Single-subject rule
{{improverefs|date=June 2016}}
The single-subject rule is a rule in the constitutional law of some jurisdictions that stipulates that some or all types of legislation may deal with only one main issue. One purpose is to avoid complexity in acts, to avoid any hidden provisions that legislators or voters may miss when reading the proposed law. Another is to prevent legislators attaching an unpopular provision ("rider") to an unrelated popular one, whether in the hope of sneaking the unpopular one through, or in the hope of causing the popular one to be rejected (a type of wrecking amendment). It also prevents log-rolling, whereby legislators trade votes with others to get them to vote for both bills.
Scope of a bill
In English law, the long title of a bill or act of parliament states its purpose; this may enumerate multiple purposes, or end with a vague formula like "and for other purposes". A proposed amendment to a bill may be rejected if it is outside the scope defined in its long title; alternatively, the title may be amended to increase its scope. An omnibus bill covers a number of diverse or unrelated topics.
By country
=Australia=
Section 55 of the Constitution of Australia provides a single-subject rule for taxation legislation: "Laws imposing taxation shall deal only with the imposition of taxation, and any provision therein dealing with any other matter shall be of no effect". The same section also requires laws imposing taxation to "deal with one subject of taxation only" (except those relating to customs and excise).Constitution of Australia, [http://www6.austlii.edu.au/cgi-bin/viewdoc/au/legis/cth/consol_act/coaca430/s55.html section 55]
=Ireland=
The 1937 Constitution of Ireland states that "A Bill containing a proposal or proposals for the amendment of this Constitution shall not contain any other proposal".{{cite web|url=http://www.irishstatutebook.ie/eli/cons/en/html#article46_4|title=Constitution of Ireland|date=October 2015|work=Irish Statute Book|pages=Article 46.5|accessdate=3 June 2016}} This was in contrast to the 1922 Constitution of the Irish Free State, which could be implicitly amended.{{cite book|last1=Forde|first1=Michael|last2=Leonard|first2=David|title=Constitutional Law of Ireland|url=https://books.google.com/books?id=YVsQAgAAQBAJ&pg=PA316|accessdate=3 June 2016|year=2013|publisher=A&C Black|isbn=9781847667380|pages=316, fn.72}}
=Sweden=
The Parliamentary Act ({{langx|sv|Riksdagsordningen}}) states that "proposals on different subjects may not be combined in one motion".{{Cite act
| index = 801
| date = 2014
| article = 9, Paragraph 10
| article-type = Chapter
| legislature = Riksdagen
| title = Riksdagsordningen
| trans-title = The Parliamentary Act
| url = https://lagen.nu/2014:801#K9P10S1
| language = Swedish
}}
=Switzerland=
In Swiss law, the "principle of the unity of the subject matter" ({{langx|de|Grundsatz der Einheit der Materie}}, {{langx|fr|principe de l'unité de la matière}}, {{langx|it|principio dell'unità della materia}}) applies to federal popular initiatives and to parliamentary legislation that is subject to a referendum. It has been derived by the Swiss Federal Supreme Court from the provision in article 34, section 2 of the Swiss Federal Constitution which guarantees "the freedom of the citizen to form an opinion and to give genuine expression to his or her will" in the exercise of political rights. The Court has outlined the principle as follows:
:"The principle of the unity of the subject matter requires that the subject of a referendum may, in principle, have only one topic area as its subject, that is, that two or several substantive questions or subject matters may not be joined into one referendum proposition in such a way that the voters face a dilemma and do not have a free choice between the several parts. If an item of legislation addresses several substantive questions or subject matters, the unity of the subject matter is only preserved if the several parts have a material intrinsic connection with each other, are materially related to each other and are aimed at the same goal; this material connection may not be merely artificial, subjective or political in nature. (...) Because the concept of the unity of the subject matter is a relative one, and because the weight given to the several parts of a legislative proposition and their relationship to each other is principally a political question, the authorities enjoy wide discretion in the shaping of referendum propositions." Swiss Federal Supreme Court, judgment [http://jumpcgi.bger.ch/cgi-bin/JumpCGI?id=12.09.2006_1P.223/2006 1P.223/2006] of 12 September 2006, section 2; author's translation of the German original.
