Substantive motion in Parliament 

Basics and concept

What is a substantive motion ?

• A substantive motion is a self-contained, independent proposal submitted for the decision of the House, drafted to express a definite opinion, will, or order of Parliament.
• It is different from subsidiary or procedural motions because it does not depend on another motion and itself becomes the subject of debate and voting in the House.

Source in parliamentary practice

• Not explicitly in the Constitution but derived from Rules of Procedure of Lok Sabha and Rajya Sabha and classical texts like Kaul & Shakdher: Practice and Procedure of Parliament.
• Rooted in the Westminster parliamentary tradition, where motions are primary tools for the House to articulate collective decisions and hold members or government accountable.

Types and scope

Common examples

• Motion of Thanks to the President’s Address, election/removal motions for Speaker or Deputy Speaker, and motions on matters of public importance are classic substantive motions.
• Substantive motions can relate to privileges, conduct of members, or policy positions, provided they meet admissibility rules and are framed in proper parliamentary language.

Who can move it ?

• Usually moved by any member who gives prior notice; in certain cases (like motions concerning ministers), conventions and rules determine who may move it.
• Notice period and format are regulated by the Rules of Procedure, ensuring seriousness and preventing frivolous use.

Procedure

Admissibility and listing

• The Speaker/Chairman decides admissibility, checking relevance, clarity, and conformity with rules; motions cannot raise matters sub judice or violate privilege norms.
• Once admitted, it is listed for business, and time for discussion is allocated by the Business Advisory Committee or by the Chair.

Debate and voting

• Members debate the motion; the mover has a right of reply at the end of discussion, a key feature of substantive motions.
• The motion is then put to vote; if passed, it becomes the formal decision or opinion of the House.

Constitutional and governance relevance

Link with collective responsibility

• Though distinct from a no-confidence motion, substantive motions contribute to the system where the executive is accountable to the legislature under Article 75 (collective responsibility).
• They provide a structured way for Parliament to record positions on governance, ethics, and institutional matters.

Instrument of deliberative democracy

• They enable discussion on public issues beyond routine law-making, strengthening Parliament’s role as a deliberative forum, not merely a legislative factory.
• By requiring formal notice and voting, they promote reasoned debate and recorded decisions, key to transparent governance.

Distinction from other motions

Vs. no-confidence motion

• A no-confidence motion targets the Council of Ministers and, if passed, has direct political consequences; a substantive motion may not necessarily test government majority.
• All no-confidence motions are substantive, but not all substantive motions are no-confidence motions, showing broader scope.

Vs. adjournment and calling attention

• Adjournment motions are exceptional devices to discuss urgent matters and interrupt normal business; they have stricter admissibility and are not routine substantive expressions of House opinion.
• Calling attention is informational and does not culminate in a formal decision of the House, unlike substantive motions that end in a vote.

Significance

Institutional accountability

• Substantive motions can address conduct of high authorities or members, helping maintain ethical standards and institutional integrity within Parliament.
• They create a formal parliamentary record, which can guide future conventions and interpretations.

Democratic value

• They operationalise the idea that Parliament is the sovereign deliberative body in a parliamentary democracy, expressing the will of the people through elected representatives.
• Their structured nature balances free speech of members with procedural discipline.

Types of Motions in Indian Parliament 

Type of Motion	Meaning / Purpose	Key Features	Example / Use
Substantive Motion	Independent, self-contained proposal for House decision	Needs notice; debated and voted; expresses definite opinion/will of House	Motion of Thanks to President’s Address
Substitute Motion	Moved in place of original motion	If adopted, replaces original; must relate to same subject	Alternative version of a policy motion
Subsidiary Motion	Depends on another motion	Cannot stand alone; aids discussion or disposal of main motion	Amendments, procedural motions
Amendment Motion	Seeks to modify a motion	Can add/delete/alter words; voted before main motion	Amending Motion of Thanks
No-Confidence Motion	Tests majority of Council of Ministers	Lok Sabha only; needs 50 members’ support to admit; if passed, govt resigns	Used to remove government
Confidence Motion (Trust Vote)	Govt proves majority	Initiated by govt; simple majority required	During coalition uncertainty
Adjournment Motion	Raises urgent matter of public importance	Interrupts normal business; exceptional device; LS mainly	Major accident/scam issue
Calling Attention Motion	Draws minister’s attention to urgent matter	Minister makes statement; no voting; informational	Law & order issue
Privilege Motion	Addresses breach of parliamentary privilege	Against MP/minister for misleading House	False statement in House
Censure Motion	Expresses strong disapproval of govt policy	Must state reasons; LS; political pressure but not removal	Policy failure criticism
Cut Motions	Reduce demands in Budget	Types: Policy, Economy, Token; tool for financial control	Reduce demand for a ministry
Half-Hour Discussion Motion	Clarifies matters needing explanation	Based on starred/unstarred questions; short duration	Clarifying policy detail
Closure Motion	Ends debate	If accepted, House votes on main motion	To avoid prolonged debate

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