How should Private Members' Bills in the House of Commons be reformed?

Publications / Reports

Enhancing the role of backbench MPs: Proposals for reform of Private Members' Bills

4 Apr 2011

Carolyn Harris MP in the House of Commons Chamber, 15 December 2021. (© UK Parliament / Jessica Taylor)

Private Members’ Bills (PMBs) provide an important opportunity for backbench MPs to initiate legislative proposals and to respond to issues of public interest and concern. But in a system that enshrines the dominance of the executive a range of procedural obstacles inhibit the effectiveness of the PMB system. This report sets out how the system could be reformed.

Download the report

Read the executive summary

,
Director , Hansard Society

,
Parliamentary Specialist , Global Partners Governance

Get our latest research, insights and events delivered to your inbox

Share this and support our work

Private Members’ Bills (PMBs) should provide an important opportunity for backbench MPs to initiate legislative proposals as well as policy debate, to check the executive, and to respond to issues of public interest and concern. In recent decades, however, the number of PMBs receiving Royal Assent has largely been in decline. Executive control of the timetable has strangled many, and procedural vulnerability has thwarted others, including many that enjoyed broad parliamentary support and commanded public interest.

What procedural obstacles in the PMB system inhibit its effectiveness?

There are several key problems with the PMB system:

Friday sitting times cause difficulties in relation to the attendance of Members;
the procedural mechanisms facilitate filibustering rather than effective debate and scrutiny;
the existence of low yet complex procedural and voting thresholds enable even limited opposition to thwart popular bills; and
the resources made available to Members to develop and promote PMBs are limited.

The report's authors - Alex Brazier and Ruth Fox - with MPs Natascha Engel, Chris Bryant and Christopher Chope at the launch of the report "Enhancing the role of backbench MPs", April 2011. (© Hansard Society)

What are our proposals for reform of Private Members’ Bills?

PMB sitting times should be reformed: the key to management of PMB time should be to maximise opportunities for debate as flexibly as possible. We propose PMB time should be increased from the current 65 hours to perhaps 80 hours to be allocated by the Backbench Business Committee in, for example, any combination of the following:
- on Monday, Tuesday and Wednesday evenings;
- on Wednesday mornings for up to two hours;
- on Thursday afternoons or evenings (including in Westminster Hall); and
- on Fridays (on a limited basis and for second reading only)
Each stage should be able to accumulate over more than one sitting if required, as is the case with government bills, in order to maximise use of time and build flexibility into the system.
Timetabling should be introduced through an automatic guillotine applied to each stage of a PMB on the floor of the House: three hours for Second Reading; three hours each for consideration of a bill reported back from a Public Bill Committee and from a Report Committee (see below); and one hour for Third Reading.
Time for consideration of PMBs should be allocated according to a fixed order of priority to eliminate the opportunity for Members to speculatively ‘game the system’ by laying down a PMB on a non-sitting day.
Carry-over motions could be applied to a small number of well-supported bills to ensure they are not lost at the end of each session.
The House should reach a settled view on the value of time limits on speeches during PMB debates.
The Public Bill Committee (PBC) stage should be reformed by removing the government’s current power to decide whether more than one PBC for PMBs should exist at any one time. Where appropriate, PBCs might also hold public-evidence hearings.
A PMB Report Committee should be established to take report stage off the floor of the House.
The resources available to help those Members who top the PMB ballot to draft their bill should be uprated (from the current £200 agreed in 1971).

Cite this

Brazier, A. & Fox, R. (2011), Enhancing the role of backbench MPs: Proposals for reform of Private Members' Bills, (Hansard Society: London)

Latest / Highlights

News / Assisted dying bill: Special series #10 - Parliament Matters podcast, Episode 89

Having cleared detailed scrutiny in a Public Bill Committee, the Terminally Ill Adults (End of Life) Bill faces its next crucial test when it returns to the House of Commons for Report Stage on 16 May. This stage is often where Private Members' Bills falter. Will opponents of Kim Leadbeater’s proposals to legalise assisted dying win enough support to amend the Bill? Can supporters of the Bill fend off attempts to change it? And could the Bill be lost altogether, because of the procedural hurdles that still stand in its way?

News / Parliament Matters Bulletin: What’s coming up in Parliament this week? 28 April - 2 May 2025

MPs will debate the Football Governance Bill for the first time and consider controversial proposals to give government access to benefit recipients’ bank data in the Public Authorities (Fraud, Error and Recovery) Bill. The Great British Energy Bill faces a further hurdle over modern slavery concerns in solar panel supply chains. Orders on extended VE Day pub hours and banning ‘ninja swords’ will be considered. David Lammy and Shabana Mahmood face committee scrutiny, while Richard Foord seeks to require parliamentary approval for a UK–US trade deal. Mayors Andy Burnham and Kim McGuinness will give evidence on industrial strategy, and Dr Fiona Hill will speak about social mobility and education.

News / Should Parliament roll out the red carpet for Donald Trump? - Parliament Matters podcast, Episode 88

After Parliament’s rare Saturday sitting to pass the Steel Industry (Special Measures) Bill with minimal scrutiny, we explore concerns about rushed legislation and unchecked ministerial powers. The Speaker Sir Lindsay Hoyle faces criticism for allegedly protecting Keir Starmer at PMQs. Meanwhile, as MPs and Peers move to block a possible Trump address to Parliament during his second UK State Visit, we discuss who controls invitations to speak and where on the parliamentary estate.

Submissions / Evidence to the House of Commons Modernisation Committee: Priorities and strategic aims

In response to the Modernisation Committee's call for views on 17 October 2024, we submitted evidence outlining key areas we believe the Committee should prioritise. Our submission recommended a focus on: strengthening legislative scrutiny, with particular emphasis on reforming the delegated legislation system; enhancing financial scrutiny, especially in relation to the Budget and the Estimates; addressing strategic gaps in parliamentary scrutiny; making more effective use of parliamentary time; and reviewing the Standing Orders, language and rituals of the House of Commons.

Briefings / The Assisted Dying Bill: A guide to the Private Member's Bill process

This briefing explains what to watch for during the Second Reading debate of the Terminally Ill Adults (End of Life) Bill on 29 November. It outlines the procedural and legislative issues that will come into play: the role of the Chair in managing the debate and how procedures such as the 'closure' and 'reasoned amendments' work. It looks ahead to the Committee and Report stage procedures that will apply if the Bill progresses beyond Second Reading. It also examines the government's responsibilities, such as providing a money resolution for the Bill and preparing an Impact Assessment, while addressing broader concerns about the adequacy of Private Members’ Bill procedures for scrutinising controversial issues.

Enhancing the role of backbench MPs: Proposals for reform of Private Members' Bills

Guides / What is a Private Members' Bill?