';- , 1 * eeds V-l UC-NRLF GIFT OF / 5 / / s. REED'S RULES GENERAL PARLIAMENTARY LAW SUGGESTIONS FOR SPECIAL RULES BY THOMAS B. REED, SPEAKER OF THE HOUSE OF REPRESENTATIVES. CHICAGO: RAND, McNALLY & COMPANY Copyright, 1894, by Thomas B. Reed. Copyright, 1898. by Thomas B. Reed CONTENTS. CHAPTER PAGE I. Introduction n II. Preliminary Propositions ... 16 i. Understanding under which assemblies meet 16 2-4. Nature of assemblies 17 5-8. Adaptation of organization to the assembly 1 8-20 9-22. Quorum. _ .21-28 23-25. Rule of majority 28,29 III. Organization 29 26. Object of organization 29 27. Simple organization 29 2 8-3 1 . Double organization 31,32 IV. Officers and Their Rights and Duties 35 32-40. Presiding officer, rights and duties 35-40 41-46. Clerk, rights and duties. 41-44 47. Other officers _._ 45 V. Rights and Duties of Members 46 48 . Rights of members 46 49, 50. Duties of members. . 47, 48 VI. Rules and Orders. 40 5 1 . Why special rules are needed. 49 52. Alteration of rules 50 53, 54. Suspension of rules . . . . 50, 51 55. Practical suggestion as to rules 51 56, 57. Government in the absence of rules 52 (3) 380295 4 CONTENTS. CHAPTER PAGE VII. Committees-. 53 58. Nature and need of committees 53 59-63. Kinds of committees 53-55 64-69. Selection of committees .56-5 8 70-79. Committee proceedings. .59-63 80-85. Action of committee before the assembly 63-66 86. Origin committee of the whole 67 87-99. Methods of procedure... 67-74 VIII. Conduct of Business Disposal of the Main Question. _ 74 gioo. Forms of action by an assem- bly.. 74 101-108. introduction of business, including petitions.. 75-79 109. Main question _ 79 no. Question of consideration. __ 80 in, 112. Point of order 81,82 112, 113. Other methods of put- ting the question aside 82 114-117. To lay on the table 82-84 1 1 8. To postpone to a day certain 84 119, 120. To commit 85,86 121, 122. To indefinitely postpone86, 87 123-127. Previous question 87-91 128. Closure of debate in House of Commons and French Chamber of Deputies 92 IX. Conduct of Business, Continued Amendments - 93 129, 130. Method of procedure. .93, 94 131. Object of amendment 94 132. Method of amendment 95 133. Amendment to the amend- ment _ . 95 134. Amendment, one at a time.- 96 135. J 36. Amendment by inserting 97 137-139. Amendment by striking out 98,99 CONTENTS. 5 CHAPTER PAGE 140-146. Amendment by striking out and inserting _ . 100-106 147. Amendment by striking out and inserting paragraphs. 106 148. English system of putting amendments 107 149. Amendment to the amend- ment (again) 108 150. Amendment, modification by mover _ .._ 109 151-153. Division of the Question no 154. Filling of blanks. _ ___ in 155-157. Amendments, other methods of 112-114 158. Amendments, method of stat- ing 114 159. Amendments, limitation as to 115 1 60. Amendments must be ger- mane _ 117 161. Amendment incompatible, etc 117 X. Conduct of Business, Concluded- ._ 118 162. Privileged and incidental motions __ 118 163. Subsidiary motions, re view of 119 164, 165. Applicability of subsid- iary motions to each other 121 1 66. Effect of motions of higher rank on those of lower rank 121 167-177. Privileged motions, ad- journment, reoess, etc. 122-130 178-180. Questions of privilege 130-131 181-193. Incidental motions.. 132-138 XI. Recapitulation and Classification of Motions _. 140 196. The main question 140 6 CONTENTS. CHAPTER PAGE 197. Subsidiary motions.. 140 198. Privileged questions 141 199. Incidental questions 142 200. Practical illustration of the order of motions 143 201. Motions in their relations to debate, amendment, and to each other 145 XII. Motions for Reconsideration. 147 202. Reconsideration 147 203. Motion for reconsideration __ 148 204. When permissible. 149 205. When to be made 151 206. Practice in House 151 207. Who may make it 152 209-212. Object of, debate, etc. 153-155 XIII. Debate and Decorum 155 212. Debate, object of, duties of members. - 155 213. Debate, beginning of 157 214. Recognition, rules of 158 215. Member can speak but once. 159 216. Relevancy of debate 159 217. 218. Yielding the floor 161/162 219. Informal remarks 162 220. Cessation of debate 163 221-228. Methods of preserving order 163, 168 227, 228. Debate in Ihe United States House 1 68-1 70 XIV. Methods of Voting 171 229. Three methods 171 230. By sound 172 231. Rising vote _ 172 232. Yeas and nays .. 