Legislation and delegated legislation

Legislation and Delegated Legislations are the most common topics for the law students in Bangladesh. In Most of the cases these topics are included under the syllabus of Jurisprudence and Administrative Law.

1. LAW 101-Jurisprudence-I
Topic: Legislation and Delegated Legislation
Dr. Md. NayemAlimulHyder
Associate Professor & Head
Department of Law and Justice
North East University Bangladesh

2. Legislation
Legislationislawwhichhasbeenpromulgated(or"enacted")by
alegislatureorothergoverningbodyortheprocessofmaking
it.Beforeanitemoflegislationbecomeslawitmaybeknown
asabill,andmaybebroadlyreferredtoas"legislation",while
itremainsunderconsiderationtodistinguishitfromother
business.Legislationcanhavemanypurposes:toregulate,to
authorize,tooutlaw,toprovide(funds),tosanction,togrant,
todeclareortorestrict.Itmaybecontrastedwithanon-
legislativeactwhichisadoptedbyanexecutiveor
administrativebodyundertheauthorityofalegislativeactor
forimplementingalegislativeact.

3. Cont.
Legislationisregardedasoneofthethreemain
functionsofgovernment,whichareoftendistinguished
underthedoctrineoftheseparationofpowers.Those
whohavetheformalpowertocreatelegislationare
knownaslegislators;ajudicialbranchofgovernment
willhavetheformalpowertointerpretlegislation(see
statutoryinterpretation);theexecutivebranchof
governmentcanactonlywithinthepowersandlimits
setbythelaw,whichistheinstrumentbywhichthe
fundamentalpowersofgovernmentareestablished.

4. Legislation Process in Bangladesh

5. Delegated Legislation
Delegatedlegislation(alsoreferredtoassecondarylegislationor
subordinatelegislationorsubsidiarylegislation)islawmadebyan
executiveauthorityunderpowersgiventothembyprimary
legislationinordertoimplementandadministertherequirementsof
thatprimarylegislation.Itislawmadebyapersonorbodyother
thanthelegislaturebutwiththelegislature’sauthority.Often,a
legislaturepassesstatutesthatsetoutbroadoutlinesandprinciples,
anddelegatesauthoritytoanexecutivebranchofficialtoissue
delegatedlegislationthatfleshoutthedetails(substantive
regulations)andprovideproceduresforimplementingthe
substantiveprovisionsofthestatuteandsubstantiveregulations
(proceduralregulations).Delegatedlegislationcanalsobechanged
fasterthanprimarylegislationsolegislaturescandelegateissues
thatmayneedtobefine-tunedthroughexperience.

6. Cont.
Inaccordancewiththeaboveconceptswecan
understandthat,Delegatedlegislationisaprocessof
givingauthoritytosomeentityotherthantheprimary
legislativebodytoenactandexecutelaws.Thisgives
thedelegatedauthoritytremendousamountofpower
withouttheusualprocessofselectingademocratic
representativebythepeople.
Forexample:InBangladesh,tohandlelawandorder
situationsomepowerhasbeendelegatedtoR.A.Bunder
theauthorityofhomeminister.Otherlegislaturesdon’t
havedirectcontroloverR.A.Bforce.Thislawandorder
forceisaccountabletothehomeminister.

7. difference between primary and
secondary legislation
Primary legislation is an Act that has been
passed by the Parliament.
Secondary legislation can make small changes to
an Act. The Act must say what changes can be
made to it by secondary legislation and what
process the secondary legislation will follow.
Secondary legislation can also create new rules
or add more details to an Act.

8. Object of delegated legislation
ToreduceParliamentsworkload
Decentralizationanddevolutionofpowersto
localauthorities
Toallowdetailtobeaddedatalaterdate
Tomeetlocalvariation
Tomeetemergencyorcontingencymatterse.g.
war,publichealth
Toensureflexibilityinlawmakingindealing
withchangingcircumstances

9. What is delegated/ subordinate
legislation?
Itiswrittenlawmadebybodiesexercising
powersdelegatedbyParliament
TheprovisoofArticle65(1)ofthe
ConstitutionempowerstheParliamentto
delegatetoanypersonorAuthority,by
ActofParliament,powertomakeorders,
rules,regulations,byelawsorother
instrumentshavinglegislativeeffect.

10. Exception
Butparliamentcannotdelegatealllegislative
power.Inourcountryparliamentwithina
certainlimitcandelegateitspower.Theareaof
thelimithasbeenprescribedbythefollowing
case:InAnowerHossainChowdhuryvs.
Bangladesh41DLR(AD)165.TheSupreme
Courtheldthatseparationofpowerisabasic
structureoftheconstitutionofBangladeshand
theparliamentcannotdelegateitsessential
legislativefunctionsbutonlycandelegatenon
essentialfunctions.

