People are generally aware that legislation is introduced through Bills that are sent to the legislature, usually by the executive, and then passed into law. Few, however, are familiar with the processes that precede the submission of a Bill to the legislature. In fact, what eventually comes to the legislature is the product of long, often laborious processes, which go on for weeks, months and even years. To ensure that the civil servants and others who may be involved in shaping proposals are able to candidly express their views on policies that are being developed and refined, the deliberations on the executive side of government traditionally take place in secrecy. Mainly for that reason, the processes are not well known to the general public and even to some activists who lobby for or against legislation. This book, written by a lawyer who has long experience participating in these processes, gives rare insight into how legislative proposals are conceived, developed and finally written into the law. It also contains easy-to- understand technical information that explains the significance of certain features of statutes. Further, it deals with other matters that follow after enactment including publication, entry into force, application and much more.

The Legislative Process

A Handbook for Public OfficialsBy Bilika H. Simamba

AuthorHouse

Copyright © 2009 Bilika H. Simamba
All right reserved.
ISBN: 978-1-4490-0220-6

Contents

Cases Cited....................................................................................xiLegislation Cited..............................................................................xiiiForeword.......................................................................................xxiPreface........................................................................................xxvAcknowledgements...............................................................................xxxiChapter 1 General Introduction.................................................................11.1 The meaning of "law".......................................................................11.2 The problem................................................................................31.2.1 The dearth of drafters...................................................................31.2.2 The fair success of efforts to train and retain drafters.................................41.3 The purpose and structure of this book.....................................................13Chapter 2 Practices and Procedures.............................................................232.1 Introduction...............................................................................232.2 How ministerial responsibilities are assigned..............................................232.3 The dynamics of proposing and drafting a law...............................................282.3.1 General..................................................................................282.3.2 External consultants.....................................................................422.3.3 Other aspects of the dynamics............................................................492.3.3.1 A plea for understanding...............................................................532.3.3.2 Meetings and working groups............................................................592.3.3.3 Anticipating questions that may be raised in the legislature...........................612.3.3.4 Quality assurance......................................................................612.4 How to find the current state of the law...................................................642.4.1 How annual volumes of the laws are prepared..............................................652.4.2 How revised editions of the laws are prepared............................................662.4.3 Tracing new laws and amendments since the last revision..................................712.5 Initiation of a proposed law up to its introduction in the legislature.....................752.6 Procedure in the legislature...............................................................802.7 Procedure after passing of a law...........................................................832.8 Financial provisions.......................................................................872.8.1 Certification and publication of laws....................................................892.8.2 The transition from a Bill to an Act.....................................................922.9 How Parliament is called and dismissed.....................................................942.10 How Parliaments, their sessions and sittings are numbered.................................95Chapter 3 Law Reform Commissions...............................................................1033.1 Introduction...............................................................................1033.2 What law reform commissions do.............................................................104Chapter 4 Entry into Force and Application of Laws.............................................1094.1 Introduction...............................................................................1094.2 Entry into force of laws...................................................................1104.2.1 Entry into force of Acts of the legislature..............................................1134.2.2 Entry into force of statutory instruments................................................1184.2.3 Exercise of powers before commencement of legislation....................................1204.2.4 Gazettal and registration of legislative instruments.....................................1224.3 Application of laws........................................................................1224.3.1 General..................................................................................1224.3.2 Use of Interpretation Acts in applying laws..............................................1244.4 Savings and transitional provisions........................................................1264.5 Retrospective laws.........................................................................1294.6 Repeal, annulment and non-revival of laws..................................................133Chapter 5 Layout and Structure of Laws.........................................................1395.1 Introduction...............................................................................1395.2 External anatomy of laws...................................................................1395.2.1 Preamble.................................................................................1395.2.2 Objects and Reasons (or Explanatory Memorandum)..........................................1415.2.3 Enacting clause..........................................................................1425.2.4 Long title and short title...............................................................1445.2.5 Headings and other labels................................................................1455.2.5.1 Main headings, subheadings and similar matters.........................................1455.2.5.2 Schedules..............................................................................1475.2.5.3 Marginal notes.........................................................................1525.2.5.4 Forms..................................................................................1565.2.5.5 Columns and rows.......................................................................1575.3 Numbering and indexing of laws.............................................................1585.4 Numbering and layout of provisions in a law................................................161Chapter 6 Epilogue.............................................................................169APPENDICES.....................................................................................171Appendix 1 Cabinet Memoranda...................................................................171Appendix 2 Checklist for Proposing Legislation.................................................178Appendix 3 Extract from Statute Revision Act...................................................185Appendix 4 Order Paper.........................................................................186Appendix 5 Notice of Committee Stage Amendments................................................187Appendix 6 Glossary of Terms...................................................................190Bibliography...................................................................................205Further Reading................................................................................209Index..........................................................................................213

Chapter One

General Introduction

1.1. The meaning of "law"

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