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| Real Judicial Reform |
Key Points
- The Knesset can modify laws to establish an upper house without a referendum.
- Modifying the Electoral Committee for Rabbis' laws requires a basic law change for legislative powers.
- No referendum is needed as basic laws can be amended by a simple majority vote.
Overview
Yes, the Knesset can modify the existing laws governing the Electoral Committee responsible for appointing representative Rabbis to establish an upper house by a vote, without holding a public referendum. This process involves amending Israel's basic laws, which can be done with a simple majority and does not require public approval through a referendum. However, creating an upper house with legislative powers necessitates changes to the basic law defining the Knesset's structure, alongside modifications to the relevant committee laws.
Legal Process
To establish an upper house, the Knesset must first pass a basic law amendment to redefine the parliamentary structure, as the current Basic Law: The Knesset defines it as a unicameral body with 120 members. This amendment can be enacted with a simple majority vote, as there is no entrenchment clause requiring a higher threshold for changing the structure, unlike provisions for the number of members which require 80 votes. Additionally, the Knesset can pass regular laws, such as modifying the Chief Rabbinate Law, to define the composition and operation of the new upper house, all without needing a referendum.
Surprising Aspect: Flexibility in Law Changes
It's surprising that such a significant constitutional change, like adding an upper house, can be made without public input through a referendum, relying solely on parliamentary action, reflecting Israel's preference for representative over direct democracy.
Comprehensive Analysis: Modifying Laws to Establish an Upper House in Israel Without a Referendum
This analysis explores whether the Knesset can modify the existing laws governing the Electoral Committee responsible for the appointment of representative Rabbis to establish an upper house in Israel's parliament by a vote, without holding a public referendum. It provides a detailed examination of the legal framework, constitutional implications, and procedural requirements, ensuring a thorough understanding for readers interested in Israeli governance and constitutional law.
Legal Framework and Current System
Israel operates with a unicameral parliament, the Knesset, consisting of 120 members, as defined in Basic Law: The Knesset (Basic Law: The Knesset). The basic laws of Israel serve as the de facto constitution, enacted by the Knesset and amendable with a simple majority, unless specific entrenchment clauses require a higher threshold, such as the requirement of at least 80 members to change the number of Knesset members under section 4 of Basic Law: The Knesset.
The Electoral Committee for Rabbis, responsible for appointing representative Rabbis, is part of the process governed by the Chief Rabbinate Law, last amended in 2013 (Chief Rabbinate of Israel). This committee, an assembly of rabbis and laypeople, elects the Chief Rabbis, but currently holds no legislative functions.
Establishing an Upper House: Legal Requirements
To establish an upper house, the Knesset would need to create a new chamber with legislative powers, which would fundamentally alter the parliamentary structure. This requires amending Basic Law: The Knesset to recognize a bicameral system, as the current law vests legislative power solely in the Knesset (Basic Law: The Knesset). The analysis reveals that no entrenchment clause in Basic Law: The Knesset explicitly protects its unicameral nature beyond the number of members, suggesting that a simple majority could suffice for such an amendment.
However, for the new upper house to have legislative authority, it must be recognized within the basic law framework. Modifying the Chief Rabbinate Law to redefine the Electoral Committee for Rabbis as an upper house would not, on its own, grant legislative powers, as that authority is constitutionally vested in the Knesset. Therefore, the process would involve:
- Passing a Basic Law Amendment: Enact a new basic law or amend Basic Law: The Knesset to establish an upper house and define its legislative powers. This can be done with a simple majority, as basic laws follow the same procedural requirements as regular laws under the Knesset Rules of Procedure, with no general requirement for a higher threshold unless specified (The Frequent Changes to Israel’s Basic Laws).
- Modifying Regular Laws: Pass amendments to the Chief Rabbinate Law or related legislation to define the composition, election process, and operation of the upper house, potentially repurposing the Electoral Committee for Rabbis. This is also achievable with a simple majority vote.
Referendum Requirement Analysis
Israel's legal system mandates a referendum only for specific issues, primarily territorial withdrawals, as outlined in the Basic Law: Referendum enacted in 2014 (Thirteenth Basic Law of Israel, Referendum). There is no general provision requiring a public referendum for amending basic laws or establishing new governmental structures, such as an upper house. Historical instances, like the 1967 referendum on Jerusalem's status, were exceptional and not part of standard legislative practice (Referendums in Israel).
Given this, neither the basic law amendment to create an upper house nor the modification of the Chief Rabbinate Law requires a referendum. The Knesset's authority to amend basic laws with a simple majority, as seen in recent changes like the 2023 amendments to Basic Law: the Judiciary, supports this conclusion (Israel: Legislation Abolishes Reasonableness as a Standard for Judicial Review of Government’s Decisions).
Potential Legal Challenges and Judicial Review
While legally feasible without a referendum, such a significant change could face scrutiny from the Supreme Court of Israel, which has the power of judicial review based on basic laws, particularly since the enactment of Basic Law: Human Dignity and Liberty in 1992 (Basic Laws of Israel). If the Knesset modifies the Chief Rabbinate Law to create a body with legislative powers without amending the basic law, the Supreme Court might strike it down as unconstitutional, arguing it violates the legislative authority vested in the Knesset. To mitigate this, the Knesset must ensure the basic law is amended to legitimize the upper house's powers.
Comparative Context and Implications
Comparatively, countries like the United States and Australia have bicameral systems established through constitutional provisions, often requiring significant majorities or public approval for changes. In Israel, the reliance on parliamentary sovereignty allows for such structural changes without direct public input, highlighting a preference for representative democracy over direct democracy (What is a citizens-initiated referendum?). This flexibility is surprising, given the fundamental nature of adding an upper house, but aligns with Israel's legal practice of amending basic laws through legislative action.
Conclusion
In conclusion, the Knesset can modify the existing laws governing the Electoral Committee for Rabbis to establish an upper house by a vote, without a referendum, provided the process includes amending Basic Law: The Knesset to define the new chamber's legislative powers. Both the basic law amendment and the modification of regular laws, such as the Chief Rabbinate Law, can be enacted with a simple majority, as there is no legal requirement for a public referendum in this context.
Key Citations:
- Basic Laws of Israel Wikipedia page
- Referendums in Israel Wikipedia page
- Basic Law: Referendum—Changing the Rules of the Game of Israeli Democracy
- Thirteenth Basic Law of Israel, Referendum CIE page
- The Frequent Changes to Israel’s Basic Laws IDI article
- Israel: Legislation Abolishes Reasonableness as a Standard for Judicial Review of Government’s Decisions
- Chief Rabbinate of Israel Wikipedia page
- Basic Law: The Knesset Knesset page
- What is a citizens-initiated referendum? New Zealand Parliament page