=United States=
The single subject rule exists in 43 state constitutions in the United States. 41 states apply the rule to all legislation, whereas Mississippi and Arkansas apply it only to appropriations bills.{{cite web |url=https://csgmidwest.org/2024/01/05/capital-closeup-in-the-midwest-every-state-constitution-has-a-single-subject-rule-which-was-at-the-center-of-two-recent-cases-in-nebraska-and-north-dakota/ |website=The Council of State Governments Midwestern Office |access-date=5 April 2024 |title=Capital Closeup: In the Midwest, every state constitution has a 'single subject' rule, which was at the center of two recent cases in Nebraska and North Dakota |date=5 January 2024 }}
States with a single-subject rule include Alabama,{{Cite web |title=SECTION 45 :: Alabama Constitution |url=https://law.justia.com/constitution/alabama/CA-245580.html |access-date=2024-10-31 |website=Justia Law |language=en}} Alaska,{{Cite web |title=Article 2 - The Legislature :: Alaska Constitution |url=https://law.justia.com/constitution/alaska/constitution-2.html |access-date=2024-10-31 |website=Justia Law |language=en}} Arizona,{{Cite web |title=Article 4 Part 2 Section 13 - Subject and title of bills |url=https://law.justia.com/constitution/arizona/4/13.p2.htm |access-date=2024-10-31 |website=Justia Law |language=en}} California,{{Cite web |title=California Constitution :: Article IV - Legislative :: Section 9. |url=https://law.justia.com/constitution/california/article-iv/section-9/ |access-date=2024-10-31 |website=Justia Law |language=en}} Colorado,{{Cite web |title=Article V. Section 21. Bill to contain but one subject - expressed in title. {{!}} 1876 — Current {{!}} Colorado Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/co/constitution/article-v-legislative-department/section-21-bill-to-contain-but-one-subject-expressed-in-title |access-date=2024-10-31 |website=50constitutions.org |language=en}} Delaware,{{Cite web |title=ARTICLE II. LEGISLATURE |url=https://delcode.delaware.gov/constitution/constitution-03.html#P262_33317 |access-date=2024-10-31 |website=delcode.delaware.gov}} Florida,{{Cite web |title=Article III. Section 6. Laws. {{!}} 1968 — Current {{!}} Florida Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/fl/constitution/article-iii-legislature/section-6-laws |access-date=2024-10-31 |website=50constitutions.org |language=en}} Georgia,{{Cite web |title=Article III. Paragraph III. One subject matter expressed {{!}} 1982 — Current {{!}} Georgia Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/ga/constitution/article-iii-legislative-branch-section-5-enactment-of-laws/section-iii-one-subject-matter-expressed |access-date=2024-10-31 |website=50constitutions.org |language=en}} Hawaii,{{Cite web |title=Article III. Section 14. Bills; Enactment {{!}} 1978 — Current {{!}} Hawaii Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/hi/constitution/article-iii-the-legislature/section-14-bills-enactment |access-date=2024-10-31 |website=50constitutions.org |language=en}} Idaho,{{Cite web |title=Article III. Section 16. Unity of subject and title {{!}} 1890 — Current {{!}} Idaho Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/id/constitution/article-iii-legislative-department/section-16-unity-of-subject-and-title |access-date=2024-10-31 |website=50constitutions.org |language=en}} Illinois,{{Cite web |title=Article IV. Section 8. Passage of Bills {{!}} 1970 — Current {{!}} Illinois Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/il/constitution/article-iv-the-legislature/section-8-passage-of-bills |access-date=2024-10-31 |website=50constitutions.org |language=en}} Indiana,{{Cite web |title=Article 4. Section 19. One subject acts; exceptions {{!}} 1974 — Current {{!}} Indiana Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/in/constitution/article-4-legislative/section-19-one-subject-acts-exceptions |access-date=2024-10-31 |website=50constitutions.org |language=en}} Iowa,{{Cite web |title=Article III. Section 29. Acts--one subject--expressed in title {{!}} 1857 — Current {{!}} Iowa Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/ia/constitution/article-iii-of-the-distribution-of-powers-legislative-department/section-29-acts-one-subject-expressed-in-title |access-date=2024-10-31 |website=50constitutions.org |language=en}} Kansas,{{Cite web |title=Article 2. Section 16. Subject and title of bills; amendment or revival of statutes {{!}} 1974 — Current {{!