173 233. By tellers in the United States House 175 CONTENTS. 7 CHAPTER PAGE 234. Other methods 176 235. Decisions of points of order during 176 XV. Proceedings Between Co-ordinate Branches of Legislatures 177 236. Methods of communication __ 177 237. Messages ___ _ 178 238,239. Committees 179 240. Conferences 1 79 241. Object of a conference 180 242. Free conference 181 243. Action of conference com- mittees 182 244. Report of conference com- mittees _ 183 245. Method of obtaining confer- ence ___ 183 246. Conference report, procedure in assembly 185 247-254. Motions relating to agree- ment and disagreement between two houses 186-189 XVI. Order of Business 189 255-258. Orders of the day 189-191 259-263. Changes in parliament- ary law and practical suggestions thereon Various orders of busi- ness 192-195 264-265. Rank of motions 196-198 XVII. Special Rules. 199 266. Practical suggestions 199 267. Changes in order of business 200 268. Changes in rank of motions. 200 269. Two-thirds to adopt previous question 202 8 CONTENTS. CHAPTER PAGE XVIII. Forms 203 270. For calling a meeting 203 271. Calling to order 203 272. Chairman __ ._ 205 273. Parliamentary inquiries 206 274. Points of order . 207 275-280. Subsidiary motions.. 208-210 281-283. Privileged motions. .210, 211 284-288. Incidental motions. _2ii, 212 XIX... 213 289. United States House of Rep- resentatives Method s of business Change of rules Fifty-first Congress 213 PREFACE. It should be understood at once that this Man- ual has nothing to do with the political differences which have existed as to the rules of the House of Representatives, except so far as any treatise would incidentally refer to them. The object of this book is to present the rules of general parliamentary law in such a way that the system can be comprehended by persons who may be called upon to preside over meetings of deliberative bodies, and by those who may desire to participate in the proceedings. The aim has been to so explain each motion that it may be understood by itself and also in its relations to other motions. Paragraphs also have been in- serted to show the changes made in general par- liamentary law by the rules and usages of the United States House of Representatives. This, it was thought, would be useful to enable those who desired so to do to comprehend, in a general way, the practice of that body. Forms and suggestions have been added. If it should seem to anyone versed in parliamentary law that many of the forms are too simple to need printing, the author ventures to suggest that a beginner does not know the simpler things, and needs them the most. 10 PREFACE. If the student has once fixed in his mind the idea that parliamentary law is not a series of arbi- trary rules, but a plain, consistent system, founded on common sense, and sanctioned by the experience of mankind, he will have gone far toward under- standing it. That this little volume will complete his education is too much to expect, but that it will aid and assist the learner is the hope of the author. THOMAS B. REED. PARLIAMENTARY RULES. CHAPTER I. Introduction. Origin and Precedents. Parliament- ary law, as it now exists, had its origin as a system in the Parliament of England. Undoubtedly in every country and in every age where assemblies of people were held, some form of procedure became established and was followed. But these forms of pro- cedure have, in many, perhaps most, in- stances, perished, and would probably be of little use to us now if fully known. The English system itself has been so changed within human memory in every other country where the parliamentary system of government has been adopted, that Eng- lish precedents afford us little help as to actual procedure. Nevertheless, they are still of much use in determining and illus- 12 PARLIAMENTARY RULES. trating fundamental principles. Before the time when Jefferson wrote his little treatise, which is known as Jefferson's Manual, American parliamentary law was, for the most part, an agglomeration of English precedents which were reverenced because they were precedents, and not because they were examples of proper methods of expediting business. Before that time but little effort had been made to reconcile precedents with principles, and parliamentary law was not a system founded on principle and settled by the dictates of reason. It can not be said now to be a perfect method easily adjusted to all cases, but it has been changed for the better, and the change has been brought about in a natural way. Whatever con- cerns large bodies of men, and is thought over by large numbers of intelligent peo* pie, gets infiltrated with the common sense of the many and becomes adapted to their wants and needs. Under a popular gov- ernment like our own much of the work of government is carried on by bodies and assemblages outside of the regularly con- stituted legislatures, councils, and legal INTRODUCTION. 