceal the vote before placing it in the Most MPs hold advice surgeries at different venues in their
ballot box. At the end of the day the ballot boxes are then sealed constituencies where constituents can go to raise their concerns
and delivered to a central point, usually a main public building and take their problems. They attend functions, visit schools and
such as a town hall, where all of the votes are counted and the businesses, give talks and generally try to meet as many people
result announced by the Returning Officer. as possible. At Westminster MPs are involved in a variety of work
in the House of Commons to take forward issues affecting their
Which electoral system do we use? constituents, to promote their party and to participate in the
general work of Parliament.
The electoral system used in the United Kingdom for elections
to the House of Commons is the single member constituency
with simple majority, also known as the first-past-the-post
Making Laws
system. As previously explained, the country is divided up New laws are needed to deal with our constantly changing society
into single constituencies. Each party wishing to contest the hence the House of Commons spends nearly half its time making
constituency offers one candidate. Each voter has one vote that new laws. Laws are made in different ways, for example, some
he or she casts for the party or representative of their choice. are made by the European Union because when we joined in 1973,
The candidate with the largest number of votes is elected to we agreed to obey all past and future European laws. England
be the Member of Parliament for that constituency. Once elected, also has a body of law known as Common Law which has developed
the MP is the representative of everyone in their constituency, over hundreds of years from judgements given in the courts.
regardless of how, or whether, they voted. Laws made by Parliament are known as Statute Laws.

What is a by-election? Controlling Finance
A by-election occurs when a Member dies, retires or is disqualified Before the Government can raise taxes or spend money, it must
from membership of the House of Commons. Voting only takes have agreement from the House of Commons as the elected chamber
place in the constituency without a Member. If there are several of Parliament. Each year, usually in March or April, the Chancellor
vacant seats then a number of by-elections can be held on the of the Exchequer presents his budget statement to the Commons.
same day. In this he explains how the Government intends to raise the money
it needs to finance public services during the following year,
including any proposals to change taxes. On behalf of the people,
the House of Commons has a duty to make sure that taxes are not
raised without good reason and it will therefore examine and discuss
the Budget proposals very carefully. Most of the Government’s
proposed tax changes are incorporated in the Finance Bill which
will go through all its stages like any other bill although there is
no detailed discussion in the House of Lords.

The House of Commons also has to give its approval before money
can be spent by the Government. Each year the Goverment presents
its ‘Estimates’ to the House of Commons for approval. These set
out the amounts of public finance required by each government
department. Three days are set aside under House of Commons
rules for discussion of estimates. A Select Committee known as
the Public Accounts Committee keeps a check on government
departments’ finances to see whether money has been properly
and wisely spent. The Committee can see any accounts or documents
it considers necessary and can question witnesses. Once a series
of investigations is complete the Committee presents a report to
the House of Commons which may choose to debate anything that
it considers particulary serious.


On Opposition Days
The Opposition can select the topic for debate on twenty
Opposition Days each year. On seventeen of these the subject
for discussion is chosen by the Leader of the Opposition.
On the remaining three, the choice lies with the smaller
opposition parties.

