January 22, 2026

Kaul & Shakdher Guide The 'Bible' of Indian Parliamentary Procedure

"Kaul & Shakdher Guide: The 'Bible' of Indian Parliamentary Procedure" description: "The ultimate guide to 'Practice and Procedure of Parliament' by M.N. Kaul and S.L. Shakdher. Understand why this book governs every move in the Lok Sabha, how to access it, and its role in resolving constitutional crises." date: 2026-01-13 author: Resources Desk | Sansad Online tags: [Kaul and Shakdher, Parliamentary Procedure, Lok Sabha Rules, Speaker's Powers, Anti-Defection Law, Mn Kaul, Sl Shakdher]

📚 24x7 Resource: Kaul & Shakdher (The Parliamentary Bible)

The Authority Hub

Access the definitive manual on how the Indian Parliament actually works.

  • Official Title: Practice and Procedure of Parliament
  • Authors: M.N. Kaul & S.L. Shakdher (Former Secretaries-General of Lok Sabha).
  • Current Edition: 7th/8th Edition (Published by Lok Sabha Secretariat).
  • Status: The final authority on procedural disputes, cited by the Supreme Court and the Speaker.
🏛️ INSIDER KNOWLEDGE: When you see the Secretary-General whisper something to the Speaker during a chaotic debate, they are usually quoting a precedent from this book. It is the "Google" of the House.

Introduction: The Rulebook Behind the Rules

(Why This Book Matters)

You might think the Parliament runs on the "Constitution of India." You are only half right. While the Constitution gives the broad framework (e.g., "There shall be a Speaker"), it doesn't tell you:

  • What happens if an MP tears a bill?
  • Can the Speaker suspend an MP indefinitely?
  • How exactly is a No-Confidence Motion debated?

For these thousands of daily operational questions, the Parliament relies on one book: Kaul & Shakdher.

Authored by M.N. Kaul (the first Secretary of Lok Sabha) and S.L. Shakdher (his successor), this massive volume is not just a book; it is a collection of precedents. Since 1952, every time a Speaker made a ruling on a tricky situation, it was recorded. This book compiles those rulings.

For a UPSC aspirant, a lawyer, or a political journalist, you cannot understand the news without this book. When an MP claims "The Government violated the rules," they are usually referring to a specific paragraph in Kaul & Shakdher.

📖 What is Inside? (The Key Chapters)

The book covers every single aspect of parliamentary life. Here are the most critical sections you should know about.

1. The Powers of the Speaker

This is the most controversial chapter. It details the "Residual Powers" of the Speaker—meaning, in any situation not covered by written rules, the Speaker's word is law.

  • Key Concept: The Speaker represents the House. He/she does not belong to any party while in the Chair. (Though in practice, this is debated).

2. Parliamentary Privileges

  • What are they? MPs cannot be sued for what they say in Parliament.
  • The Book's Role: It defines the "Line of Control." If an MP abuses this right (e.g., by making defamatory allegations against a private citizen without proof), Kaul & Shakdher explains how they can be punished.

3. Motions and Resolutions

  • Adjournment Motion: The tool used by the Opposition to stop all work and discuss an emergency (e.g., a train accident). The book explains the strict criteria for accepting this.
  • No-Confidence Motion: The procedure for removing a government. It details the "Head Count" vs. "Voice Vote" mechanisms.

4. The Budget Procedure

It explains the "Guillotine."

  • The Guillotine: On the last day of the Budget session, the Speaker puts all remaining demands for grants to vote without discussion. This book explains the legality of this specialized procedure.

⚖️ Kaul & Shakdher vs. The "Rules of Procedure"

Many people confuse the two documents.

Feature Rules of Procedure Kaul & Shakdher
Nature The Statutory Law (Codified Rules). The Commentary (Case Law).
Size Small Booklet (approx 200 pages). Massive Volume (approx 1000+ pages).
Example "Rule 374: Speaker may name a member." Explains when the Speaker named members in 1965, 1988, etc., and why.
Authority Primary Source. Interpretative Authority.

Analogy: If the "Rules of Procedure" is the Bare Act (IPC), then "Kaul & Shakdher" is the Supreme Court Judgment that interprets it.

🔍 How to Access It

Unlike the Constitution, this book is copyrighted by the Lok Sabha Secretariat and is not freely available as a simple PDF download for the public. However, there are ways to read it.

1. The Digital Sansad Library (LARRDIS)

  • For Researchers: If you have a research fellowship or a specific request, you can access the digitized chapters via the Parliament Library portal (eparlib.nic.in).
  • Search: You can search for specific "Rulings" derived from the book on the Digital Sansad website.

2. Physical Purchase

  • It is available for purchase at the Sales Counter, Parliament House Reception, New Delhi.
  • It is also sold by authorized legal publishers (like Metropolitan Book Co.).

3. University Libraries

Every major Law School (NLU) and Political Science department library in India holds a copy. It is a standard reference text.

🎓 For UPSC/Law Students: Case Studies

To impress an examiner, quote the precedents mentioned in the book.

  • The "Zero Hour" Invention: The book explains that "Zero Hour" is an Indian innovation. It is not mentioned in the Rules of Procedure. It started in the 1960s when MPs would stand up at 12 PM (Zero Hour) to ask questions without notice. Kaul & Shakdher documents how Speakers gradually regularized this "irregular" practice.
  • The "Pocket Veto": The book discusses the relationship between the President and Parliament, including instances where Presidents (like Zail Singh) sat on a bill indefinitely.

Reference material for procedural study:

❓ Frequently Asked Questions (FAQs)

Q1. Is Kaul & Shakdher binding on the Speaker?

Technically, No. The Speaker is the final authority. However, convention dictates that a Speaker rarely goes against the precedents set in Kaul & Shakdher unless there is a compelling new reason. Doing so would attract severe criticism for being "biased."

Q2. Who updates the book?

Since the original authors are long deceased, the book is updated by the current Lok Sabha Secretariat staff under the guidance of the Secretary-General. The current edition includes updates on the Anti-Defection Law and GST procedures.

Q3. Does it cover Rajya Sabha?

Yes and No. The title is "Practice and Procedure of Parliament," but it has a "particular reference to Lok Sabha."

  • The Rajya Sabha has its own manual called "Rajya Sabha at Work", which is their equivalent of the Bible. However, since many procedures are similar, Kaul & Shakdher is often cited in the Upper House too.

Q4. Can a common citizen buy this book?

Yes. It is expensive (often ₹2000-₹4000) and bulky, so it is mostly bought by libraries, law firms, and media houses.

Q5. What is the "May's Parliamentary Practice"?

That is the British equivalent (the Bible of the UK Parliament). Since India adopted the Westminster model, Kaul & Shakdher draws heavily from Erskine May, but adapts it to Indian realities.

Bookmark this page. When the Parliament erupts in chaos, this book explains the method in the madness.