The Legal Framework Order was
issued as President's Order No. 2 of 1970 by the President and Chief
Martial Administrator, General A. M. Yahya Khan on March 30, 1970
Article 4 (2) National Assembly of Pakistan
Administered Tribal Areas
Article 5 (1) Provincial Assemblies
Article 17 (2) Rules of Procedure
1. These rules may be called the National Assembly
Rules of Procedure, 1970.
2. In these rules, unless there is anything repugnant
in the subject or context,-
(a) "Assembly" means the National Assembly
(b) "Bill" means a Bill seeking to frame
a Constitution for Pakistan;
(c) "Commissioner" means the Chief Election
Commissioner appointed or deemed to be appointed under the Electoral
Rolls Order, 1969 (P.O. No. 6 of 1969);
(d) "Committee" means a Committee, including
a Select Committee, appointed by the Assembly;
(e) "Member in charge", in relation to
a Bill, means the member by whom the Bill has been introduced, and
includes any other member permitted by the Speaker to do in relation
to the Bill anything which the member in charge can do ;
(f) "Secretary" means the Secretary of
(g) "Speaker" means the Speaker of the
Assembly. Function of the Assembly
3. (1) The function of the Assembly shall be to frame
a Constitution for Pakistan.
(2) The Constitution shall be drawn up and passed
by the Assembly in the form of a Bill.
Speaker and Deputy Speaker
4. (1) At the first meeting of the Assembly, the
Commissioner shall, after the members have taken the oath, call
upon the members to elect a Speaker and a Deputy Speaker. ^
(2) Any member may propose another member with his
consent for election as Speaker or as Deputy Speaker by communicating
to the Secretary in writing the name of the member he proposes.
(3) No member shall propose more than one member
for election as Speaker or as Deputy Speaker.
(4) The Secretary shall read out separately the names
of the members nominated for election as Speaker and as Deputy Speaker.
(5) Immediately after the names have been read out
by the Secretary, any member who has been nominated for election
may withdraw his candidature.
(6) Where, after withdrawals, if any, only one person
is left as the candidate for election as Speaker or as Deputy Speaker,
the Commissioner shall declare such candidate to have been elected
as Speaker or, as the case may be, Deputy Speaker.
(7) Where there are more candidates than one for
election as Speaker or as Deputy Speaker, the Secretary shall read
out to the Assembly the names of such candidates, and the Assembly
shall then proceed to elect the Speaker and Deputy Speaker by secret
ballot which shall be held in such manner as the Commissioner may
(8) Where there is equality of votes between two
or more candidates and the addition of one vote for one such candidate
would entitle him to be declared elected, the Commissioner shall
forthwith draw a lot in respect of such candidates and the candidate
on whom the lot falls shall be declared to have been elected as
Speaker or, as the case may be. Deputy Speaker.
5. (1) Deliberations of the National Assembly shall
be presided over by the Speaker and, in his absence, by the Deputy
Speaker and, in the absence of both the Speaker and the Deputy Speaker,
by the person whose name is highest, on the panel of Chairmen from
amongst those present at the sitting.
(2) If at any time at a sitting of the Assembly neither
the Speaker nor the Deputy Speaker nor any person on the panel of
Chairmen is present, the Secretary shall inform the Assembly of
the fact and the Assembly shall, by a motion, elect one of its members
present to preside.
Powers of Speaker
6 (1) The Speaker may, subject to the provisions
of this Order, adjourn a meeting of the Assembly and call a meeting
of the Assembly after adjournment.
(2) The Speaker shall-
(a) call a meeting of the Assembly to order
(b) preserve order and decorum and, in the
case of disturbance or disorder in the galleries, may cause them
to be cleared ; and (c) decide all points of order.
(3) The Speaker shall have all powers necessary for
the purposes of enforcing his decisions.
Panel of Chairmen
7. The Speaker shall nominate from amongst members
of the Assembly a panel of not more than four Chairmen and arrange
their names in an order of precedence.
8. The person presiding over a meeting of the Assembly
shall have the same powers as the Speaker while presiding over such
meeting ; and all references in these rules to the Speaker as presiding
officer shall be deemed to include a reference to such person.
Conduct of business in the Assembly
9. The business of the Assembly shall be brought
before it by means of-
(a) a motion;
(b) amendment of a motion or an amendment to an
(c) report of a Committee.