13 boards. As a preliminary to the regular government of the country, conventions are necessary for the nomination of candi- dates and for the conduct of campaigns. As a means of utilizing wealth by union of limited sums, corporations are formed to enable large enterprises to be conducted. The members of these corporations have to meet to transact business, and the di- rectors chosen by them 1iave also to act together as a body. Many movements in connection with education and with other forms of human progress, including all the movements which have gone on and are going on for enfranchisement of women, require assemblages for very many pur- poses. Wherever there is an assembly there is need of parliamentary law, so that the assembly may proceed in orderly fash- ion with as little jar and discord as possible, and accomplish the work to be performed, which work in all instances is to obtain the sense of the assembly and shape its action in accord therewith. This increase of assemblies, the extent of which has been but hinted at, has necessarily brought the law which governs them more and more 14 PARLIAMENTARY RULES. into discussion until to-day a tolerable sys- tem can be stated which will appeal at once to the good sense of all, and also to the experience of those who have had occasion to be versed in the practice. Of course, there are disputed points, many questions on which authorities seem to differ, and the practice to be varied. In such cases that rule has been adopted in this Manual which seemed the most prac- tical and sensible, not always in itself, but as a part of a working system. As has already been intimated, we can have but scant recourse to English prec- edents, for the difference between English and American parliamentary law is so wide that it would hardly be possible for a par- liamentarian, practiced in our law only, to understand the proceedings of the House of Commons. There the previous ques- tion kills the bill, with us it only kills the debate. There a motion to adjourn, at least* of a certain kind, is debatable, and a motion to adjourn debate can be debated to exhaustion. With us the body must say yes or no to the question of adjournment, and the motion to adjourn debate, at least INTRODUCTION. 15 in that form, is unknown. There they do not " strike out." They prefer to decide whether or not the words " shall stand part of the question.' A motion to reconsider is not allowed. With us it is altogether too common. Nor, on the other hand, have we much help from our own popular parliamentary body, the House of Representatives. There a variety of causes have conspired to make the forms of procedure peculiar to itself. Perhaps on the whole it would not be suitable in a treatise like this to specify these causes, but every one recognizes- the fact that whether the causes for the slow procedure of the House are proper causes, the fact remains that the procedure of the House is not adapted to the ordinary as- sembly, and, so far as my knowledge extends, has never been adopted in its entirety by any legislature. The parliamentary law, then, which we have to describe has grown up among the people for their own uses, and is on the whole well-adapted to the ends they have in view. 16 PARLIAMENTARY RULES. 1 CHAPTER II. Preliminary Propositions. i. Understanding Under which As- semblies Meet. Every assembly meets with the implied understanding that it will be governed and controlled by the general custom applicable to assemblies, which custom is called general parliamentary law. This is implied from its very exist- ence, since no action can be taken without some rules, and special rules can not be had without parliamentary action. In a word, a lawful assembly met to express an opinion or do an act must have some order of pro- ceeding, and the system which we call parliamentary law, having grown out of the necessities of the case and having been universally acquiesced in, has become the governing law of such assemblies, con- fidently appealed to by each member. Where special exigencies require it these unwritten rules are supplemented by Special Rules just as the common law is supplemented by statutes. Where the 2 PRELIMINARY PROPOSITIONS. 