}} Kansas Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/ks/constitution/article-2-legislative/section-16-subject-and-title-of-bills-amendment-or-revival-of-statutes |access-date=2024-10-31 |website=50constitutions.org |language=en}} Kentucky,{{Cite web |title=Section 51. Law may not relate to more than one subject, to be expressed in title -- Amendments must be at length. {{!}} 1891 — Current {{!}} Kentucky Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/ky/constitution/article-the-legislative-department/section-51-law-may-not-relate-to-more-than-one-subject-to-be-expressed-in-title-amendments-must-be-at-length |access-date=2024-10-31 |website=50constitutions.org |language=en}} Louisiana,{{Cite web |title=Article III. Section 15. Passage of Bills {{!}} 1974 — Current {{!}} Louisiana Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/la/constitution/article-iii-legislative-branch/section-15-passage-of-bills |access-date=2024-10-31 |website=50constitutions.org |language=en}} Maryland,{{Cite web |title=Article III. Section 29. . {{!}} 1867 — Current {{!}} Maryland Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/md/constitution/article-iii-legislative-department/section-29 |access-date=2024-10-31 |website=50constitutions.org |language=en}} Michigan,{{Cite web |title=Article IV. Section 24. Laws; object, title, amendments changing purpose {{!}} 1964 — Current {{!}} Michigan Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/mi/constitution/article-iv-legislative-branch/section-24-laws-object-title-amendments-changing-purpose |access-date=2024-10-31 |website=50constitutions.org |language=en}} Minnesota,{{Cite web |title=Article IV. Section 17. Laws to embrace only one subject {{!}} 1974 — Current {{!}} Minnesota Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/mn/constitution/article-iv-legislative-department/section-17-laws-to-embrace-only-one-subject |access-date=2024-10-31 |website=50constitutions.org |language=en}} Missouri,{{Cite web |title=Article III. Section 23. Limitation of scope of bills--contents of titles--exceptions {{!}} 1945 — Current {{!}} Missouri Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/mo/constitution/article-iii-legislative-department/section-23-limitation-of-scope-of-bills-contents-of-titles-exceptions |access-date=2024-10-31 |website=50constitutions.org |language=en}} Montana,{{Cite web |title=Article V. Section 11. Bills {{!}} 1972 — Current {{!}} Montana Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/mt/constitution/article-v-the-legislature/section-11-bills |access-date=2024-10-31 |website=50constitutions.org |language=en}} Nebraska,{{Cite web |title=Article III. Section 14. Bills and resolutions read by title; printing; vote for final passage; bills to contain one subject; amended section to be set forth; signing of bills. {{!}} 1996 — Current {{!}} Nebraska Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/ne/constitution/article-iii-legislative-power/section-14-bills-and-resolutions-read-by-title-printing-vote-for-final-passage-bills-to-contain-one-subject-amended-section-to-be-set-forth-signing-of-bills |access-date=2024-10-31 |website=50constitutions.org |language=en}} Nevada,{{Cite web |title=Article 4. Section 17. Act to embrace one subject only; title; amendment {{!}} 1864 — Current {{!}} Nevada Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/nv/constitution/article-4-legislative-department/section-17-act-to-embrace-one-subject-only-title-amendment |access-date=2024-10-31 |website=50constitutions.org |language=en}} New Jersey,{{Cite web |title=Article IV. Paragraph 4. . {{!}} 1948 — Current {{!}} New Jersey Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/nj/constitution/article-iv-legislative-section-vii/section-4 |access-date=2024-10-31 |website=50constitutions.org |language=en}} New Mexico,{{Cite web |title=Article IV. Section 16. Subject of bill in title; appropriation bills. {{!}} 1912 — Current {{!}} New Mexico Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/nm/constitution/article-iv-legislative-department/section-16-subject-of-bill-in-title-appropriation-bills |access-date=2024-10-31 |website=50constitutions.org |language=en}} New York,{{Cite web |title=Article III. Section 15. Private or local bills to embrace only one subject, expressed in title {{!}} 1938 — Current {{!}} New York Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/ny/constitution/article-iii-legislature/section-15-private-or-local-bills-to-embrace-only-one-subject-expressed-in-title |access-date=2024-10-31 |website=50constitutions.org |language=en}} North Dakota,{{Cite web |title=Article IV. Section 13. . {{!