10. The meetings of the Assembly shall commence at
9 a.m. unless otherwise resolved by the Assembly or directed by
Arrangement of business
11. (1) A list of business for the day shall be prepared
by the Secretary and, after it has been approved by the Speaker,
a copy thereof shall be supplied for the use of every member before
the commencement of the business of the day. The list thus prepared
shall be called the Orders of the Day.
(2) Save as otherwise provided in, these rules, no
business, not included in the Orders of the Day, shall be transacted
on any day at any meeting without the leave of the Speaker.
(3) All business appointed for any day and not disposed
of on that day shall stand over until the next working day, unless
the Speaker otherwise directs.
Notice of motion
12. (1) Unless otherwise directed by the Speaker,
notice of every motion, accompanied by a copy of the motion, shall
be given not later than the day preceding the day on which the motion
is to be moved.
(2) Every motion required by these rules shall be
in writing addressed to the Secretary and signed by the member giving
notice and shall be left at the Notice Office of the Assembly.
(3) Notice left at the Notice Office when it is closed
shall be treated as given on the next open day.
(4) Where notice of a motion has been given, the
Secretary shall send a copy of the motion to the members as soon
as possible after notice had been received.
(5) No notice shall be required-
(a) for a motion for adjournment of the consideration
of the motion which is under discussion; or
(b) for a motion for reference back to a
Disallowance and withdrawals of motions
13. (1) Unless permitted by the person presiding
over the meeting, no motion which is substantially the same as a
question which the Assembly has decided in the affirmative or the
negative shall be made.
(2) The Speaker may disallow any motion or any part
thereof on the ground that it is frivolous or dilatory or that it
is an infringement of these rules.
(3) The Speaker may allow any member to withdraw
a motion standing in his name.
14. The members shall sit in such order as the Speaker
15. A member desiring to make any observation on
any matter before the Assembly shall rise or, if unable to do so,
shall otherwise intimate his desire to the Speaker and shall only
speak when called upon to do so by the Speaker and shall address
the House standing except when permitted otherwise. If, at any time,
the Speaker rises, the member shall cease speaking and take his
16. The Speaker may, if he thinks fit, prescribe
a time limit for speeches.
Language of the Assembly
17. (1) The members shall address the Assembly in
Urdu, Bengali or English, provided that the Speaker may permit any
member who cannot adequately express himself in any of these languages
to address the Assembly in his mother tongue.
(2) If a member desires that an English translation
or a summary of his speech delivered in a language other than Urdu,
Bengali or English should be read to the Assembly, he shall supply
a copy to the Speaker who may, in his discretion, allow it to be
read to the Assembly. Such translation, if read to the Assembly,
shall be included in the record of the proceedings of the Assembly.
(3) The official records of the proceedings of the
Assembly shall be kept in Urdu, Bengali and English.
18. (1) A matter requiring the decision of the Assembly
shall be brought forward by means of a question put by the Speaker.
(2) The Assembly shall decide how a decision relating
to the Constitution Bill is to be taken, that is, whether by simple
majority or by any other special procedure.
(3) Votes may be taken by voices or division and
shall be taken by division if any member so desires.
(4) The Speaker shall determine the method of taking
votes by division.
(5) The result of a division shall be announced by
the Speaker and shall not be challenged.
19. (1) An amendment shall, be relevant to the motion
to which it is proposed.
(2) An amendment which has merely the effect of a
negative vote on the original motion shall not be moved.
(3) Except as permitted by the Speaker,-
(a) notice of any amendment to a motion shall be
given not later than the day preceding the day on which the motion
is to be moved ; and
(b) notice of any amendment to an amendment shall
be given before the Assembly meets for the day in which the amendment
is to be moved.
(4) The Speaker may disallow any amendment which
he considers to be frivolous or dilatory.
(5) The Speaker may put amendments to the vote in
any order he may choose.
Re-opening of decisions of the Assembly
23. No matter which has once been decided by the
Assembly shall be re-opened except with the consent of the Assembly.
21. Any time after a motion has been made, any member
may move ''that the question be now put" and , unless it appears
to the Speaker that the motion is an infringement of the right of
reasonable debate, the Speaker shall put the motion "that the
question be now put"; and if the motion is accepted, no further
discussion shall be permitted except for a reply by the member who
made the original motion.