1? special rules do not modify, change, or ob- literate any rule of general parliamentary law, that rule still governs just as the common law controls where the statute has not modified it. 2. Nature of Assemblies. Assemblies differ, not only in their character as legal or voluntary, but also in the nature of the right of membership. Some require an elaborate organization. Others are best served by the simplest methods. 3. Voluntary Assemblies. An assem- bly may be a voluntary one, called together by those interested, and of which any one who comes and who answers to the de- scription of those called, can be a mem- ber. Political mass meetings, meetings to express the opinions of citizens, and meet- ings to form associations, are of this class. 4. Legislative and Constituent As- semblies. An assembly may be one con- stituted by law, and those only can be members who are chosen or appointed by law, or who by virtue of credentials seem to be so chosen or appointed. Consti- tutional conventions, legislatures, and municipal councils are examples of this kind of assembly. 9 18 PARLIAMENTARY RULES. 5 Other assemblies are constituted under a call by competent authority without special warrant of law, though under its sanction, in such a way that each member of them, though chosen by a voluntary assembly, must present credentials in order to prove himself a member. Political con- ventions to make nominations are examples of this sort of assembly. 5. Adaptation of Organization to the Assembly. It is evident from the nature of the case that these different kinds of as- semblies require different kinds of organ- ization, not different in character, but in extent. Those assemblies the member- ship of which can not be in dispute, and the purposes of which are neither numer- ous nor complicated, can organize perma- nently at once, and need only a very simple system. 6. Those assemblies the membership of which may be in dispute, and in which in- dividuals have no right to participate with- out credentials, can not, it is obvious, fully organize until the preliminary question of membership is settled. Such a question is too vital to be postponed, and the results 7 .PRELIMINARY PROPOSITIONS. 19 of a convention or a legislature are too deeply affected by the organization foi that to take final shape until the question of membership is settled. In bodies constituted by law, that chaotic moment when the assembly meets and does not yet know its membership has been fraught with so much disorder, con- fusion, and discord that there is usually some method pointed out by statute for the preliminary examination of credentials. 7. In the House of Representatives the Clerk of the preceding House makes up the list of members, which list is regarded as conclusive for the time being, and at once the House called to order by him pro- ceeds to permanent organization. Until the Speaker is chosen this Clerk presides. So important is the initiative of organ- ization, and so dangerous is the situation considered, that various expedients have been adopted for legislative bodies in va- rious countries. We have already stated that adopted in this country in regard to the House of Representatives. In France the Chamber of Deputies is organized by the oldest member taking the chair, with 20 PARLIAMENTARY RULES. . 8 the six youngest members as secretaries. The secretaries act until the permanent organization, but the presiding officer, who takes the chair by virtue of his age, retains it only so long' as is necessary to choose a temporary president and two temporary vice-presidents. The temporary president is then installed, and the assembly pro- ceeds to ascertain who are members. When the membership is ascertained, then the permanent organization is made. In Italy the chair is taken by the earliest named vice-president of the preceding session, or, if there be none of that session present, then by the one present of the session least remote. If there are none of any session then the oldest member acts. By the provisions of the constitution of Rhode Island, " the senior member from the town of Newport " is temporary presi- dent of the popular branch. 