11. Instruments used to make
subordinate legislation
Rules
Regulations
Order
Notification
Bye-laws
Proclamations
Scheme

12. Legislative Authority
Types of legislative authorities are:
TheGovernment(Rule)
StatutoryauthoritiessuchasBoards,
CommissionsandAgenciesetc.(Regulations)
Administrativebodies(Notification)
IndividualOrganization(Notification)
LocalGovernment(Bye-Laws)

13. Types of subordinate legislation
Therearethreemaintypesofsubordinate
legislationinBangladesh:
Rules,regulationsandotherlegalinstruments
havingtheforceoflaw-
Subordinatelegislationmadebythe
governmentisreferredtoasrules.
Example.-Family Courts Rules, 1985,
Tourists Baggage (Import) Rules, 1981
-----Service Rules,2012

14. Regulations
Subordinatelegislationmadebystatutory
authoritiesestablishedbylawiscalled
regulations.
Example.-Boiler Regulation,1951,
Depositories Regulations, 2000
-----Pension Regulations,2012

15. Orders.-Itreferstoshortpiecesof
delegatedlegislationthatmakespecial
provisionsordirectionsinrespectof
particularpersonsorthingsorclassesof
personsorthings
Example.-
Pre-shipmentInspectionAuditOrder,2000
ExportImportOrder,2010-2012

16. Other legal instruments would include,
Forexample,
Notificationsdraftedbyadministrativebodies
and
Example:forcomingintoforceofanyAct
By-laws,whicharegenerallymadebyacreated
authoritysuchasalocalgovernment.
Example:
GazipurCantonment(BuildingConstruction)
Bye-laws,2006.

17. "Proclamations"areshortpiecesofdelegated
legislationusedtodeclarethelegalstatusof
certainpersonsorthings(e.g.thatanareaisa
securityarea)ortodeclaretheexistenceofa
stateofaffairs(e.g.astateofemergencyor
dangertopublicorder)inorderthatthe
provisionsoftheparentActwillapplyinrespect
ofsuchpersons,thingsorstateofaffairs.

18. Scheme.-Manytimedelegatedlegislation
istermedasaSchemetodenotethe
handlingofthesubject-matterasan
independentScheme

19. Subordinated legislation also
called-
Delegated legislation
Executive legislation
Subsidiary legislation
Inferior legislation

20. Necessity of delegated
legislation
Delegatedlegislationisnecessaryforanumberofreasons:
·Parliamentdoesnothavetimetocontemplateanddebateeverysmalldetailofcomplex
regulations,asitonlyhasalimitedamountoftimetopasslegislation,delegatinglegislationwill
allowhoweverthoroughlydebatedregulationstopassthroughaswellassavingparliamentary
time.
·Delegatinglegislationallowslawtobemademorequicklythanparliament,whichisvitalfor
timesofemergency.Parliamenttakeslongerasitdoesnotsitallthetimeanditsproceduresis
generallyquiteslowandcomplexduetotheseveralstageseachbillhastopassthrough.
Delegatedlegislationcanalsobeamendedorrevokedrelativelyeasily,sothatthelawcanbe
keptuptodateandsothatthelawcanmeetfutureneedsthatarisesuchasareasconcerning
welfarebenefits,illustratingagreatdealofflexibilityinthesystem.Otherwisestatutescanonly
beamendedorrevokedbyanothercomplicatedandtime-consumingstatute.
·MPsdonotusuallyhavethetechnicalknowledge/expertiserequiredinforexampledrawingup
lawsoncontrollingtechnology,ensuringenvironmentalsafety,anddealingwithdifferent
industrialproblemsoroperatingcomplextaxationschemeswhereasdelegatedlegislationcanuse
expertswhoarefamiliarwiththerelevantareas.
·Anotherargumentfortheneedofdelegatedlegislationisthatparliamentmaynotalwaysbethe
bestinstitutiontorecognizeanddealwiththeneedsoflocalpeople.Asaresultlocalpeopleelect
councilorsfromcertaindistrictsanditistheirresponsibilitytopasslegislationintheformofby-
lawstosatisfylocalneeds.

21. Controls of Delegated
legislation
1. General control methods
2. Parliamentary Control
3. Judicial Control

22. Cont.
1 General control methods
Consultation
The creators consult experts in the relevant
field; for example, a SI on road traffic law may
be referred to the AA. The enabling Act may
make such consultation compulsory.
Publication
All DL is published, therefore is available for
public scrutiny.