Controlling indirect law-making
(Delegated Legislation)
As central government has taken on more work and Parliament
has become short of time, ministers often have to make laws
Examining the work affecting their own area of responsibility using delegated
legislation. Parliament keeps overall control by passing a ‘parent’
of the Government act which lays down limits which must not be overstepped by the
minister. As Parliament has given them this power – delegated
Parliament has a duty to examine or scrutinise the work power – this process is known as delegated legislation. Most
of the Government on behalf of the public. It does this of these laws (Statutory Instruments) are laid before Parliament
in a number of ways: and some are debated before taking effect. They are also examined
by the Select Committee on Statutory Instruments.
By Select Committees
(Committees of Inquiry) Examining European proposals
When Britain joined the European Economic Community (EEC),
Select Committees of the House of Commons monitor the work
or European Union as it is now known, in 1973 it was agreed that
of Government Departments. There is a select committee to examine
Britain should obey EU laws. Both Houses of Parliament have
each major government department. Select committees are set up
committees which examine European proposals before they become
after each general election and are usually made up of eleven back-
law – in the House of Commons this is the Select Committee
bench Members with parties represented in proportion to the number
on European Legislation. The likely effects of European laws are
of seats they have in the House of Commons. Each committee will
therefore known before they are passed. The UK sometimes has
chose particular areas of the work of their department into which
to alter its laws to bring them into line with new European laws.
to conduct an inquiry. Committees take written evidence and examine
witnesses, usually in public. At the end of their inquiry, the Committee
publishes a report which may be debated in Parliament and will be
Protecting the Individual
available to the public and to the press. The Government must respond MPs represent all of the people living in their constituency
to all reports. and consequently deal with complaints made by their constituents
who feel that they have been unfairly treated by central government.
By Asking Questions Most people will write to their MP but some prefer to meet their MP
in person. This can be done either in the constituency – most MPs
All ministers are responsible to Parliament for the work of their
hold local advice bureaux, often called surgeries, when they can
department. Each department has at least one minister in the
meet their constituents who have problems – or in the House of
House of Commons who can answer questions. The majority of
Commons. Anyone can go to Central Lobby when the House of
questions asked each year receive written answers but some
Commons is in session and fill in a green card which will then be
are answered orally at Question Time, which in the House of
taken around the building to be given to their MP (although it is
Commons lasts for nearly an hour Monday to Thursday. Each
wise to make an appointment first). Upon receiving a complaint
department has a ‘slot’, about once a month, when its ministers
against central government an MP will normally write to the
answer oral questions. The Prime Minister answers questions
appropriate minister or actually go to see the minister. If the MP
each Wednesday for 30 minutes on his own work as head of
is still not satisfied then he or she can raise the matter at question
the Government, usually on a wide range of subjects.
time and perhaps later in an adjournment debate, or in a case
of maladministration by a government department, may refer it
During Adjournment Debates to the Ombudsman. An MP can also raise some issues in the form
At the end of each day’s sitting the House adjourns (suspends its of a private Members’ bill – although few of these actually become
proceedings) until the next sitting and always finishes with a half- law it is a way of drawing attention to a problem and it may be
hour Adjournment Debate. This is a chance for an individual MP that the Government will take action as a result.
to raise a matter of special concern and get a detailed explanation
from the Minister involved. Since 1999 sittings have also taken Parliament therefore challenges the Government and makes it
place in the Westminster Hall Chamber to allow more time for accountable for its actions.
private Members’ debates.


How is the House of business elsewhere. If a Member chooses not to obey the Party
Whip he or she can be warned several times. Continued defiance
Commons organised? may eventually result in either the Whip being withdrawn or the
Member resigning the Whip. In both cases the Member is no longer
considered to belong to the party in Parliament. If the Whip is not
Since the majority of the electorate vote for the candidate who
restored, then without the party backing the Member’s seat is
is representing the party which they support rather than the
likely to be lost at the next election.
individual, MPs are expected to support their party’s policies.
Communication between MPs in a small party is straightforward
Whips are also an important channel of communication between
as they can meet regularly for informal discussion. On the other
ministers who sit on the front benches and back-benchers and
hand the larger parties have to organise themselves carefully to
can make recommendations to the party leader as to which back-
ensure that there is proper communication between all Members.
benchers are likely to make good ministers.
Much of this communication is done by important officials known
In the Chamber it is the Speaker who controls the proceedings.
as Whips. The larger parties will have a Chief Whip and 10-12
The Speaker is an MP and is elected to represent a constituency
Assistant Whips who are responsible for seeing that Members
in the same way as all other MPs. He or she is elected by Members
are kept informed about forthcoming business and that they
of the House of Commons to be their chairperson. Once elected
know which issues matter most to the party.
as Speaker, they must give up any party views and act as an
independent chairperson. It is the Speaker who decides who
Each week a whip sends the MPs in his or her party a notice,
will speak in a debate, who can ask a Supplementary Question
also known as The Whip, giving the order of business in the
at Question Time and determines whether the correct procedure
following week. Each matter to be discussed will be underlined
is being followed. ‘Order, order’ are the Speaker’s most well known
once, twice or three times, according to its importance.
words as a noisy House of Commons is brought under control.
He or she will hold constituency surgeries and spend time in
If it is underlined once then it is not a particularly important
the constituency making visits and talking to people in a similar
issue and attendance is merely requested. A rather more important
way to other Members. The Speaker may not be able to speak
matter will be underlined twice meaning that attendance is
in the Chamber on behalf of his or her constituents but will
particularly requested. When a matter is underlined three times
work with ministers and officials to ensure that their concerns
(a ‘three-line whip’) then attendance is essential and a Member
are dealt with.
will be expected to attend unless he or she is either seriously ill
or has the permission of the whips to carry out extremely urgent