8. Where no provision of constitution or statute exists, and in bodies voluntary in their origin, but requiring credentials to entitle those proposing to act to member- ship, a preliminary or temporary organiza- tion is first had, and immediately the ere- 9 QUORUM. 21 dentials are examined, usually by the aid of a committee, whose judgment is sub- mitted to the assembly and passed upon by it. The permanent organization is then made. Quorum. 9. Definition. The quorum of an as- sembly is that number which must be present to constitute the assembly a body competent to transact business legally. 10. Number Necessary. There is no definite rule applicable to all cases. It is commonly stated that in the absence of special regulations, either constitutional, legal, or by order of the assembly itself, a majority of the members is necessary to make a quorum. This statement is inac- curate. In some assemblies whoever comes is authorized to act and bind all the others. In other assemblies the quorum is a major- ity, and in still other cases all must be present. 11. Assemblies Which Do Not Re- quire a Quorum. Assemblies which act on their own responsibilities, and which are not representative or judicial, do not 22 PARLIAMENTARY RULES. 12 require any quorum. Town meetings in New England, stockholders' meetings, and voluntary meetings generally are of this class. 12. Assemblies Which Require a Majority. Where the body is a repre- sentative one, performing the functions of government for a constituency, or a finan- cial one, managing the business of the corporation which selected it, the quorum is a majority, and can neither be increased nor diminished by the vote of the body City councils and boards of directors are of this class. 13. Cases Where All Must Be Pres- ent. Where the body is appointed by law, or by virtue of law, to perform a single act, or a series, of acts relating to a single subject, which requires the exercise of judgment and discretion, the whole board constitutes the quorum. All must be present and deliberate, but the majority is competent to act. Referees are of this class, 14. In most public bodies the number necessary to make a quorum is fixed by the constitution or by statute. In volun- 15 QUORUM. 23 tary bodies it may be fixed by the body itself. 15. The Presence Only of a Quorum Required. The quorum required to con- stitute an assembly and render it compe- tent to transact business is a present quorum and not a voting quorum. In all cases, if the number necessary to make a quorum is present, it makes no difference how many or how few actually participate in the decision. Those who sit silent are regarded as consenting to the result. Such was the recent decision of the United States Supreme Court, which decision was in accord with every decision of every State Supreme Court which has ever passed upon the question. In strictness a chairman ought not to take the chair until after the appearance of a quorum, but in practice in this country he always does; and until a member from the floor or the presiding officer raises the question of quorum a quorum is always supposed to be present. 16. Practice in the House of Repre- sentatives. Under the rules of the Unit- ed States House of Representatives the 24 PARLIAMENTARY RULES. 16 Speaker takes the chair at the hour indi- cated by the rules or by the special order of the House, and, " upon the appearance of a quorum," proceeds to lay before the House the business in order. In practice, notwithstanding this rule, the business begins as soon as the Speaker takes the chair, a quorum being presumed to be present, and continues until the sugges- tion of no quorum is made. Notwithstanding the decision of the United States Supreme Court already mentioned, the Fifty-second Congress con- tinued to require a voting quorum. No one who refused to vote was regarded as present, however visible or vociferous he might be. In the Fifty-first Congress a constitutional quorum, that is, a " present quorum," was required, which practice was pronounced legal by the Supreme Court. (See note, page 217.) In the French Chamber, where a major- ity is a quorum, it was decided in 1878 by President Gr O aJ,S O y 0) <1> *d Amend 4. o 4. 4. o 4. 161 I 184 y Appeal o o o 4- 4. o o 4. 