23. Cont.
2ParliamentaryControl:Parliamenthasinitialcontroloverstatutoryinstrumentsasitpasses
anenablingAct,whichgivesotherbodiesorindividualsthepowertomakerulesandregulations.
Thus,Parliamentisabletolimitthepowersofthosecreatingdelegatedlegislation,andsetout
specificproceduresforbringingstatutoryinstrumentsintoforce,forexampleintheEynesbury
Mushroomcase(1972),inwhichtheMinisterforLabourhadtoconsult‘anyorganization
appearingtohimtoberepresentativeofsubstantialnumbersofemployersengaginginthe
activityconcerned’andthefactthathedidn’tconsulttheMushroomGrowers’Association,meant
thathisorderthatestablishedatrainingboard,wasvoidagainstmushroomgrowers.Thisisalso
demonstratedinRvHomeSecretary,exparteFireBrigadesUnion(1995),whichdecidedthat
changestheHomeSecretarymadetotheCriminalInjuriesCompensationschemewerebeyond
thepowerhewasgivenbytheenablingact,theCriminalJusticeAct1988,thiscasedecidedthat
anydelegatedlegislationwhichisultravires,beyonditspowers,isvoid.
Thus,Parliamentinitiallyhastheabilitytolimitthepowersofbodiesandindividualscreating
delegatedlegislation,andsetdownproceduretobefollowedintheircreation;andifthose
creatingthedelegatedlegislationdogobeyondtheirpowers,thenthelegislationwillbevoid.
However,oftenenablingactswillgrantverywidepowerstobodiesorindividualscreating
delegatedlegislation,suchassection8oftheAccesstoJusticeAct1999,whichsetsoutcriteria
fortheCommunityLegalServicetoconsiderwhenofferingpublicfunding,butalsoallowsthe
criteriatoinclude‘suchotherfactorsastheLordChancellormaybyorderrequiretheCommission
toconsider’,thustheLordChancellorwasgiventhepowertoaddtothecriteriawithoutreferring
ittoParliamentandwithlittlerealcontrolovertheadditionshecouldmake.

24. Cont.
3.JudicialControl:Afinalcontroloverdelegatedlegislationiscontrolbythecourts;Delegated
legislationisalsosubjecttocontrolbythecourtswhosejudgescandeclareapieceofdelegated
legislationtobeultravires.Ultraviresmeans‘beyondpowers’,sothecourtwouldbesayingthatapiece
ofdelegatedlegislationwentbeyondthepowersgrantedbyParliamentwithintheenablingAct.Ifthe
courtdoesthis,thenthedelegatedlegislationinquestionwouldbevoidandnoteffective.Therearetwo
typesofultravires:
 Proceduralultravires
ThisiswheretheenablingActsetsouttheproceduralrulestobefollowedbythebodywhichhasbeen
giventhedelegatedpower.Thecourtcanfindthedelegatedlegislationtobeultraviresandvoidifthese
ruleswerenotfollowed.
IntheAylesburyMushroomcase(1972)AgriculturalHorticulturalandForestryIndustryTrainingBoardv
AylesburyMushroomsLtd(1972)1AllER280delegatedlegislationrequiredtheMinisterofLabourto
consult‘anyorganisation…appearingtohimtoberepresentativeofsubstantialnumbersofemployers
engagingintheactivityconcerned’abouttheestablishmentofatrainingboard.TheMinisterfailedto
consulttheMushroomGrowers’Associationwhichrepresentedabout85percentofallmushroom
growers.Therefore,thedelegatedlegislationwasdeclaredtobeultraviresonproceduralgrounds.
Substantialultravirus
ThisiswherethedelegatedlegislationgoesbeyondwhatParliamentintended.
InRvSecretaryofStateforEducationandEmployment,exparteNationalUnionofTeachers(2000)
QBD,theHighCourtdeterminedthatanSIconcerningteachers’payandappraisalarrangementswent
beyondthepowersprovidedundertheEducationAct1996.Therefore,thedelegatedlegislationwas
declaredtobeultraviresonsubstantivegrounds.

25. Importance of Control over Delegated
Legislation
AsdelegatedlegislationisnotmadebyParliament,andthereforenotthosedemocratically
electedbythepublictoberesponsibleforlegislation,apartfromdelegatedlegislationcreatedby
electedlocalauthorities,itisimportanttohavesufficientcontrols.Sub-delegationisaproblem
withdelegatedlegislation,asthecreationofthelegislationisdelegatedfurther,suchasbya
governmentminister,whowasoriginallygiventhepowertomakedelegatedlegislationbythe
enablingact,tocivilservantswithinthedepartment.Thismeanspoweristakenevenfurther
fromthoseelectedandcontinuestomakedelegatedlegislationappearundemocraticandinneed
ofstrictcontrols.
Anotherpointtoconsideristhatdelegatedlegislationisgenerallymadeprivately,ratherthan
beingdebatedasparliamentarylegislationis,andthus,althoughtheenablingactmayrequire
somepublicconsultation,delegatedlegislationcouldbeseenasmuchlessopenandpublicized
thanstatutes.Also,althoughdelegatedlegislationispublished,thevastquantitiesproducedand
complexwordingmeandelegatedlegislationiscriticizedforbeingdifficultforpeopletofully
understand,andthereforemaynotbeveryopentopublicscrutinyorinvolvementinitscreation.
Thusthemainreasonthatcontrolsoverdelegatedlegislationarenecessaryisbecauseitisnot
createdbyParliamentandoftennoteventhosegiventheresponsibilitybyParliament,butis
furthersub-delegated.Thismeansthatthepublicarenotabletoelectthosemakinglegislation,
astheyarewithParliament,andthusthosemakingdelegatedlegislationarenotaccountableto
thepeople,sodelegatedlegislationcanseemundemocraticandaparticularproblemifitisused
formoreimportantpolicies,andnotsimplyadministrativerules.

26. The End
Thank You