The Commons Chamber

7 1 Speakers Chair
2 Table of the House
9 9 3 Despatch boxes
4 The Mace
20 20 5 The Bar of the House
6 Aye Division Lobby
20 22 20 7 No Division Lobby
8 Division Clerks’ Desks
20 20 22 20 20 26 9 Entrances to Lobbies
8 20 21 10 Exits from Lobbies
11 Petition Bag
19 17 18 21 24 12 Prime Minister
9 13 Government Whips
14 Other Ministers
10 3 15 Parliamentary
Private Secretaries
11 1 23 2 4 5 16 Government
Back-benches
3 10
17 Leader of Opposition
18 Opposition Whips
9 19 Shadow Ministers
14 12 13 16 20 Opposition
Back-benches
16 15 16
21 Liberal Democrats
25 16 16 16 16 22 Other smaller Parties
23 Clerks at the Table
16 16 22 8 24 Serjeant at Arms
25 Civil Servants
16 16 26 Strangers

9 9
6


How Laws
Are Made
No new law can be made by Parliament unless it has completed Before a bill is introduced into Parliament there is often consultation
a number of stages in both the House of Commons and the House with those who are likely to be affected. Within the sponsoring
of Lords, and has been agreed by both Houses. The Queen also Department, both the ministers and the civil servants will be
has to sign it to show that it has been given Royal Assent (these involved in the consultation process. Sometimes the Government
days a formality). Only after the Royal Assent does it become a will set out its ideas for a bill in a discussion document or
new law or Act of Parliament. Before this, while it is still going consultation paper known as a Green Paper. Organisations can then
through Parliament, it is called a Bill. Bills can begin in either send their comments back to the department. As a result of this
the House of Commons or the House of Lords. process firm proposals may then be produced in a White Paper which
will form the basis of the bill to be introduced into Parliament. Not
There are two main types of bill: Private Bills and Public Bills. all bills have green papers and white papers. The contents of the bill
Private bills are only intended to affect one particular area or then have to be written down, a process known as drafting. This
organisation. Occasionally a type of private bill known as a work is carried out by a small number of specially trained lawyers
Personal Bill is presented to Parliament. Personal bills affect called Parliamentary Draftsmen. The wording of the bill has to be
only one or two people. These always begin in the House of exact and must not leave any loopholes as once a bill becomes an
Lords. Public bills, unlike private bills, are intended to affect act then others, including judges, will have to enforce it. If the law
the public as a whole and not just one area, organisation or is not clear, a judge may take it to mean something different to what
person. There are two types of public bill – Government Bills was intended and it could also mislead others such as solicitors and
and Private Members Bills. The majority of public bills which members of the public.
succeed in becoming Acts of Parliament are sponsored by the
Government and succeed because the Government has a majority Before being formally presented to Parliament some bills are
in the House of Commons. considered in draft by select committees in a process which is
known as pre-legislative scrutiny. This enables Members with an
interest and expertise in the subject area to make suggestions
and recommendations at an early stage.

Most of the stages through which a bill must proceed are known
as Readings because in the days before printing, the only way in
which Members could find out what a bill said was by having the
contents read out to them in the Chamber. Today everyone can
have a printed copy of a bill and it is also available to the public
on the internet.


Stages of a Bill
For the purpose of the process diagram below, the bill is assumed
to have started in the Commons. However, bills can begin in either
House. Bills which start in the Lords go through the same stages.

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The House of Commons
First Reading This is when a bill is introduced into Parliament and is really just a way of letting
Members know that a bill is coming up for discussion. A date for the Second Reading
will be announced although this may well be several weeks ahead. There is no discussion
or vote at this stage so the bill automatically proceeds.

Second Reading This is the first really important stage of the Bill when the Minister in charge explains its
main purpose and will answer any general questions about the Bill. There will then be time
for debate, at the end of which the House must vote for the bill to pass to the next stage.