}} 1992 — Current {{!}} North Dakota Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/nd/constitution/article-iv-legislative-branch/section-13 |access-date=2024-10-31 |website=50constitutions.org |language=en}} Ohio,{{Cite web |title=Article II. Section 15. How bills shall be passed {{!}} 1973 — Current {{!}} Ohio Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/oh/constitution/article-ii-legislative/section-15-how-bills-shall-be-passed |access-date=2024-10-31 |website=50constitutions.org |language=en}} Oklahoma,{{Cite web |title=Article V. Section 57. Subjects and titles--Revival or amendment by reference--Extent of invalidity {{!}} 1907 — Current {{!}} Oklahoma Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/ok/constitution/article-v-legislative-department/section-57-subjects-and-titles-revival-or-amendment-by-reference-extent-of-invalidity |access-date=2024-10-31 |website=50constitutions.org |language=en}} Oregon,{{Cite web |title=Article IV. Section 20. Subject and title of Act. {{!}} 1952 — Current {{!}} Oregon Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/or/constitution/article-iv-legislative-branch/section-20-subject-and-title-of-act |access-date=2024-10-31 |website=50constitutions.org |language=en}} Pennsylvania,{{Cite web |title=Article III, A. Section 3. Form of bills {{!}} 1968 — Current {{!}} Pennsylvania Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/pa/constitution/article-iii-a-legislation-procedure/section-3-form-of-bills |access-date=2024-10-31 |website=50constitutions.org |language=en}} South Carolina,{{Cite web |title=Article III. Section 17. One subject {{!}} 1895 — Current {{!}} South Carolina Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/sc/constitution/article-iii-legislative-department/section-17-one-subject |access-date=2024-10-31 |website=50constitutions.org |language=en}} South Dakota,{{Cite web |title=Article III. Section 21. One subject expressed in title. {{!}} 1889 — Current {{!}} South Dakota Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/sd/constitution/article-iii-legislative-department/section-21-one-subject-expressed-in-title |access-date=2024-10-31 |website=50constitutions.org |language=en}} Tennessee,{{Cite web |title=Article II. Section 17. Bills; requirements {{!}} 1870 — Current {{!}} Tennessee Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/tn/constitution/article-ii-legislative-department/section-17-bills-requirements |access-date=2024-10-31 |website=50constitutions.org |language=en}} Texas,{{Cite web |title=Article III. Section 35. SUBJECTS AND TITLES OF BILLS. {{!}} 1986 — Current {{!}} Texas Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/tx/constitution/article-iii-proceedings/section-35-subjects-and-titles-of-bills |access-date=2024-10-31 |website=50constitutions.org |language=en}} Utah,{{Cite web |title=Utah Constitution - Article VI, Section 22 |url=https://le.utah.gov/xcode/ArticleVI/Article_VI,_Section_22.html?v=UC_AVI_S22_1800010118000101 |access-date=2024-10-31 |website=le.utah.gov}} Virginia,{{Cite web |title=Article IV. Section 12. Form of laws {{!}} 1971 — Current {{!}} Virginia Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/va/constitution/article-iv-legislature/section-12-form-of-laws |access-date=2024-10-31 |website=50constitutions.org |language=en}} Washington,{{Cite web |title=Article II. Section 19. Bill to Contain One Subject {{!}} 1889 — Current {{!}} Washington Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/wa/constitution/article-ii-legislative-department/section-19-bill-to-contain-one-subject |access-date=2024-10-31 |website=50constitutions.org |language=en}} Wisconsin,{{Cite web |title=Article IV. Section 18. Title of private bills {{!}} 1848 — Current {{!}} Wisconsin Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/wi/constitution/article-iv-legislative/section-18-title-of-private-bills |access-date=2024-10-31 |website=50constitutions.org |language=en}} and Wyoming.{{Cite web |title=Article 3. Section 24. Bill to contain only one subject, which shall be expressed in title. {{!}} 1889 — Current {{!}} Wyoming Constitution {{!}} 50 Constitutions |url=https://50constitutions.org/wy/constitution/article-3-legislative-department/section-24-bill-to-contain-only-one-subject-which-shall-be-expressed-in-title |access-date=2024-10-31 |website=50constitutions.org |language=en}} The only states without a single-subject rule in their constitution are Connecticut, Maine, Massachusetts, New Hampshire, North Carolina, Rhode Island, and Vermont.