185 169 170 j- Adjourn 2 O o o o o o o o To fix time 171 to which 4. o o 4, o o o 4. Commit 4. o o 4. 3 4. o o 4. 4. 1 lo Consideration, 4 Question of O o o o o o o 194 methods of + o o o o 4- o o o o 4 4- '93 Division of Ques- tion 4. o o Q o 4. 114 Lay on table (see 5 note) o o o o o o rog Main Question... 4- 4- 4- 4- 4- + 4- 4- 6 i8a Drder, Point of.. o o 4- o o o o o 187 Papers, Reading of 4. o o n 8 Postpone to day 7 certain 4. o o o 8 121 !25 Indefinitely Previous Ques- O o o 4- o o o o 4- tion o o E 7 8 Privilege, Ques- tion of. 4. 4. 4, 4. 4. J 74 lecess o o o 4- o o o o o o lyi Rules, Suspen- sion of o o o o o o o o o o [89 Withdrawal of 9 Motion o o o o o o o o o 4- EXPLANATION. This table is intended to answer the question in the vertical column during the pendency of the motion in the horizontal column, e. g.: Amend. Amend? (Can you amend an amendment?) Yes. Consideration, Question of? (Can you raise question?) No. Motion as to methods of Consideration? Yes. Debatable? Yes. Division of question? Yes. Postpone to day certain ? No. Indefinitely ? No. Previous Question ? No. Reading of paperB ? Yes. Reconsideration ? Yes. The 4- means yes; the o, no. Numerals in table refer to oppo- site page. (218) MODIFICATIONS. (REFERRED TO BY NUMERALS IN TABLE.) 1. But a motion to lay appeal on the table will cut off debate, and if carried will sustain the chair. 2. Motion to adjourn can not be amended unless it means a dissolution of the assembly. See 170. 3. But does to open to discussion the Main Question unless coupled with instructions. 120. 4. But not after consideration has begun. 5. But not if motion has been decided affirmatively. 6. Not as of right, but solely by permission of the chair. 7. Does not open Main Question to discussion. 8. Opens Main Question to discussion, because decision in the affirmative is a final negative to the whole propo- sition. 9. But not after the member having leave to withdraw, has withdrawn it. GENERAL REMARKS. Lay on Table. Motion to, can be entertained on amend- ment, but the result is the same as if made generally the whole subject goes on the table. See 114. If made on "appeal" or ''motion to reconsider" only the appeal or motion to reconsider goes on the table, but not the whole matter, and both appeal and motion are thereby ended. Member on Floor can be taken off on Point of Order or on Question of Privilege. No one can claim the floor against a Question of Consideration seasonably raised. Presiding Officer. When a member he may vote even when his vote makes a tie. A tie vote on an appeal sus- tains the chair. Reconsideration. A motion to reconsider opens the whole question to debate even after it has passed under the previous question; but the motion to reconsider may be laid on the table, and thus negatived and debate cut off. Second. None required on point of order or on recon- sideration, or on question of consideration or appeal. (219) INDEX. SECTION. Action by an Assembly, forms of 100 Adjourn .. 169, 170, 201 motion to, highly privileged 169 exception 17 motion to fix time to which to 171 practical observations 172 practical suggestions 173 Amendment 129 to 161, 201 amendment to 133, 149 ot committee .... 84 changing affirmative^.. 159 division of question ...151, 193 who may demand division of question 152 English system of putting 148 filling of blanks 154 germane 160 of incidental motions 201 incompatible or inconsistent 161 insertion of words. 135? 136 limitation of words .-. 159 method of making 132 method of procedure in ordinary cases 129 method of stating 158 modification of, by mover 150 object of 131 oneatatime 134 other methods of 155 paragraphs 130, 144 preamble 130 note striking out 137 striking out, effect of 138, 139 C220) INDEX. 221 Amendment Continued. SECTION striking out, rule in House of Representatives 139 striking out all after enacting clause 156 striking out enacting clause .. 157 striking out and inserting 140 striking out and inserting paragraph 144, 147 striking out and inserting indivisible . 