Irrelevance or repetition
22. The Speaker, after having called the attention
of the Assembly to the conduct of a member who persists in irrelevance
or in tedious repetition, either of his own arguments or of the
arguments used by other members in debate, may direct him to discontinue
his speech, and the member shall thereupon resume his seat.
Limitations on debate
23. The matter of every speech shall be strictly
relevant to the matter before the Assembly. A member while speaking
(1) speak offensive and insulting words against the
character or proceedings of the Assembly ;
(2) utter treasonable or seditious words ; or
(3) use his right of speech for the purpose of wilfully
and persistently obstructing the business of the Assembly.
Members not to speak more than once
24. No member shall speak more than once to a motion
in the Assembly except in the exercise of a right of reply or except
with the permission of the Speaker and that only for the purpose
of making a personal explanation without introducing any new debatable
Admission to the Assembly Chambers
25. The admission of persons other than members to
the Assembly Chamber and its galleries during the sittings of the
Assembly shall be regulated in accordance with the orders of the
26. The Secretary shall cause full reports of the
proceedings of the Assembly to be printed and supplied to all members.
Motion for leave to introduce a Bill
27. (1) Any member may move for leave to introduce
a Bill after giving to the Secretary at least two clear days' notice
of his intention to do so accompanied by a copy of the Bill.
(2) If a motion for leave to introduce a Bill is
opposed, the Speaker, after permitting; if he thinks fit, a brief
explanatory statement from the member who moves and from the member
who opposes the motion, may without further debate put the question.
(3) If the leave to introduce the Bill is granted,
the member may introduce the Bill.
Publication after introduction
28. As soon as may be after it has been introduced,
a Bill shall be published in the official Gazette.
29. When a Bill is introduced or on some subsequent
occasion, the member in charge may make one of the following motions
in regard to his Bill, namely :
(a) that it be taken into consideration by
the Assembly either at once or at some future day to be then specified;
(b) that it be referred to a Select Committee:
Provided that no such motion shall be made until
after copies of the Bill have been made available for the use
of members and that any member may object to any such motion
being made unless copies of the Bill have been so made available
for three days before the day on which the motion is made; and
such objection shall prevail unless the Speaker, in the exercise
of his power to suspend this rule, allows the motion to be made.
Discussion of Bills
30. (1) On the day on which any such motion is made,
or on any subsequent day to which the discussion thereof is postponed,
the principle of the Bill and its general provisions may be discussed,
but the details of the Bill must not be discussed further than is
necessary to explain its principle.
(2) At this stage, no amendments to the Bill may
be moved, but if the member in charge moves that his Bill be taken
into consideration, any member may move as an amendment that the
Bill be referred to a Select Committee.
31. Unless the Speaker permits any other member to
act as the member in charge, no motion that a Bill be taken into
consideration or be passed shall be made by any member other than
the member in charge ; and no motion that a Bill be referred to
a Select Committee shall be made by any member other than the member
in charge except by way of amendment to a motion made by the member
Procedure after presentation of report
32. (1) After the presentation of the report of the
Select Committee on a Bill, the member in charge may move-
(a) that the Bill as reported by the Select Committee
be taken into consideration:
Provided that any member may object to its being
so taken into consideration if a copy of the report has not
been made available for the use of members and such objection
shall prevail, unless the Speaker allows the report to be taken
into consideration ; or
(b) that the Bill as reported by the Select Committee
be recommitted either-
(i) without limitation, or
(ii) with respect to particular clauses or amendments
(iii) with instructions to the Select Committee
to make some particular or an additional provision in the Bill.
(2) If the member in charge moves that the Bill be
taken into consideration, any member may move as an amendment that
the Bill be recommitted.
33. (1) When a motion that a Bill be taken into consideration
has been carried, any member may propose an amendment of the Bill.
(2) A member who intends to propose an amendment
shall give notice thereof to the Secretary together with a copy
of the amendment.
(3) The Secretary shall cause a copy of the amendment
to be made available for the use of every member.
Order of amendments
34. Amendments shall ordinarily be considered in
the order of the clauses of the Bill to which they respectively
relate, and in respect of any such clause a motion shall be deemed
to have been made "that this clause (or, as the case may be,
that this clause, as amended) stand part of the Bill".
35. When a motion that a Bill be taken into consideration
has been carried, it shall be in the discretion of the Speaker to
submit the Bill or any part of the Bill to the Assembly clause by
clause and when he does so the Speaker shall call each clause separately
and, when the amendments relating to it have been dealt with, shall
put the question "That this clause (or, as the case may be,
that this clause, as amended) stand part of the Bill".