Committee Stage In the House of Commons most Government bills are considered by a small committee
of between 15 and 50 MPs known as a Standing Committee. A separate committee is
formed for each bill and the number of Members from each party is roughly in proportion
to the overall number of seats each party has in the Commons. Committee proceedings
take place in one of the smaller committee rooms and the rules of debate are more flexible
than those for the main Chamber. Often members will indicate their willingness to serve
on a particular standing committee because they have a specific interest in the subject.
The committee stage allows the examination of all of the detail of the bill for the first
time. Members may suggest changes or amendments to the bill and these will be voted on.
A bill which has constitutional significance or requires a very swift passage will be heard
by a Committee of the Whole House, ie in the Chamber, so that all Members can contribute.

Report Stage If there have been any amendments made by the committee then the bill will have to be
reprinted so that the whole House of Commons will have an opportunity to see how the
changes fit into the bill as a whole. Further changes can be suggested at this stage.

Third Reading This gives the House of Commons the chance to look at the bill as a whole with all of the
amendments and decide whether it should progress further. The bill cannot be changed
at this stage – it is either accepted or rejected. Often bills pass their Report and Third
Reading stages on the same day. A clerk will then take the bill to the House of Lords
so that they can consider it as soon as they have time.


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The House of Lords Royal Assent
The Bill is reprinted in the form finally agreed by the Commons and formally announced Once the House of Commons has
in the Lords. It follows a similar series of stages in the Lords but with the following considered any amendments suggested
differences: by the House of Lords, and both have
agreed to the final wording of the bill,
it has to go to the Queen for Royal Assent.
In the past the monarch would have signed
all bills in person. Now the Queen
Government Bills included in the election manifesto are, by convention, not opposed at signs what are known as Letters Patent
the Second Reading, but ‘reasoned’ amendments may be tabled as a means of indicating confirming the Royal Assent. Unless a
dissent and can be voted on. bill is urgent it will be kept waiting until
a number of other bills have reached the
same stage. At the end of each session
the Queen signs a document known as
Bills usually go to a Committee of the Whole House in the Chamber or Grand Committee away a Commission which commands certain
from the Chamber. Any member can participate. In the Commons only those amendments Lords known as Royal Commissioners to
selected by the Speaker are debated. In the Lords, there is no selection of amendments – all go to the House of Lords and let Members
can be considered. Unlike in the Commons, there are no time limits on debates and discussion of both Houses know that Royal Assent
of amendments is unrestricted. has been given.

Once a bill has received Royal Assent
it becomes an Act of Parliament. A bill
may take many months to complete all
its stages in Parliament although when
there is an urgent need a bill may go
through in a few days or even in a matter
of hours. Even after an act has received
Royal Assent, it may not come into force
This further chance to amend the bill can be spread over several days. straightaway. Some acts require a special
order called a Commencement Order before
they take effect, usually because those
affected by the new act need time to
adapt to the changed situation.

Third reading is not normally taken on the same day as the Report Stage ends, and unlike
in the Commons, amendments can be made at Third Reading provided the issue has not
been voted on at an earlier stage.


The House
of Lords
What is the House of Lords? What does the House
The House of Lords is the second chamber of the UK’s two chamber of Lords do?
Parliament. Like the House of Commons its main functions are:
Making Laws
• to pass laws;
The House of Lords is an integral part of the law making process.
All bills must be agreed by both Houses of Parliament before
• to scrutinise government policy and administration; and
receiving Royal Assent and becoming law. The House of Lords
reviews all bills that come from the Commons and will often use
• to debate the major issues of the day.
the expertise of its members and the additional time which it has
to propose amendments which must then be agreed by the House
Unlike the House of Commons, the House of Lords does not have
of Commons. A number of bills begin their life in the Lords before
a role in approving Government taxation and expenditure.
passing to the Commons. Such bills are usually technical rather
than political and enable the expertise of the Lords to be used in
There are approximately 700 Lords in the House of Lords. Members
the early stages of debate.
of the House of Lords, except those paid a salary as a minister or a
Law Lord, are not paid but are able to claim certain allowances to
Usually both Houses reach agreement but if this cannot be
cover their attendance. Attendance is not compulsory. A number of
achieved then the powers of the Lords are limited under the terms
peers are independent and do not hold any party allegiance, these
of the Parliament Acts of 1911 and 1949 and it can now only delay
are known as Crossbenchers. The Crossbenchers can often determine
the passage of a bill for about one year. By convention the Lords
the outcome of a vote.
do not reject bills which were announced in the Government’s
manifesto (election pledge). The Lords have no power over Money
Currently there are four types of Lords:
Bills and can only delay them for one month. These limitations
are to ensure that the wishes of the House of Commons, the
Life Peers – who make up the majority of the membership.
elected chamber, and the Government of the day, prevail. The
They are appointed by the Monarch on the advice of the Prime
only type of Bill introduced in the Commons that the Lords could
Minister, who will in turn take advice from others. Life peers are
reject would be a Bill to allow the Commons to extend a Parliament
often appointed for services to the country and will have expertise
beyond five years – this remains as a constitutional safeguard to
in many different fields. They are appointed for the duration of
prevent an unpopular Government from trying to retain power.
their life-time and their title ceases on death.