141 striking out and inserting, House of Representatives, 145 striking out and inserting, practical suggestion 146 striking out, etc., effect of affirmative action 143 striking out, etc., effect of negative action 142 substitute 140 Appeal 184, 185 Assembly, adaptation of organization to.. 5 to 8 forms of action by.l 100 how it acts 100 Assemblies, legislative and constituent 4 nature of 2 understanding under which all meet i voluntary 3 Blanks, how filled 154 Business, how introduced 101, 102 conduct of chapters 8, 9 and 10 Clerk 41 duties 43 qualifications 43 right to debate and vote 45 substitute 44 Closure of Debate. See Previous Question. See Table. by incidental motion. Table 194 House of Commons and French Chamber 128 Commit. See Motions. Committees 119 action before assembly 80 to 82 action must be at meeting 79 amendments 84 appointment and selection 64^69 consideration of reports of 81, 82 consideration of reports on bills 83 duties of officers 73 222 INDEX. Committees Continued. SECTION kinds of 59 conference 63 joint 62 select _ 61 standing __ 60 method of procedure in 70 to 79 minority, views of 75 nature and need of 58 organization 71 place and time of sitting 70 principle of selection 69 quorum .-. 72 report 80, 85 secret meetings 78 selection of 64 to 69 views of minority 75 Committee of the Whole 86 to 99 chairman 87 clerk 88 debate 91 origin 86 order in 94 procedure in 87 to 98 quorum 89 record of 93 report of 93 rising of 92 sittings, how ordered 98 sub-committee, none 97 subjects entrusted to - 95 suggestions 99 yeas and nays 90 House of Representatives 96 Communication between two houses, methods 236 messages 237 committees 238, 239 Conduct of Business looto 19$ Conferences 240 action of committee of 243 INDEX. 223 Co nferen ces Con tin ued. s E CT I o N free 242 method of obtaining 245 object of -. 241 procedure on report. 246 report in House of Representatives has preference over adjournment 169 report of 244 Consent, unanimous, effect of 24 Consideration, question of no time of raising 112 motions as to methods of 194 Debate 91 beginning of 213 cessation of 220 disorderly words 222 disorderly words, procedure 223 in committee of the whole 91 in House of Representatives 227 informal remarks 219 member speaks but once.. 215 object of 212 reference to in other branch '. 224 relevancy 216 what allowed on various motions 201 Decorum, duty of presiding officer where proper motions are used for improper purposes 225 practice in House of Representatives 228 punishment of breach of 226 references to other branch of legislature 224 Division of Question ^-i5i 193 in House of Representatives 152 substitute for 153 who may demand 152 Duties of clerk 43 ofmembers 49 of presiding officer 34 of committee officers 73 Filling Blanks - 154 224 INDEX. SECTION Forms 27010 288 call for meeting ...270 calling to order 271 motions to adjourn.. 281 motions to amend ... 279 motions to commit 278 motions on division of question 288 motions to lay on table 276 motions on point of order 274, 288 motions on postponement. 277 motions on previous question 280 motions of privilege. _ 283 motions on reading of papers 285 motions on recess _ 282 motions on suspension of rules 286 parliamentary inquiries 273 preliminary proceedings 271 General Parliamentary Lavr. See Introduction 57 House of Representatives, appointment by speaker of substitute 39 amendment filling blanks 154 change of rules in fifty-first congress 289 committees of the whole 96 conference report 246 debate 227 division of question 152 motion to strike out 139 motion to strike out and insert 145 organization 7 petitions 107 questions of privilege 178 quorum 16, 21 lay on the table 115 methods of business 289 orders of the day -. 258 previous question 126 privileged motions 177 punishment for misbehavior 228 rank of motions 265 INDEX. 225 House of Representatives Continued. SECTION reading papers 188 reconsideration 206 reconsideration, who may move 208 right to report at any time... 80 second in 105 speaker pro tern, selection of _ 39 suspension of rules 54, 192 withdrawal of motion. 190 yielding floor 218 Incidental Motions* See Order, points of. 181 to 195 division of the question 151, 193 amendment 201 consideration, motions as to method... 194, 195 debate on, etc 201 reading of papers 187 suspension of rules 53 withdrawal of " motion 189 Indefinite Postponement. See Motions. Journal.... 46 Lay on Table. See Motions. Legislature, co-ordinate branches. See Conference. communication, method of 236 committees, joint _ 238 committees, select 239 conferences 240 to 246 Main Question 109, 196 division of 151, 152 Majority Rule _ _ 23 Members' Rights and Duties 48,49,50 Minutes. Seefournat. Minority, views of 75 Motions relating to agreement or disagreement .247 to 254 adhere 253 concur 248, 250 non-concur 249, 250 insist _ 252, 254 recede 251, 254 Motions. See Amendments. to adjourn 169, 170 226 INDEX. Motions Continued. SECTION to adjourn, no quorum required 175 to adhere 253 change in rank of , House of Representatives... 