Passing of Bills
36. (1) When a motion that a Bill be taken into consideration
has been carried and no amendment of the Bill is made, the member
in charge may at once move that the Bill be passed.
(2) If any amendment of the Bill is made, any member
may object to any motion being made, on the same day, that the Bill
be passed, and such objection shall prevail, unless the Speaker
allows the motion to be made.
(3) Where the objection prevails, a motion that the
Bill be passed may be brought forward on any future day.
(4) No amendment which is neither formal nor consequential
upon an amendment made after the Bill was taken into consideration
shall be moved to a motion that the Bill be passed.
Withdrawal of Bills
37. The member in charge may at any stage move for
leave to withdraw the Bill introduced by him; and, if such leave
is granted, no further motion may be made with reference to the
38. When a Bill is passed, all other Bills pending
before the Assembly shall lapse.
39. When the Constitutional Bill is passed by the
Assembly, the Secretary shall submit to the President for authentication
a copy thereof signed by the Speaker.
Committees of the Assembly
40. (1) The Assembly may, besides a Select Committee
constituted in relation to a Bill, appoint as many Committees and
allocate to each such Committee such business as it may think fit.
(2) The members of the Committee including the Chairman
shall be appointed by the Assembly at the time it appoints the Committee.
(3) A casual vacancy in a Committee shall be filled
as soon as possible after it occurs by nomination by the Speaker.
(4) If the Chairman is not present at any meeting
of the Committee, the member of the Committee shall elect one of
their members to be the Chairman.
(5) In the case of an equality of votes, the Chairman
shall have a second or casting vote.
41. (1) Subject to the requirement of a quorum prescribed
by or under these rules, a Committee appointed by the Assembly shall
have power to act notwithstanding any vacancy in the membership
(2) A Committee may hear expert evidence and representatives
of special interests who may desire to place their views before
Quorum of the Committee
42. (1) At the time of the appointment of the members
of a Committee, the number of members whose presence shall be necessary
to constitute a quorum for a meeting of the Committee, and the time
within which the Committee shall make its report, shall be fixed
by the Assembly.
(2) If at the time fixed for any meeting of the Select
Committee, or if at any time during any such meeting, the quorum
is not present, the Chairman of the Committee shall either suspend
the meeting until a quorum is present or adjourn the meeting to
some future day.
(3) Where the Committee has been adjourned in pursuance
of sub-rule (2) on two successive dates fixed for its meeting, the
Chairman shall report the fact to the Assembly.
Voting in Committees
43. (1) All questions at a meeting of a Committee
shall be determined by a majority of the members present and voting.
(2) The Chairman shall not vote except in the event
of equality of votes.
Reports of the Committees
44. (1) A Committee shall make a report relating
to the business allocated to it or, in the case of a Select Committee,
on the Bill referred to it.
(2) If any member of a Committee desires to record
a minute of dissent on any point, he must sign the report stating
that he does so subject to his minute of dissent, and must at the
same time hand in his minute'.
Presentation of report
45. (1) The report of a Committee shall be presented
to the Assembly by the Chairman.
(2) The Secretary shall cause every report of a Committee,
together with the views of the minority, if any, to be printed in
English and a copy thereof made available for the use of every member
of the Assembly. The report, with the views of the minority, if
any, shall be published in the official Gazette, and, in the case
of the report of a Select Committee, it shall be published together
with the Bill as settled in the Committee.
46. (1) The timetable of business of a Committee
and the agenda for each meeting of the Committee shall be determined
by the Chairman of the Committee.
(2) Notice of all meetings of a Committee shall be
sent to the members of the Committee.
Suspension of rules
47. Whenever any inconsistency or difficulty arises
in the application of these rules, any member may, with the consent
of the Speaker, move that any rule may be suspended in its application
to a particular motion before the Assembly, and if the motion is
carried the rule in question shall stand suspended.
Removal of difficulties
48. Where in the opinion of the Speaker any difficulty
is likely to arise in carrying out the provisions of these rules,
or in respect of any matter for which no provision or on sufficient
provision exists in these rules the Speaker may make such rules
as he thinks fit, not inconsistent with these rules, for the purpose
of removing the difficulty.
Source: Election Handbook 1970 by S.G.M.
Publishing and Marketing Associates Ltd, Karachi (1970)
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