Several states with a single-subject rule make an exception for general appropriations, including Alabama, Alaska, Colorado, Delaware, Illinois, Indiana, Missouri, Montana, New Mexico, Oklahoma, Pennsylvania, Texas, Utah, and Wyoming. Some of these states listed also make an exception to the single-subject rule for codifying and revising laws, like Alabama's, for example: "[. . .] Each law shall contain but one subject, which shall be clearly expressed in its title, except general appropriation bills, general revenue bills, and bills adopting a code, digest, or revision of statutes [. . .]"
26 states allow for citizen-initiated ballot measures, 16 of which apply a single-subject rule to all ballot measures, while 10 do not require a single-subject rule be applied to ballot measures.{{Cite web |title=Single-subject rule for ballot initiatives |url=https://ballotpedia.org/Single-subject_rule_for_ballot_initiatives |access-date=2024-10-31 |website=Ballotpedia |language=en}}
For example, the constitution of Minnesota, Article IV, Section 17, requires that "No law shall embrace more than one subject, which shall be expressed in its title." Conversely, neither the U.S. Congress nor the U.S. Constitution has such a rule so riders which are completely unrelated to the main bill are commonplace. These amendments are often put into bills at the last minute, so that any representative who may read the legislation before actually voting on it will not have a chance to catch it. An effort is underway, however, to add a single subject amendment to the U.S. Constitution to apply a single subject rule to the Congress.{{cite web| url=http://articlevcaucus.com/uncategorized/july-newsletter/| title=July Newsletter| publisher=Article V News| accessdate=11 February 2015}}
It has been charged that single-subject rules have been misused as a political or judicial measure to slow or nullify ballot initiatives. An example of accusation of misuse of this law occurred in Colorado when a former governor made a statement against a single-subject ruling.{{cite web|url=http://www.denverpost.com/news/ci_3929774 |title=Court bars immigration vote |publisher=The Denver Post |date=June 13, 2006 |archiveurl=https://web.archive.org/web/20060616115209/http://www.denverpost.com/news/ci_3929774 |archivedate=June 16, 2006 |accessdate=August 16, 2011}} The rule can also result in overly narrow questions, that result in no substantial effects.{{cite web|url=http://www.ncsl.org/default.aspx?tabid=16542 |title=Single Subject Rules |date=May 8, 2009 |publisher=National Conference of State Legislatures |accessdate=August 16, 2011}}
In July 2006, the Georgia Supreme Court ruled that a November 2004 amendment to the constitution of Georgia against same-sex marriage would be allowed to stand, despite also banning recognition of same-sex marriages done in other states, and banning civil unions. Additionally, voters in the referendum were told of only the same-sex marriage question, while the ballot failed to mention the other two issues, preventing voters from giving fully informed consent. A judge had previously ruled that voters had the right to decide the issue of civil unions separately, thus putting the two issues as one violated Georgia's single-subject rule.{{citation needed|date=November 2021}}