264, 265, 268 to commit 1 119, 120, 197, 201 to concur 248 to dissolve 172, 173 effect of superior on pending motions 166 to fix time of adjournment 171, 172 to insist 252 incidental 181, 199 to lay on table 114, 116, 117, 201 main question 109 to non-concur 249 as to methods of consideration 194, 195 order of, practical illustration 200 to postpone indefinitely 121, 122, 201 to postpone to day certain 118, 201, 256 previous question 123 to 127, 201, 269 privileged _ 167, 168, 201 rank of 196, 201, 264 rank of, change in . 268 reading of papers 187 reading of papers, House of Representatives 188 recess 174, 201 to recede 251 to reconsider 202 to 211 relations of, to debate, amendment and each other... 201 second 104 second, House of Representatives 105 to strike out and insert indivisible 141 subsidiary 162 to 197 subsidiary, application of to each other 164 subsidiary, rank of 163 suspension of rules 191 suspension of rules, House of Representatives 192 withdrawal of motion 189 withdrawal of motion, House of Representatives 190 to be in writing 103 when in possession of assembly 108 INDEX. 227 SECTION Officers, election of by plurality 25 necessary 47 other 47 Order of Business. _ 255, 258, 260 to 263, 267 Order, points of in, 182, 199 appeal 184, 185 manner of raising and deciding 184 during divisions 235 how disposed of 183 time of raising 112, 199 Order, methods of preserving 221 Orders of the Day 255, 256, 257 House of Representatives 258 Organization, commencement of : 5 to 8 double _ 28, 29, 30 legislative 31 House of Representatives 31 object of. _ ._ 26 permanent 30 simple 27 temporary 29 Parliamentary Inquiry. Note 34 Petitions _ 106 House of Representatives 107 Postpone to Day Certain. See Motions. Plurality, election by 25 Preamble, amendment of 130 Presiding Officer 32 appointment of substitute 37 behavior 1 35 choice of temporary 37 duti es 34, 94, 214 duty on abuse of forms 225 debate, right to _ 40 power of assembly over 36 qualifications _ 33 substitute _ 37, 38, 39 Previous Question, as now in use 125 in America 124 228 INDEX. Previous Question Continued. SECTION original _ 123 practical suggestion 127 rank 126 rank, change in 268 two-thirds rule 269 House of Representatives 126 House of Commons 128 Privileged Questions. See Motions 167, 168, 198 Procedure, method of as to amendments 129 as to main question 109 as to paragraphs 134, 144 as to sections 134, 144 Qualification s of Clerk 42 presiding officer 33 Quorum, adjournment from lack of 20 all 13 ascertainment of 34 committee of the whole 18, 89 definition 9 during debate - 17 effect of no, in House of Representatives.. 21 how fixed 14 majority 12 need of fixing 22 not required to adjourn 175 number necessary 10 point of no, must be made 19 practical application of doctrine 19 practice in House of Representatives 16 present, sufficient 15 suggestion as to fixing number of 22 when not necessary n Beading of Paper* 187 Recess 174 Recognitions, by presiding officer 214 Reconsideration 202 to 211 but once 204 can not be reconsidered 204 debate.., 210 INDEX. 229 Reconsideration Continued. SECTION effect of. 203 generally 202 motion for _. 203 object of ... 209 when permissible 204 when out of order 204 when to be made 205 who may make 207 yeas and nays, how reconsidered 204 Recording Officer. See Clerk. Rules, absence of ...- 56 alteration of . . 52 change of, in fifty-first congress 289 practical suggestions 55 special .51, 259 suspension of 53 suspension of , House of Representatives 54 why rules are needed 51 Secretary. See Clerk. Sub-Committees 97 Substitute 140 Substitute Bill .'.. 77 Subsidiary Motions. See Motions and chs.viii and ix 163 to 165 application to each other 164, 165 rank of _ --- 163 Suspension of Rules 53 House of Representatives 54 Unanimous Consent, effect of. ._ 24 View of Minority _ 75 Voting, methods of 229 to 234 decision of points of order during 235 by rising vote 231 by sound 230 by yeas and nays 232 House of Representatives 233 various other methods 234 Teas and Nays 90, 232 Yielding the Floor 1 217 House of Representatives 218 THIS 380295 5ITY OF CALIFORNIA LIBRARY