Law Lords – up to 12 Lords of Appeal in the Ordinary are
Scrutinising the Government
appointed to hear appeals from the lower courts. They are paid It is the duty of Parliament as a whole to keep an eye on the
a salary and can continue to hear appeals until they are 70 years work of the Government by making ministers answer for the work
old although they can continue to sit in the House of Lords as they do and the decisions they make. The House of Lords does
life peers after this age. this in a number of ways:

Bishops – the 26 most senior Archbishops and Bishops of the Question time (Starred questions)
Church of England are entitled to sit in the House of Lords because The House of Lords, like the House of Commons, makes Government
the Church of England is the ‘established’ Church of the State. ministers answer questions about their work. At the beginning of
They cease to be members of the Lords when they retire. each sitting day in the Lords, a number of oral questions are asked.
These are known as ‘starred questions’ because they have stars or
Hereditary peers – those peers who have inherited their titles from asterisks (*) next to them on the Order Paper. Question Time in the
their family – most titles pass only to the male heir. Until the House Lords takes about half an hour and includes opportunities for
of Lords Act 1999 all hereditary peers had the right to sit and vote supplementary questions.
in the Lords. This was reduced to 92 hereditary peers who were able
to remain until the next stage of reform was implemented. These General debates
consisted of 15 ‘office-holders’ who were elected by the whole General debates are discussions which will usually tackle a matter
House, two who hold royal appointments and 75 members elected of public interest or provide an opportunity to discuss a report
by their own party group or the crossbenchers. which has just come out. The House of Commons has less time
for general debates of this kind so the Lords provides a valuable
opportunity for discussing important matters, drawing on its
members’ wide range of expertise.


Mini-debates
These take the form of an Unstarred Question to the Government
How does the House of
which then leads to a short debate followed by the Government's
reply.
Lords organise itself?
The House of Lords is organised on a party basis much the
Written questions
same as in the House of Commons but with important differences.
Questions are put down for written answer and full replies
Members of the House of Lords are less rigidly partisan than
are usually provided within a fortnight.
in the Commons, whose elected members are more sensitive
to political and constituency interests. Many members of the
Statements
House are not members of any political party and are known
Government statements on important or urgent matters are
made by the Minister responsible for the subject in the House
Content Lobby
of Lords, usually repeating what is being said in the Commons. Hansard reporters Government back benches

Officials’ box
This is followed by limited time for immediate questioning.
Seats for

Providing independent expertise
Members’
spouses

The Lords has a number of Select Committees. Some of these deal Government front bench Bishops’ benches

with internal management and administration but most carry out Cloth of Estate

Chairman of Committees’
Woolsack

Steps of the Throne
Clerks at the Table

Chair at the Table
important investigative work on matters of public interest. Unlike

Crossbenchers

Wheelchairs

Throne
House
of the
Table
Bar of the House Judges’ woolsack

the Commons, these Lords committees do not mirror the work of
Lord Chancellor
particular government departments. Instead they deal with broader or Deputy Speaker
Chairs of State

issues and draw on the wide-ranging experience of members and, Official Opposition front bench Liberal Democrats front bench

in this way, complement the scrutiny of the executive carried out
by the Commons. The main areas are Europe, Science, the Economy
and the Constitution – although a separate committee can be set
up to deal with a particular issue. When a committee completes Black Rod’s box
Clerks’ box

Official Opposition back benches

its work on a particular matter, it issues a report of its conclusions Not content Lobby

for the House to debate, and for the public to see what it has
discovered. These reports are highly respected for their balance, as Independents or Crossbenchers. All political parties in the
independence and authority. Lords, as in the Commons, have business managers or ‘Whips’
who, together with the party leaders, are known as the ‘usual
Another Committee, the Delegated Powers and Regulatory Reform channels’. Party discipline and the Whips are not as strong in
Committee, makes reports, usually weekly, on bills which give powers the Lords as members are not elected so it cannot be predicted
to Government ministers to make laws (“delegated legislation”). The how the Lords will vote. The House of Lords’ contribution to
Committee’s authoritative reports often lead to bills being amended the parliamentary process is characterised by its independence
in the House. of thought and its breadth of specialist expertise and in this
way it complements the work of the Commons.
Carrying out judicial work*
The House of Lords is the highest court in the land – the supreme
Ministers in the Lords
court of appeal. It acts as the final court on points of law for the Most heads of government departments sit in the Commons
whole of the United Kingdom in civil cases and for England, Wales and are therefore not permitted to represent their departments
and Northern Ireland in criminal cases. Its decisions are binding in the Lords. In order that Government policy can be explained
for all other UK courts. This judicial work is carried out only by and questions answered in the Lords one minister from each
highly qualified judges called Law Lords. Only cases of public Government department will usually be a member of the House
importance where a significant point of law is involved are heard of Lords and will represent his or her department when required.
by the Law Lords. Once it is decided that a case should go before When a department does not have a minister in the Lords then
the Law Lords, Appeal proceedings take place – these are usually the Whips will help out and act as spokesmen on different subjects
held in a committee room and are open to the public. Once their for different departments. The Lord Chancellor*, who is a senior
conclusions are reached, the result, or judgment as it is known, member of the Cabinet, sits on the Woolsack, except when the
is announced in the Lords chamber. House is in committee. His role is very different from that of the
Speaker in the House of Commons as he does not call members to
speak and has no power to call the House to order. The Leader of
the House has a responsibility to the House as a whole as well as
being leader of the party in Government. Members look to him,
rather than the Lord Chancellor for advice and leadership on points
of order and procedure. Lords business is expected to be conducted
in an orderly and polite fashion without the need for an active
Speaker.

* At time of writing, subsequent to the Government’s cabinet reshuffle announced on 12/6/2003,
the office of the Lord Chancellor and the judicial function of the House of Lords are to be reviewed


The
Government
What is the Government? The majority of members of the Cabinet come from the House
of Commons but there will also be a few members of the House
of Lords. Cabinet meetings are usually held on a Thursday morning
The Government is made up of approximately 100 members
in the Cabinet room at 10 Downing Street. The Prime Minister
of the political party which has the majority of seats in the
can summon the Cabinet to meet at any time and meetings will
House of Commons. It is like the management of the country
be more frequent when the political situation requires.
and proposes policies which determine how the country is run.
The Conservative party won the general elections in 1979, 1983,
1987 and 1992 so we had a Conservative Government for eighteen
years. Since their election victory in 1997 and again in 2001
What are Government
we have had a Labour Government.
Departments?
One of the functions of Parliament is to scrutinise – keep a check
The work of the Government is divided between departments of state
on – the work of the Government. A Government can only remain
which each specialise in a particular subject such as the Department
in office as long as it can get support in the House of Commons for
for Education & Skills or the Ministry of Defence. The number and
its main policies.
responsibilities of government departments can be changed by the
Prime Minister according to the needs of the country. In 2001 the
What is the Cabinet? Ministry of Agriculture, Fisheries and Food was disbanded and
replaced by the Department for the Environment, Food and Rural
Affairs whilst in 2003 the Lord Chancellor’s Department was
Members of the Cabinet are senior ministers chosen by the Prime
abolished in favour of a new Department of Constitutional Affairs.
Minister. Heads of government departments and senior figures
such as the Lord Chancellor will be included in the Cabinet. There
The minister in charge of a Department is usually of Cabinet rank.
is no set number for the size of the Cabinet but it must be large
He or she may have been chosen for his or her special interest in,
enough to include all senior ministers yet small enough to allow
or knowledge of, the subjects handled by the Department and will
for constructive discussion.
make all the important decisions affecting the Department. The
Minister is usually assisted by one or more junior ministers who
are not in the Cabinet and who have a variety of titles. Some of
the more senior are known as Ministers of State, others are called
Parliamentary Under Secretaries of State or Parliamentary
Secretaries. The majority of members of the Government belong
to the House of Commons, but the major departments often have
at least one minister who sits in the House of Lords. He or she
will then be able to answer any Questions which are asked and
speak on behalf of the Department in the House of Lords.

Who are civil servants?
Government departments are staffed by permanent officials who
are known as civil servants. They are politically neutral and serve
each Government, regardless of which party is in power. Some
ministers stay in a post for only a short time before moving
elsewhere. Civil servants, on the other hand, may spend years
in one Department and therefore have the time to become experts
in the work of their Department. Ministers rely on civil servants
for advice and information that will help when policies are being
worked out but must be the ones who make important decisions
based on the facts before them. Civil servants also have a wide
range of professional and technical skills in order to run services
throughout the country such as the tax and welfare systems.


Find Out More
The Archives

Monarchy Archives from 1497, including original Acts
of Parliament, are kept in the House of
Lords’ Record Office (The Parliamentary
Archives) which is open to the public, to
What type of monarchy do we have? view records on request tel: 020 7219 3074.

At one time the monarch was the most powerful person in the country but gradually
Hansard
these powers have been given over to Parliament as a result of successive social and
The day’s proceedings are printed in the
political changes. The United Kingdom now has what is known as a constitutional
Official Report, (separate volumes are
monarchy which is also hereditary. The monarchy is financed from the Civil List. This
produced for the Commons and Lords)
is money voted by Parliament to enable the monarch to carry out all official duties.
referred to as Hansard after its original
printer. It is also available at
What are the powers of the monarch? www.parliament.uk by 8.00 the following
morning.
The power of the monarch to act without consulting Parliament is known as the Royal
Prerogative. In the past the monarch was able to act without reference to Parliament
Television
but over time these powers have become very restricted and are today mostly exercised
The televising of Parliament was pioneered
by the Government.
by the House of Lords in 1985, followed
by the House of Commons in 1989. The
The theoretical powers of the monarch include:
proceedings of both Houses can be seen
on the BBC’s Parliamentary Channel.
• Appointing the Prime Minister after a general election. Today each of the political
parties have their own processes for electing their leaders. After a general election
the monarch invites the leader of the party which has won the most seats in the
Website
House of Commons to become Prime Minister and to form a Government.
Go to www.parliament.uk for general
information on the role and function of
• Appointing Government Ministers. These are chosen by the Prime Minister who
both Houses, or details of membership,
will discuss his or her choices with the monarch.
future business, legislation and Select
Committee activity. It is possible to view
• Summoning, proroguing or dissolving Parliament. This is done on the advice
a live webcast of House proceedings at
of the Prime Minister.
the same address.
• Opening Parliament with the Queen’s Speech. This is written by the Prime Minister A website for young people can be found at
and his or her team and outlines what the Government intends to do in the forthcoming www.explore.parliament.uk
session of Parliament.

• Giving Royal Assent to legislation. This is given as a formality and has not been Education enquiries
refused since 1707. Applications for Gallery tickets for students
and educational groups and further
• Power of patronage in making official appointments and conferring honours. With information about the work of Parliament
rare exceptions such as the Order of the Garter, these are made on the advice of the can be obtained from:
Prime Minister who will have consulted widely with interested parties.
Parliamentary Education Unit
• Power to declare war and to make peace. Decisions such as these are all made by Room 604
the Government. Norman Shaw Building (North)
London SW1A 2TT
• Head of the Commonwealth. A position which carries considerable influence but all
Tel: 020 7219 2105
foreign affairs are conducted by the Government in accordance with its foreign policy.
Fax: 020 7219 0818
E-mail: edunit@parliament.uk
Maintaining the position of the monarch within our constitutional system provides
a figurehead outside of political influence who can command respect and authority.
The monarch can also provide the benefit of his or her knowledge, having dealt with
many individual officials and foreign leaders and can offer advice based on past
experience (to date 10 Prime Ministers have served the Queen since she succeeded
her father in 1952).


Other titles in this series:
1 Parliamentary Elections
2 House of Commons
3 Parliament & Government
4 Making a Law
5 Debates in Parliament
6 House of Lords

Parliamentary Copyright 2003

May be reproduced for purposes of private
study, research or educational use without
permission. Reproduction for sale or other
commercial purposes not permitted.

Chris Weeds
Education Officer
June 2003

An introduction to Parliament

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An introduction to Parliament